Batho Pele: Season of discontent

Batho Pele was adopted in 1997 as the framework to establish a new service delivery ethic in the public sector in line with the nation's constitutional ideals which promote the efficient, economic and effective use of public resources in a manner that is developmentoriented and responsive to peoples' needs. Batho Pele constituted the inner core of the White Paper on Transforming Public Service Delivery and which set out to allow citizens living ‘in third world conditions' to hold public servants to account.

The vigorous adoption of these democratic principles would lead to a discernable break between the ‘over-centralised, hierarchical and rule-bound systems inherited from the previous dispensation' and set out mechanisms for accountability. The focus has shifted to delivery on Batho Pele at the municipal tier of government.

In protests over service delivery the questions of consultation in planning, quality of service and response to complaints are often highlighted. To what extent has service delivery been transformed on these lines?

The questions in SASAS 2007 provide the first opportunity for an assessment of their impact on municipal household services as the survey provided the first systematic log of people's appraisal of the principles working out in practice. The statements were crafted to reflect the quality of delivery at the municipal level (see below). To what extent do people see the principles in their daily experience of service delivery?

Participants in the survey were asked to respond to positive statements about services relating to each of the eight Batho Pele principles at a municipal level.

Table 1: Statements crafted to reflect the quality of service delivery in line with the eight Batho Pele principles 

Assessing the components

Batho Pele is often considered as a general statement of intent to provide services in a new democratic context, but the eight principles allow the different parts to be identified and individually assessed. In Figure 1 these are ranked according to the level of agreement with various positive statements about public service adherence. 

Figure 1: Agreement with statements on municipal Batho Pele performance, 2007 (%)
Source: HSRC SASAS (2007)

The survey indicates that people see a difference in practice between the various principles at the municipal level. The greatest disagreement with the positive statement relates to Consultation (BP1), which indicates that this is the main gap in implementation. The least disagreement is with Setting Service Standards (BP2) and Increasing Service (BP3). Consultation could be considered together with Openness and Transparency and Providing Information (BP5 and 6); there appears little agreement that all these aspects of communication are in place. There is also disagreement that municipal responsiveness (Redress: rapid response) is in evidence. 

The message from respondents is that government is improving delivery but not managing to communicate and respond to people's priorities. 

Further analysis of Consultation (BP1) at a provincial level finds that the highest level of disagreement is in the Free State (80%) and the lowest level of disagreement in Limpopo (56%). In no province, however, did most respondents feel that municipal consultation was in evidence.

Serving the poorest?

This indicates some level of geographical analysis; the other measure is that of location. What do people in the most disadvantaged geographical contexts feel about the quality of service delivery; have public services been transformed and given a pro-poor orientation? 

Analysis of the SASAS survey was made according to the following broad criteria: urban and rural and formal and informal. By definition those having the greatest need for services or improved services are those in informal and rural contexts. The data is presented in Table 2.

Source: HSRC SASAS (2007)

Among the different geo-types the urban formal metropolitan areas show the lowest level of disagreement with the positive statements about Batho Pele. All those in the better served formal areas and most of those in the non-metropolitan areas have a more positive assessment of the implementation of Batho Pele than the average. By way of contrast the rural communal and formal (farm dwellers) and informal locations have the highest level of disagreement with Batho Pele principles and score higher levels of disagreement than the average.

In these locations the disagreement on Consultation (BP1) ranges from 70% (rural formal) to 79% (urban informal non-metro); very high indicators of discontent. Equally high levels are visible in Redress (provide rapid response) where responses range from 79% in rural formal areas to 70% in urban informal non-metro expressing disagreement.

Although the figures hardly indicate approval, the lowest levels of dissatisfaction within this more poorly served sector are seen in relation to increased access; an acknowledgment that efforts are being made here. 

The conclusion has to be that the areas of greatest need of improved service delivery - the informal settlements and rural communities - are experiencing the lowest level of consultation, redress, openness, relevant information, and courtesy. There is, however, some acknowledgement that increased access is taking place, although possibly not in their areas.

Will delivery improve?

The question of Redress (BP8) has been examined further; the SASAS question on satisfaction with services was contrasted with views about possible improvement - are those dissatisfied with their services hopeful that they will improve (Redress)? Those who were most dissatisfied with the level of service also felt that the Redress principle (fixing problems) was not being adhered to. In relation to water and sanitation, electricity, refuse removal and affordable housing, for instance, between 75 and 83% felt that this Redress principle of fixing problems was not being observed.

Those most needing redress were are not expecting improved service delivery.

Table 3: Levels of disagreement with statements on municipal Batho Pele performance, by party support (%)

Where do these attitudes fit in the political spectrum? Interestingly it is found (in Table 3) that those who express the strongest disagreement with positive statements about Batho Pele are found among ANC supporters. For instance, the highest disagreement among those expressing political preferences was found among ANC supporters in relation to Consultation; Providing information and Redress: rapid response, and the least disagreement in relation to Increasing Access. These attitudes point to the upwelling of discontent within the ANC which characterised the mood of Polokwane.

The White Paper argued that public services are a legitimate expectation and not a privilege in a civilised and democratic society. The expectations of South Africans as indicated by the SASAS data are that much needs to improve.

Dr David Hemson is a Director in the Centre for Service Delivery. The HSRC's Policy Analysis Unit (PAU) also contributed to this work.