SERVICE DELIVERY MODEL FOR

DEVELOPMENTAL SOCIAL SERVICES

FINAL SERVICE DELIVERY MODEL

OCTOBER 2005
FOREWORD BY THE MINISTER OF SOCIAL DEVELOPMENT

The delivery of services to the masses of our country remains a complex

process. A developmental framework demands interrelated, intersectoral and
integrated service delivery from the many sectors and government departments
involved. For it to be successful, this collaboration and coordination must be
underpinned by the attitudes and values of the developmental approach, and
good relations between national, provincial and local government are essential.

Over the past decade, the notion of what constitutes developmental social
services has been a matter of debate, misunderstanding and misinterpretation.
Since 1994, we have been engaged in discussions at various levels to ensure
that our services benefit the poorest and most vulnerable sectors of society.

In reaching out to the millions of our people who live in conditions of abject
poverty, some deprived of access to even basic resources, there has been a
shift in approach, from a welfarist to a social development perspective. This
paradigm shift is premised on the notion that people are the masters of their
own destiny and, instead of helping the poor in the traditional way with
handouts, it moves on to the development and empowerment of individuals,
groups and communities, teaching them to be self-reliant. We believe that this
is the best way for the Department and its partners to combat the socio-
economic challenges facing the country.

Our belief is that such efforts will strengthen the system through which services
are rendered and promote the general welfare and development of our people.
This Service Delivery Model depicts our relentless efforts to improve service
delivery to the poorest of the poor and all the other vulnerable groups in our
society, while providing an indication of the resource requirements for effective
implementation.

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We hope that the model will help all of us to confront the challenges of service
delivery that we have had to face in the past decade. More importantly, we
hope the Service Delivery Model will turn the tide and ensure the enhancement
of closer working relationships between all those striving for social justice and
working together to achieve the common goal of "a better life for all’’.

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ACKNOWLEDGEMENTS

The Department wishes to express its sincere appreciation to the

Transformation Task Team, which gave invaluable support in the process of
developing the Service Delivery Model. The team was made up of national and
provincial representatives and was chaired by Ms N. Kela, Chief Director:
Welfare Service Transformation (National). It is through the team's efforts that,
in spite of the challenges we face, we can say that we have laid the foundation
for making a meaningful contribution to the millions of needy South Africans
desperately awaiting our services.

This report was written by -

• Ms M Davids
• Ms S Follentine
• Ms B Hlagala
• Ms CM Legodu
• Ms S Luka
• Mr H Mooketsi
• Mr W Ncapai
• Ms M Niemand
• Ms I Sikwane
• Ms Iveda Smith

The contributions of Dr Kganakga, Ms Kgasi, Dr Mabetoa, Mr Mbonani,

Ms Nhlapo and others in the Department are also appreciated.

The Department wishes to acknowledge the significant contributions made by

stakeholders in all nine provinces, institutions of higher learning, the South
African Council for Social Service Professions, labour organisations, non-
governmental organisations (NGOs), faith-based organisations (FBOs),
community-based organisations (CBOs) and others that participated in
consultative sessions and gave input on the document. Partnership with

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organs of civil society remains a key element in the Department’s efforts to
ensure optimal functioning and the fulfilment of its mandate.

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TABLE OF CONTENTS

Executive Summary……………………………………………… …….……

1. Introduction ……………………………………………………………….

2. Rationale for the Service Delivery Model ……………………………..

3. Purpose of the Service Delivery Model…………………………………

4. Outcome statement………………………………………………………

5. Values and principles for service delivery………………………………

6. Policies and constitutional mandate .……………………………………

7. Key concepts ………………………………………………………………

8. The development paradigm ……………………………………………..

9. Service integration ……………………………………………………….

10. Social welfare service delivery ..……………………………………..….

11. Target groups …………………………………………………….…..…..

12. Nature and scope of community development services .……..……..

13. Service providers/institutional mechanisms …………..………………

[Link] for service delivery……………..……………….………………

15. Norms and standards………………..……………….…………………

16. Workstreams ..…………………………………………………..……….

17. Implementation and change management plan………………………

18. Monitoring and evaluation………………………………………………

19. Conclusion……………………………………………………………..…

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EXECUTIVE SUMMARY

The Department of Social Development renders services through the three

broad programmes; Social Security, Social Welfare and Community
Development. These programmes should be integrated and enable the target
groups to deal effectively with all social issues, such as psychological stress,
chronic poverty, food insecurity and other adverse social conditions.

In order to do this a developmental approach to service delivery is needed; an

approach that is based on the strengths of the individual, group or community,
and that recognises their capacity for growth and development. Recognising
the need to promote the goals of sustainable development and to redress past
imbalances, the social services sector has adopted such an approach,
integrating social intervention with economic development. Despite having
adopted this approach, in recent years social service practitioners have been
forced to adopt a “make do” approach, their actions dictated by resource
limitations rather than need, priority or statutory and internationally ratified
obligations.

The major goal of the Service Delivery Model for Social Services is therefore to
provide a comprehensive national framework that clearly sets out the nature,
scope, extent and level of social services, and which will form the basis for the
development of appropriate norms and standards for service delivery.

The desired outcome of the Service Delivery Model is the implementation of a

comprehensive, efficient, effective and quality service delivery system, which
will contribute to a self-reliant society, and which is based on the principles of
Batho Pele, the White Paper for Social Welfare, and the constitutional, legal
and international obligations that inform the mandate of the Department in the
provision of services.

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The Service Delivery Model for Developmental Social Services acknowledges
the interdependent relationship between the main programmes of the
Department, namely Social Security, Social Welfare and Community
Development, and provides a framework for the integration of the services of
the Department's different programmes. However, social issues are complex
and multidimensional, so the need for service integration across departments
and the effective use of clusters to facilitate this integration of development
efforts is important. To this end the Department works on specific services with
other departments and spheres of government to ensure that communities
derive maximum benefit.

While recognising the role of social security, services are defined in terms of
two broad categories that constitute developmental social services, namely
developmental social welfare services and community development. These are
further delineated in terms of service classifications.

Developmental social welfare services are classified in terms of levels of

intervention which, although distinct, in practice overlap and are provided in a
continuum. They are divided into prevention; early intervention; statutory,
residential and alternative care; and reconstruction and aftercare services. All
services are aimed at promoting the optimal functioning and the reintegration of
beneficiaries into mainstream society.

Core services are further classified into five broad categories, namely
promotion and prevention; rehabilitation; protection; continuing care; and
mental health and addiction services. These are then unpacked in terms of the
primary target groups of the Department, which broadly comprise the poor and
vulnerable sectors of society.

The nature and scope of community development are articulated. These are
classified in terms of the purpose and scope of services, and include a focus on
the development of the youth and women, poverty reduction programmes, and

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the registration and facilitation of non-profit organisations (NPOs). These
services are further classified in terms of the community development process,
including the development of social relationships, community profiling, planning
and prioritisation, implementation, evaluation, documentation and facilitation,
integration and coordination. Some preferred approaches, such as sustainable
livelihood and participatory learning and action, are highlighted.

The Service Delivery Model acknowledges that developmental services are the
collective responsibility of various role players, including government, non-
governmental organisations and the private sector. The exact nature and
extent of the involvement of these service providers is determined by history,
expertise, statutory requirements and cost.

Within this framework, the roles and responsibilities of service providers of

government in different spheres, as well as service partners such as national
bodies, non-governmental, community-based and faith-based organisations,
and private practitioners are outlined. This will ensure that role clarification is
enhanced, and duplication and fragmentation prevented. All service providers
need to ensure that services are integrated, coordinated and managed to
maximise their benefits for society.

In order to implement the Service Delivery Model effectively, a range of human,

financial, information management and other infrastructural resources are
required. The allocation of resources in this regard will be determined by the
development of appropriate norms and standards. The model sets the basis for
the development of such generic norms and standards, which still requires
further research.

To deliver effectively on the functions outlined in this model, workstreams that

can be utilised as a basis for structural alignment, particularly within
government, have been developed. This will facilitate the coordination and
integration of services, and improve communication and joint planning.

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The success of the model depends largely on continuous review and
customisation to suit implementation settings. An implementation and change
management plan has therefore been drawn up.

The Department emphasises monitoring and evaluation, and monitoring and

evaluation mechanisms and processes have therefore been outlined. This is
aimed at ensuring cooperation rather than conflict, so that the Department's
valued relationship with service providers and beneficiaries is maintained for
the betterment of society.

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SERVICE DELIVERY MODEL FOR DEVELOPMENTAL SOCIAL WELFARE
SERVICES

1. INTRODUCTION

In order to address the legacy of South Africa's colonial and apartheid history,
the government has adopted a transformative, developmental framework and is
moving towards becoming a developmental state. One of the government's
responsibilities is to facilitate the process of development through the various
institutions of government, its partners and civil society.

The developmental challenges facing South Africa, given its history, are many
and varied. A central priority of government, as required by the Constitution’s
Bill of Rights, is to ensure provision of a range of services to meet these
challenges, within the constraints of available resources. Against this
background, and in recognition of the need to promote the goals of sustainable
development to redress past imbalances, the social services sector has
adopted a developmental approach to service delivery, integrating social
interventions with economic development.

South Africa inherited a social welfare system with a unique combination of

historical forces. This significantly impacts on the capacity of the current system
to address poverty and related issues such as unemployment and HIV and
AIDS. Social work was the only officially approved service profession for social
welfare from 1937, a consequence of the recommendation of the first Carnegie
Commission inquiry into white poverty in South Africa in 1928. As a new
approach to social service delivery, social development transcends the residual
approach that has dominated social welfare thinking in the past. The social
development approach aims at collective empowerment, facilitating processes
that help the poor, vulnerable and marginalised to regain control over their lives.

Institutional development, part of the transformation process and development

paradigm, required the Department of Social Welfare to change its name to the

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Department of Social Development. Social development is concerned with the
development of society in its totality. Its efforts are directed at the development
of the total potential of human beings for the maximum improvement of the
material, cultural, political and social aspects of their lives.

According to the United Nations (UN) Economic Commission for Africa, social
development involves the participation of the people in bringing about
qualitative and quantitative changes in the social conditions of individuals,
groups and communities through planned measures such as social policy,
social welfare, social security, social services, social work, community
development and institution building. The developmental framework demands
that service delivery be intersectoral and integrated between the various
government departments and sectors. This collaboration and coordination is
possible only if it is reflected in attitudes, behaviour and values that promote a
developmental approach.

Over the past decade the notion of what constitutes developmental social
welfare service delivery has been a matter of debate, misunderstanding and
misinterpretation. The Service Delivery Model seeks to provide clarity on the
nature, scope and level of services in the developmental social services sector,
excluding social security. It also gives an indication of the resource
requirements for effective implementation. It provides a basis for setting
appropriate generic norms and standards for service delivery, which in turn
provide a realistic sense of the cost of such services.

The Service Delivery Model does not seek to address broader policy issues; it
is not a review of the White Paper. Neither is it a theoretical framework that
seeks to define practice domains. Rather, it is a guideline for social services
within the context of a developmental paradigm, and provides a value chain for
social development services.

This document is one of a series of interrelated documents that give effect to

the implementation of the White Paper, and as such must be read in

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conjunction with them. These documents include the Policy on Financial
Awards to Service Providers and its Procedure Manual, the Conceptual
Framework on Community Development and various other departmental
policies and minimum standards for service delivery.

2. RATIONALE FOR THE SERVICE DELIVERY MODEL

Despite having adopted a developmental approach to service delivery, the

focus over the past decade has been predominantly on Social Security, to the
detriment of other developmental social services. Indeed, the crowding out
effect of the Social Security budget has resulted in the severe curtailment and
neglect of other services. Social service practitioners have been forced to
adopt a “make do” approach, dictated by resource limitations rather than need,
priority, or statutory and internationally ratified obligations.

The above has had far-reaching effects, which include -

• poorly developed protection services;

• inadequate numbers of social service practitioners to deal with high

caseloads and deepening poverty;

• large numbers of children who have to await trial in prison because of

inadequate numbers of probation workers and lack of infrastructure such
as places of safety and secure care facilities in communities;

• an almost non-existent information management system which greatly

hampers planning;

• very poorly developed prevention and early intervention services;

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 • loss of skilled personnel due to poor salaries and working conditions;

• an increase in social pathologies and problems, for example, the high

number of street children, sexual exploitation of children, HIV and AIDS,
increasing incidence of substance abuse and a multitude of other
problems;

• the inability of service providers in the NGO sector to render services

because of inadequate remuneration for these services and difficulty in
fund-raising, resulting in services reverting to the state or collapsing.

Recent developments in Social Security, most notably the decision to establish

the provision of this service as an independent agency, with its own budget, as
of 1 April 2005, refocused attention on the remaining services in the
developmental social services basket. However, this has to be done within the
context of all the services rendered by the Department.

Social security remains part of the mandate of the Department. However, the
burden of social security is increasing and becoming financially unsustainable.
The Service Delivery Model acknowledges the relationship between the main
functions of the Department, namely social security, social welfare services and
community development. Its major goal is therefore to provide a
comprehensive service that will reduce the burden on social security. Social
security should be a measure that largely provides immediate relief for those
that can be taken off the system and redirected to other services defined in this
model, namely developmental social welfare or community development
services, to ensure the sustainability of intervention efforts.

The sector is being called upon to account for what it does, and provincial
departments of social development, in particular, are facing the challenge of
repositioning themselves now that Social Security has become autonomous (it
is now the South African Social Security Agency).

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The development of this Service Delivery Model presents an opportunity to
detail the nature, scope, extent and level of services that social service
practitioners should be delivering within one consolidated framework. The
rationale for the Service Delivery Model is as follows:

• It provides a framework for transformation towards a developmental

approach to social service delivery.

• It presents a set of values that are necessary for the reconceptualisation

and transformation of social service delivery.

• It provides the basis for the reconstruction of social development

institutions.

• It provides for ongoing learning and insight into a shared vision for the
developmental social services sector.

3. PURPOSE OF THE SERVICE DELIVERY MODEL

The purpose of this document is thus to -

• provide a national framework that clearly determines the nature, scope,

extent and level of work that constitutes the Service Delivery Model for
developmental social services; and

• provide a basis for determining appropriate norms and standards for

service delivery, which will in turn provide a basis for funding and greater
efficiency and effectiveness in service delivery.

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4. OUTCOME STATEMENT

The desired outcome of the Service Delivery Model is the implementation of a

comprehensive, efficient, effective, quality service delivery system that
contributes to a self-reliant society.

5. VALUES AND PRINCIPLES FOR SERVICE DELIVERY

5.1 Values

The values and ethos for service delivery are derived from the Batho Pele
principles as set out in the White Paper for the Transformation of the Public
Service.

The following values have been identified as the basis for social development
service delivery:

The people should come first in the delivery of social services.

Equity and freedom from discrimination and harassment should be ensured in
the workplace and in the services provided by the Department.
The Department should work in partnership with the people they serve and with
other stakeholders.
Staff should use the resources entrusted to them to deliver on government
priorities in the most efficient, effective and innovative ways.
The Department should be transparent in and accountable for its decisions,
actions and performance.
The Department should share its knowledge and expertise with other
departments and the broader welfare sector and learn from them.
In performing its duties, the Department should uphold the Constitution of the
Republic of South Africa, the laws governing the Public Service, and the Code
of Conduct for the Public Service.

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In addition, certain core values are intrinsic to the developmental approach.
The following must be observed:
• Acknowledgement and respect for people’s potential to develop and
change;
• recognition of the rights of all to participate in their own development and
decision-making, and to be accountable for their own lives; and
• commitment to facilitate social processes that build effective
relationships, and healthy organisations and communities.

5.2 Principles

The following are regarded as key principles for a developmental approach

relevant to the South African context:

• Participation: People should be fully engaged in their own process of

learning, growth and change, starting from where they are and moving at
their own pace.

• Self-reliance: People should be connected to each other and with their

environment in ways that make them more effective in their individual
and collective efforts towards a better life, developing leadership,
decision-making and planning skills, among other things.

• Empowerment: Power relations should shift towards people achieving

greater control and influence over decisions and resources that impact
on the quality of their lives through increasingly interdependent
relationships.

• Universal access: Social development services should be available to

all vulnerable groups. No individual or group should be denied access
either because of lack of resources or lack of knowledge of how to
access services.

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 • Equity: The disbursement of resources should be based on need,
priorities and historical imbalances.

• Transparency: There should be access to information, and openness

regarding administrative and management procedures.

• Appropriateness: There should be responsiveness to social, economic,

cultural and political conditions.

• Accountability: All legislation, policy and regulations should be

complied with.

• Accessibility: Accessibility in terms of physical and geographical

conditions, time, language and need should be ensured.

• Efficiency and effectiveness: Objectives should be achieved in the

most cost-effective manner.

• Partnership: It is the collective responsibility of government, civil

society and the business sector to deliver services.

• Social integration: Policies and programmes should promote social

justice.

• Sustainability: Long-term maintenance of desired goals should be

possible.

These principles underpin the delivery of social services in the Department and
should be observed and complied with.

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6. POLICIES AND CONSTITUTIONAL MANDATE

The Constitution of the Republic of South Africa, 1996 (Act No. 108 of 1996),
contains the Bill of Rights, which provides for not only basic human rights but
social and economic rights. The Constitution, notably section 27(1)(c), also
provides for the right of access to appropriate social assistance for those
unable to support themselves and their dependants.

South Africa is one of the few countries where the Constitution enshrines a duty
to alleviate poverty. The South African government is obliged to meet basic
human needs and accords these needs the status of basic human rights.

The White Papers for Social Welfare (1997) and Population Policy (1998)
provide the overarching policy framework for the Department.

The Social Service Professions Act, 1978 (Act No. 110 of 1978), provides the
framework for the development of the Council, which is a statutory, autonomous
body, tasked with the development of the social service professions, protecting
the interests of beneficiaries and promoting the interests of registered social
service professionals. It also sets out the code of conduct for social service and
related professions and sets standards for education and training.

The Department of Social Development also administers all or part of the

following Acts:
• Aged Persons Act, 1967 (Act No. 81 of 1967)
• Social Service Professions Act, 1978 (Act No. 110 of 1978)
• Child Care Act, 1983 (Act No. 74 of 1983)
• Probation Services Act, 1991 (Act No. 116 of 1991)
• Prevention and Treatment of Drug Dependency Act, 1992 (Act No. 20 of
1992);
• Social Assistance Act, 1992 (Act No. 59 of 1992)
• Nonprofit Organisations Act, 1997 (Act No. 71 of 1997);
• National Development Agency Act, 1998 (Act No. 108 of 1998); and

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 • Advisory Board on Social Development Act, 2001 (Act No. 3 of 2001)
• Mental Health Care Act, 2002 (Act No. 17 of 2002)
• Prevention of Domestic Violence Act, 1998 (Act No. 116 of 1998)
• Divorce and Mediation Act, 1979 (Act No. 70 1979)
• Maintenance Act, 1998 (Act No. 99 of 1998)
• Criminal Procedures Act, 1977 (Act No. 51 of 1977).

These Acts constitute the legal framework for developmental social service
delivery in South Africa. To remain relevant, however, legislation must be
reviewed whenever necessary.

There are numerous international obligations that the country is signatory to

and these will be referred to in later sections of the document. However, the
Universal Declaration of Human Rights and the United Nation's Millennium
Goals are key, and to a large extent set the basis for legislation and policy in
the country.

The Universal Declaration of Human Rights lays the basis for all other
commitments “to promote social progress and better standards of life in larger
freedom” and to finding mechanisms “to promote the economic, social and
cultural rights of all peoples”.

The United Nations Millennium Goals, which make a commitment to halve

world poverty by 2015, also commit member countries to -
• eradicating extreme poverty and hunger;
• achieving universal primary education;
• promoting gender equality and empowering women;
• reducing child mortality;
• improving maternal health;
• combatting HIV/AIDS, malaria and other diseases;
• ensuring environmental sustainability; and
• developing a global partnership for development.

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7. KEY CONCEPTS

This section explains key concepts used in the model in order to promote
consistency in terms of their usage within the Department and other sectors.

Social development is a process of planned social change designed to

promote the well-being of the population as a whole in conjunction with a
dynamic process of economic development. The goal of social development is
the promotion of social welfare (where 'welfare' is used in its broadest meaning
to connote a condition of social well-being which occurs when social problems
are satisfactorily managed, social needs are met and social opportunities are
created *). Social development is thus the key shared agenda of all the sectors
of government of the country as an aspirant developmental state. The
Department of Social Development is the lead advocate for the overall social
development agenda.

The social development approach uniquely integrates economic and social

objectives. It not only recognises the critical importance of economic and social
development in raising standards of living, but actively seeks to harness
economic development for social goals.

Developmental social welfare focuses on social protection, the maximisation

of human potential and on fostering self-reliance and participation in decision-
making. Developmental social welfare has a particular focus on the causes and
effects of social vulnerability and marginalisation, and the delivery of integrated
services to communities, families and individuals affected by these phenomena.

Community development refers to the process and method aimed at

enhancing the capacity of communities to respond to their own needs, and at
improving their capacity for development, through community mobilisation,
strength-based approaches and empowerment programmes.

* Midgley, James. The Developmental Perspective in Social Welfare. Sage, 1995.

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Social services refers to the broad, comprehensive range of services relating
to social welfare and community development services provided in a continuum
to ensure the integration and sustainability of intervention efforts.

8. THE DEVELOPMENT PARADIGM

Social services approaches from the pre-1994 era were criticised as not being
appropriate or developmental, and for creating dependency. Services were
individualistic and were similar to a medical model in which the focus was on
the diagnosis and treatment of the client, with the latter being a passive
recipient of services.

The need therefore emerged for a developmental approach, based on the

strengths of the individuals, groups, or communities, and promoting their
capacity for growth and development.

The pre-1994 principles of community development practice were criticised for

the same reasons, with the exception of some progressive civil society
formations that focused on empowerment and human development. The
developmental paradigm called for new approaches that were people-centred
and sustainable.

One such approach is the overarching sustainable livelihoods approach, which

redefines development in terms of exploring the strengths and vulnerabilities of
the poor. It promotes a holistic vision of development, and seeks to direct the
focus of development thinking towards encouraging clients to use the
knowledge and expertise of individuals in their communities and the resources
available in their environment creatively and innovatively to address their socio-
economic needs.

What makes this approach effective is not its individual components but the
synergy created when the key elements are combined or integrated to augment

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what local people already do well, together with the resources and assets to
which they have access. The sustainable livelihoods approach also respects
people’s capacity to exercise choice and access opportunities and resources,
and to use them for a livelihood in ways that do not disadvantage others,
currently and in the future.

In attempting to move towards a developmental approach, South Africa

adopted the White Paper on Social Welfare in 1997. This committed the
Department to a social development paradigm for welfare, and supporting a
people-centred approach to social and economic development. The approach
focuses on the maximisation of human potential and on fostering self-reliance
and participation in decision-making. It also stresses services that are family
orientated, community-based and integrated.

The development paradigm is built on the following imperatives:

• Social processes that bring about changes in relationships so that the
poor, vulnerable and marginalised can gain increased control over their
lives, and access to and control over resources.
• The transformation of attitudes, institutions and structures.
• Influencing the formulation and implementation of appropriate policies at
micro, meso and macro level.
• Social processes that support people’s potential, indigenous/local
knowledge and expertise in pursuance of their own development.
• Continued reorientation of social services sector personnel towards the
development paradigm.

Within this context, the meaning of social welfare and community development
must then be reviewed and redefined.

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8.1 Social welfare

Social welfare covers a range of services and programmes that are directed at
enhancing the capacities of people to address the causes and consequences of
poverty and vulnerability. A range of professionals provide these services, key
among which are social workers.

The developmental approach to social welfare -

• recognises the need for integrated and strength-based approaches to
service delivery;
• ensures and promotes the sustainability of intervention efforts;
• emphasises appropriate services to all, particularly the poor, vulnerable
and those with special needs;
• recognises that social work, among other social service professions,
plays a major role in addressing the developmental needs of South
African society.

The social work profession promotes social change, problem solving in human
relationships, and the empowerment and liberation of people to enhance well-
being. Utilising theories of human behaviour and social systems, social work
intervenes at the point where people interact with their environment. Principles
of human rights and social justice are fundamental to social work.

The Social Service Professions Act states that social work means a
professional service performed by a social worker, aimed at the improvement of
the social functioning of people. Social functioning means the role performance
of an individual in its entirety at all levels of his or her existence, in interaction
with other individuals, families, groups, communities and situations in his or her
environment.

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Social work services are rendered using three primary methods, namely case
work, group work and community work/development.

Case work is a method that utilises a variety of skills, techniques and other aids
to facilitate the clients’ participation and decision-making in efforts to improve
their social functioning.

Group work is a method whereby a group achieves group objectives within a

group context by the purposeful application of group processes and
interventions.

Community work is a joint, planned action of a geographical or functional

community and a social service practitioner to promote the social functioning of
the total community.

In addition, social workers have two secondary methods, namely research and
administration, which are intrinsically linked to and support service delivery.

There are other categories of personnel that provide support services to social
workers, such as social auxiliary workers, child and youth care workers and
other paraprofessionals. Some of these categories have become
professionalised, for example child and youth care. Their functioning is defined
within the context of social work.

There are, however, other professional groups such as psychologists, who

render a wide range of services which complement the services provided by
social workers, whether through referrals or in multidisciplinary teams. These
professionals provide the opportunity for the delivery of an integrated and
holistic service to enhance the clients’ capacity to function maximally as they
interact with their environment.

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8.2 Community development

With the shift to the social development approach, a new cadre of community or
social development officers/workers were introduced to focus on community
development.

Community development refers to a process and method aimed at enhancing

the capacity of communities to respond to their own needs and improve their
capacity for development, through community mobilisation, strength-based
approaches and empowerment programmes.

Community development is perceived as a complex system of processes made

up of two essential elements, namely -

• the participation of people themselves in efforts to improve their level of

living, developing a sense of ownership of the process, taking initiative
and contributing meaningfully to joint planning, decision making and
implementation/evaluation; and

• the mobilisation and provision of resources, and the creation of access to

opportunities that encourage initiative, self-help and initiatives for mutual
benefit.

Community development, being dynamic, multisectoral and multidisciplinary in

nature, has the following focus areas:

• Facilitation of the community development process.

• Development of people-driven and community-based programmes.
• Facilitation of capacity-building and economic empowerment
programmes.

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Government facilitates institutional support development with the focus on
creating and strengthening existing government institutions and civil society
organisations.

Various models are used in the development domain, most of which subscribe
to the sustainable development approach, and key among which is participatory
learning and action (PLA). PLA can be seen as an umbrella term for a variety
of approaches and methods used by local people to appraise, plan, implement
and evaluate their own development processes. The PLA approach is by its
nature empowering, and the whole process belongs to the community.
Outsiders are learners first and facilitators second.

9. SERVICE INTEGRATION

The Department of Social Development renders services through the three

broad programmes of Social Security, Social Welfare Services and Community
Development. Collectively, these programmes should enable target groups to
deal effectively with all social problems and issues (e.g. psychosocial stress,
chronic poverty and food insecurity), particularly if they are integrated.

The integrated model proposed below is a multi-pronged approach aimed at

addressing the social welfare and development needs of target groups in a
holistic and integrated manner. This approach will provide a basis upon which
systems can be put in place to ensure that vulnerable people are assisted to
access immediate short and long-term material support, including social
security when necessary.

Social security should not be an end in itself. Beneficiaries should as far as

possible be engaged in appropriate social service and development
programmes to ensure that when they exit the system they are able to function
optimally in society. The developmental approach is therefore able to promote

26
the meeting of emergency needs of vulnerable households, individuals and
communities while assessing the cause and effect of their vulnerability,
recognising their strengths, and developing appropriate strategies for
sustainable socio-economic development.

Individuals, groups/families and communities access the Department's services

through various entry points, including drop-in centres, service offices, and
home and community visits. Systems should be put in place at each of these
points to ensure that target groups are profiled, assessed or analysed, and their
information captured on a database. While the immediate needs of these target
groups can be met at these points, through existing or any new and innovative
measures, including provision of food parcels, a referral system has to be put in
place to ensure that these target groups are involved as necessary in the
Department's other socio-economic programmes in order to strengthen their
capacity for optimal social functioning.

This integration addresses the following five key areas:

• Early identification and emergency relief
• Assessment of target groups, capturing information on the database and
referral for appropriate services
• Profiling of beneficiaries and communities of origin for identification of
opportunities for sustainable socio-economic development
• Planning and implementation of at exit strategies all levels
• Monitoring and outcome evaluation.

The service integration model described above can be schematically presented

as follows:

27
 E
X
Social I
T
Security
Beneficiary Community
Point Assessment by and Development Or
of social service community
entry: professionals profiling
R
Social
E
Services F
E
R
R
A
L

Monitoring and Evaluation

The entry point is the point at which clients (individuals, groups, families or communities) first
make contact with the system. This could be through one of the Department's service points or
various other agencies. One or more social service professionals then make an assessment.
The client participates actively in intervention efforts that best suite their circumstances and
needs in order to ensure that they derive full benefit from available services. Movement of the
client within the system is dynamic, and is not a linear process. Clients can exit the system at
any point. The aim of the intervention at all levels is achievement of the desired level of social
functioning. However, there are those whose functional capacity will require continued
intervention, for example people with severe disabilities.

This approach will ensure that there is an exit strategy that will result in the
enhanced sustainability of intervention efforts. The focus is on the interventions
that the sector has the capacity to deliver on at different levels, but does not
exclude referrals to local government, other government departments or organs
of civil society, should there be a need.

28
In practice, there is a growing awareness that policy needs to be coordinated
across government. Social issues are often complex and multidimensional, and
they need to be understood in a holistic manner. Owing to the interrelatedness
of social phenomena and the impact that one department’s functions have on
the next, it is crucial to understand the roles and responsibilities of all the other
sector departments and how their functions relate to those of the Department of
Social Development. The challenge is to utilise the clusters set up by
government effectively to facilitate the integration of development efforts. The
Department of Social Development therefore also works with the Departments
of Health, and Justice and Constitutional Development, among others, through
legislative and other mandates.

10. DEVELOPMENTAL SOCIAL WELFARE SERVICE DELIVERY

10.1 Classification of welfare service delivery

There are a number of ways to classify the services provided in the sphere of
social services. The following section will use two classifications which,
although different in theory, are in practice integrated when services are
provided.

10.1.1 Classification in terms of levels of intervention

In order to achieve the desired outcome, namely an improvement in social

functioning, services are rendered at different levels. These levels are on a
continuum, so while they may seem to follow a distinct hierarchy, a client may
enter the system at any of the levels, and the levels may overlap in practice.
The service provider and client must together determine the client's current
social functioning and develop an intervention strategy that will enable the client
to reach the optimum level of social functioning and be ready for reintegration
into society.

29
The levels of intervention are as follows:

• Prevention
This is the most important aspect of social service delivery. Services
delivered at this level are aimed at strengthening and building the
capacity and self-reliance of the client. At this level the client is
functioning at an adequate level but there is a possibility of at-risk
behaviour at a later stage.

• Early intervention (non-statutory)

Services delivered at this level make use of developmental and
therapeutic programmes to ensure that those who have been identified
as being at risk are assisted before they require statutory services, more
intensive intervention or placement in alternative care.

• Statutory intervention/residential/alternative care

At this level an individual has either become involved in some form of
court case or is no longer able to function adequately in the community,
and services are aimed at supporting and strengthening the individual
involved. At this level a client may have to be removed from his/her
normal place of abode, either by court order or on the recommendation
of a service provider, to alternative care (e.g. foster care), or placed in a
residential facility.

• Reconstruction and aftercare

The previous intervention is aimed at providing alternative care which
should wherever possible be a temporary measure, followed by
reconstruction/aftercare services to enable the client to return to the
family or community as quickly as possible. Services delivered at this
level are aimed at reintegration and support services to enhance self-
reliance and optimal social functioning.

30
 These levels can be represented schematically as follows:

Fig. 1: Levels of intervention

It must be noted that clients can enter or exit the system at any of the levels
(see arrows). The intervention method should be agreed with the clients after
assessment and development of an intervention programme. This programme
serves as a contract between the service provider and client, with both
committing to a developmental programme that will enhance the client’s
capacity to achieve their own desired level of social functioning. The client is
therefore not a passive recipient of services, but participates and develops
his/her own treatment goals.

31
10.1.2 Classification in terms of the nature of services

Social welfare services focus on meeting the needs of and building on the
strengths of individuals, families, communities and other social groups through
the provision a comprehensive range of services and programmes that extend
beyond the inherent capacity of individuals and their natural support networks.
The Service Delivery Model must in broad terms describe the range of services
that clients can expect to have access to, either in their communities or
elsewhere, and how such services can assist beneficiaries to reach an optimal
state of social functioning and lead productive lives in the context of healthy
families and communities.

Core services rendered by the social services sector have been grouped into
five broad categories:
• Promotion and prevention services
• Rehabilitation services
• Protection services
• Continuing care services
• Mental health and addiction services

In the next section, a brief exposition is given of these. The actual services
provided to each focus group are then described in terms of this classification.

• Promotion and prevention services

Promotion and prevention programmes and services aim to enhance the
process whereby people are provided with ways and means of taking
greater control of factors that impact on their well-being. These are
anticipatory actions to reduce the likelihood of undesirable conditions.
Prevention services take into account individual, environmental and societal
factors that contribute to problem development.

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Promotion and prevention services work towards the upliftment of all people
and communities by promoting well-being, encouraging people to make
healthy choices, and supporting them in these choices.

Prevention and promotion services are also where developmental social

welfare services intersect with community development services, which
address the needs of target groups whose problems are compounded by
poverty and other under-development (socio-economic) problems.

• Protection services
Protection services aim to safeguard the well-being of individuals and
families. Protection services are usually provided within the context of a
legislative and/or policy framework and include statutory services. These
empower designated people or institutions to take specific actions that are
deemed necessary to protect the integrity and well-being of the person
within the social context of the family and community.

Protective services work towards having families, children and individuals

living in a safe and nurturing environment where their rights are promoted
and their well-being is ensured.

• Rehabilitation services
Rehabilitation services are aimed at improving and maintaining the social
functioning of clients whose functioning is impaired as a result of injury,
disability or any chronic condition. In addition to improving the quality of life
of an individual, rehabilitation services are an effective way of reducing the
demands on families and publicly funded support systems. Services are
provided in a wide range of settings, including the home, service agencies
and residential facilities.

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 The vision for rehabilitation services is to enable clients to maximise their
functional abilities, minimise the impact of their impairment and maintain a
healthy, independent lifestyle.

• Continuing care services

Continuing care services are those services that maintain or improve the
physical, social and psychological well-being of individuals who, for a variety
of reasons, are not able to care for themselves fully. The goal of continuing
care is to improve their independence and quality of life. Continuing care
requires a progressive and flexible system that allows people to access all
the services that they need.

Continuing care services work toward meeting needs in the least intrusive
manner possible, and provide the greatest opportunity for lasting well-being
and functional independence.

• Mental health and addiction services

These services encompass the area of mental health, addiction and family
violence through prevention, treatment and aftercare, delivered as an
integrated programme to enable the affected to receive the care and support
they need to live optimal lives.

These services work towards assisting people to live balanced lives by

promoting, protecting and restoring their mental well-being.

10.2 Nature and scope of developmental social welfare services

This section will provide the scope of services in terms the above classification
as well as the target group.

34
10.2.1 Services to children

• Policy and legislative framework

Services to children are rendered in terms of the Child Care Act, 1983.
The Children’s Bill is currently being debated in Parliament and this
piece of legislation has far reaching service delivery implications. The
Policy on the Transformation of the Youth and Child Care System also
informs service provision to children, and there are various international
conventions that inform policies relating to services to children. These
include the -
o UN Convention on the Rights of the Child
o African Charter on the Rights and Welfare of the Child
o Hague Convention on International Child Abductions
o Hague Convention on Inter-country Adoptions
o UN Protocol to Prevent Trafficking in Persons.

• Prevention services
Early childhood development (ECD) services include the establishment
and registration of facilities for children under six years old, and the
monitoring and evaluation of services. Social Development also works
with cases that come before the family advocate.

• Protection services
Child protection services are aimed at preventing the abuse, neglect and
abandonment of children. Programmes are aimed at protecting and
promoting the well-being of children, especially those in difficult
circumstances. These include services to children who are the victims of
child labour and the commercial sexual exploitation of children; services
to children affected and infected by HIV and Aids; international social
services including inter-country adoptions, and intermediary services in
criminal court cases.

35
 • Rehabilitation services
These include services to children living and working on the streets, such
as the registration of, and provision of services in, shelters and drop-in
centres for street children.

• Continuing care services

These include foster care services, adoption services, residential care
services (which include the establishment, registration and management
of children’s homes and places of safety), reunification services and
aftercare services.

10.2.2 Services to families

• Prevention services
Life-skills programmes, parenting skills programmes, and services in
terms of the Maintenance Act are all prevention services in this category.

• Mental health promotion

These include family preservation and family reconstruction services
(which are aligned to the Moral Regeneration Movement), marriage and
family counselling/guidance, family counselling services in respect of
divorce and mediation services.

10.2.3 Probation services

• Legislative and policy framework

Services to children and adult offenders are rendered in terms of the
Probation Services Act, 1991, and the Criminal Procedures Act, 1977.
The Child Justice Bill will impact broadly on the manner in which
probation services are rendered to children under the age of 18 years.

36
There are also a number of international conventions that inform
probation services including the -
o The Beijing Rules (UN Rules for the Administration of Juvenile
Justice)
o United Nations Standard Minimum Rules for the Protection of
Juveniles Deprived of their Liberty
o The Riyadh Guidelines (UN Guidelines for the Prevention of
Juvenile Delinquency) etc.

• Prevention services
These include crime prevention services.

• Mental health promotion

Restorative justice services such as victim offender mediation
Assessment services for children and adults in conflict with the law
Pre-sentence services to children and adults
Pre-trial services to children and adults
Family group conferencing
Diversion programmes
Investigations on removal from residence in terms of the Land Rights Act
Alcohol Safety School as a sentencing option.

• Continuing care services

Correctional supervision
Community sentencing
Pre-trial services, e.g. home-based supervision
Parole services, including medical parole
Establishment and management of places of safety and secure care
centres for children awaiting trial.

37
10.2.4 Services to the youth

• Legislative and policy framework

Social development services to the youth are guided and informed by the
following sector-specific legislation, policies and international protocols:
o National Youth Commission Act, 1996
o National Youth Policy, 2000
o National Youth Development Framework 2002-2007
o National Youth Service Implementation Plan
o National Youth Service Framework

• Prevention services
Included here are education and awareness programmes on HIV and
AIDS, life orientation and substance abuse, among other things.
Capacity building through information and life-skills programmes
(including development of soft skills) is crucial.

• Mental health and addiction

There are integrated programmes for youth involved with substance
abuse and other forms of addiction, including gambling and sexual
addictions. Comprehensive services to girl children, particularly those
who are victims of violence and abuse, include counselling.

• Continuing care services

These include programmes for young people with disabilities, particularly
the poor and vulnerable, young people with special needs, those in
conflict with the law, and those living on the streets.

38
10.2.5 Prevention and treatment of substance abuse

• Policy and legislative framework

Social work services are rendered, in terms of the Prevention and
Treatment of Drug Dependency Act, 1992, to children, young people and
adults who are addicted to substances. This Act is under review to
broaden the scope of its applicability. The Mental Health Care Act,
2002, also applies, as do the aims of the United Nations Decade against
Drug Abuse (1991-2000).

• Prevention services
These include programmes for the prevention and treatment of
substance abuse, community awareness programmes and the
implementation of the National Drug Master Plan.

• Mental health and addiction

Services include the establishment, registration and monitoring of
treatment centres, aftercare services to people who have substance
abuse problems, and counselling for people addicted to substances and
their families.

• Continuing care services

Management of government treatment centres.

10.2.6 Services to women

• Policy and legislative framework

Social work services are rendered in terms of the Prevention of Domestic
Violence Act, 1998, the Divorce and Mediation Act, 1979, the
Maintenance Act, 1998, and the Criminal Procedures Act, 1977, as well
as the Convention on the Elimination of All Forms of Discrimination
against Women (CEDAW) and the Beijing Platform of Action.

39
 • Prevention services
These include the prevention of gender-based violence, trafficking in
human bodies and abuse of the ageing population; promotion of CEDAW
objectives and girl child programmes; women’s empowerment and
development services; education and training; and recreational
programmes.

• Mental health promotion

These include victim empowerment programmes (VEPs), services to
perpetrators of domestic violence and counselling services.

• Protection services
Services include those offered to victims of domestic violence and
gender-based violence, the establishment (with other departments) of
victim support centres, referral to both physical and mental health
services, and home help services.

• Continuing care services

These include the establishment and management of shelters for abused
women and children.

10.2.7 Services to older persons

• Policy and legislative framework

Services to older persons are provided in terms of the Aged Persons Act,
1967. The Older Persons Bill is currently being debated in Parliament.
International conventions that inform services in this category are the -
o Vienna Declaration (1982)
o United Nations Global Targets on Ageing (1994)
o UN Declaration on the Rights of the Elderly (Resolution 46/91)
o African Union Framework and Plan of Action on Ageing (2004)

40
 o Madrid Plan of Action for Older Persons 2002
o AU Policy Framework and Plan of Action on Ageing (2004).

• Prevention services
These include the implementation of international conventions, the
dissemination of information, raising awareness about ageing being a
part of the life cycle, community education and information regarding the
abuse of older persons, the promotion of intergenerational programmes
to keep older persons in the community for as long as possible, and
early intervention programmes to promote the well-being of older
persons.

• Protection services
These include preventive actions and interventions in respect of the
abuse of older persons, awareness and advocacy programmes on the
rights of older persons and home help services.

• Mental health promotion

The provision of community services for older persons, including day
care, luncheon clubs, the establishment of service centres and
counselling services fall in this category.

• Continuing care services

Services include screening for admission to residential and other
facilities, the registration and management of residential care for older
people, supported/assisted living, home and community-based care and
respite care.

41
10.2.8 Services to people with disabilities

• Legislative and policy framework

Services are rendered to people with disabilities in terms of the
Integrated National Disability Strategy and the Mental Health Act, as well
as international conventions such as the -
o UN Rules on the Equalisation of Opportunities for Persons with
Disabilities
o Disability Rights Charter of South Africa
o UN Declaration on the Rights of Disabled Persons

• Prevention services
These include promoting the inclusion and mainstreaming of people with
disabilities, the rights of people with disabilities, awareness of disability
issues, and the accessibility of services, community and public
resources; the prevention of discrimination against people with
disabilities; programmes for the early identification of genetic disorders
and awareness regarding the prevention of the transmission of genetic
disorders; life-skills and capacity-building programmes; and skills
development services.

• Rehabilitation services
Services to people with chronic illnesses like HIV and AIDS, community-
based services like stimulation centres and protective workshops, and
counselling services fall in this category.

• Continuing care services

These include residential care for people with disabilities, respite care
and supported/assisted living.

42
10.2.9 Services to those affected/infected by HIV and AIDS

• Legislative and policy framework

Services are informed by the HIV and AIDS, and STD Strategic Plan for
South Africa 2000 – 2005, and the Social Development HIV and AIDS
Strategic Plan 2004 - 2007 (approved by MINMEC in February 2004).

• Prevention services
These include awareness and prevention programmes, the training of
peer counsellors, facilitating HIV/AIDS awareness and the
implementation of programmes to reduce the risk of acquiring HIV and
AIDS.

• Protection services
The establishment and management of drop in centres, and the
establishment and management of child care forums at community level
fall in this category.

• Mental health promotion

These include the provision of psychosocial and other support to
orphans and vulnerable children and their families, engaging volunteers
and community caregivers to support orphans and vulnerable children
and people living with AIDS, and education, care and support
programmes in the workplace for employees and their families.

• Continued care services

Home and community-based care falls into this category.

This classification of services should not be seen in a linear fashion, but as a

means to facilitate understanding the scope of services that are rendered by a
range of social service providers.

43
Some services are generic and broad based, responding to the full range of
social services across the life cycle from a single point of delivery, and require a
knowledge and skills base that is enhanced through knowledge acquired over
time. Other services are specialist, in which case the focus is on a specific area
of need in which a particular skill is required. It is critical, however, that
knowledge and skills acquired in these specialist areas must be continuously
fed into generic workstreams and policy development processes, and fully
integrated into the broad service delivery network.

11. TARGET GROUPS

The primary target groups of the Department are the poor and vulnerable
sectors of the community. People infected and affected by HIV and AIDS,
people with disabilities and those who have other special needs are
mainstreamed across all the target groups.

Target groups can be delineated in terms of the life cycle as follows:

• Children
Children who are under the age of 18 years and who are abused,
neglected, orphaned, abandoned and/or living in other especially difficult
circumstances.

• The youth
Young people who are between the ages of 14 and 28 years and who
are at risk, in conflict with the law, out of school and/or unemployed.

• Families
Families that are vulnerable, including single-parent, child-headed,
destitute and/or refugee families.

44
 • Women
Vulnerable women including victims of violence, poor and/or
unemployed.

• Older people
Vulnerable older people including those who are abused, frail and/or
indigent.

12. NATURE AND SCOPE OF COMMUNITY DEVELOPMENT

12.1 Purpose

• To facilitate community development services through the human-

orientated and people-centred approaches of participation,
empowerment and ownership of the development actions by the
community to address and prevent deprivation (physical and
psychosocial needs, lack of access to basic material, etc.).

• To render community development services by identifying and

implementing the required interventions in conjunction with the
community development worker, community and other relevant
stakeholders.

12.2 Scope of services

The scope of services for community development is defined in terms of
specific programmes of the Department, as well as the process of
community development, including the nature of interventions in
communities, i.e. –

• Youth development
Socio-economic programmes
Moral regeneration programmes

45
 • Development of women
Women empowerment programmes
Socio-economic programmes for women
Promoting gender issues

• Poverty reduction programmes

Facilitation of development centres
Promotion and facilitation of the establishment of cooperatives
Integrated empowerment programmes, which build the capacity of
the poor to achieve self-reliance
Promotion of access to departmental and other opportunities and
resources
Socio-economic programmes
With other sectors, implementation of the Integrated Sustainable
Rural Development Strategy and the Urban Renewal Strategy
With other stakeholders, facilitation of disaster management
processes.

• Registration and facilitation of NPOs

Registration of community development ventures
Registration of not for profit organisations
Maintaining a database of service providers.

A classification in terms of community development processes would include

the following:

46
• Development of social relationships
Delimitation of the community; gaining their trust and getting to know the
current community services, history, resources and state of the
community.

• Community profiling
Assessment of the community’s structures, historical background, profile
resources, strengths and needs; identification of community leadership;
and strengthening and building of structures that can assist in this
regard.

• Planning and prioritisation

Planning and prioritising of activities required to develop the community
by formulating goals and objectives, assessing the available resources,
setting time frames and compiling budgets.

• Implementation
Facilitation of the implementation of identified development activities,
according to the plans developed by involving the community;
appointment of leaders in the community; mobilisation of resources;
monitoring of implementation; and development and strengthening of
community organisations and leadership within the community.

• Evaluation of implementation
Monitoring of implementation of jointly planned activities, giving feedback
to the community and re-planning actions where required.

• Documentation of activities
Documentation of all interactions and interventions by facilitators and
practitioners for future reference.

47
• Facilitation, integration and coordination
Liaison with social workers on issues relating to specific individuals and
families in the community thereby promoting the integrated approach;
liaison with all relevant role players (e.g. departments/provinces, NGOs,
local community structures, faith-based organisations) and stakeholders
to facilitate intersectoral collaboration and to establish partnerships to
ensure the sustainability of development actions within the community;
and the provision of direct support to communities and administrative
support on community development and related activities. This would
entail the following, among other things:

• Providing inputs for policy development and improvements when

required.

• Maintaining relevant, records on statistics, minutes of meetings,

documents on participatory research, and the administration of
client funds.

• Evaluating projects and other community development ventures in

terms of the evaluation framework and reporting on progress,
trends and shortcomings on a regular basis.

• Participating in various awareness campaigns and public

appearances aimed at educating communities and other
stakeholders on self-empowerment.

• Developing, maintaining and updating databases as required, e.g.

on stakeholders.

• Ensuring that financial measures are adhered to by beneficiary

organisations and structures and monitoring the utilisation of
funds by such institutions, including the following:
o Advising on the procedures for securing funds and
facilitating the processing of financial requests.
o Monitoring the utilisation of funds and reporting regularly on
this.

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 • Disseminating information to communities on social services.

• Keeping up to date with new developments in the community

development field, including the following:
o Studying the legal and policy framework continuously in
order to advise/update stakeholders to ensure that all
actions are in line with the requirements of such policies
and Acts.
o Liaising with other departments and institutions to take
cognisance of the latest developments in the field of
community development.
o Engaging in continuous professional community
development actions as prescribed.

13. SERVICE PROVIDERS/INSTITUTIONAL MECHANISMS

The provision of developmental social services is a collective responsibility of

various role players, including government, non-governmental organisations
and the private sector. The exact nature and extent of involvement in service
delivery differs from province to province and is influenced by history, expertise,
statutory requirements and costs, among other things. Given the range of
service delivery entities for which government is responsible in addition to
policy development and direct service delivery, its monitoring and evaluation
role to ensure that quality services are rendered and to protect the interests and
promote the well-being of clients is critical.

The Department of Social Development has concurrent functional areas of

national and provincial competence. This means that at a provincial level the
Department may determine and formulate policy as well as practice guidelines,
provided that, in line with the principles of cooperative governance, it does not
act contrary to the principles of national policies and prescripts.

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The range of service providers includes -
• national government
• provincial government
• local government
• civil society, including NGOs, CBOs and FBOs
• private sector entities

These service providers also collaborate with other government departments,

clusters such as the Social Cluster and the Justice, Crime Prevention and
Security Cluster, parastatals and other private sector entities in the delivery of
services, with a view to a coordinated and integrated service to the people.

13.1 Roles and responsibilities of the national Department of Social

Development

• Provides strategic direction for social service delivery.

• Ensures the development and implementation of integrated intersectoral
policies and programmes, at both national and provincial level.
• Harmonises central functions with those of other national departments,
provincial departments and other role players.
• Develops quality assurance systems and norms and standards for social
services programmes.
• Develops a uniform framework for the financing of social services
programmes.
• Develops, maintains and coordinates a national social services
information management system.
• Ensures that proper national monitoring and reporting mechanisms are
in place.
• Ensures capacity and institution building in all tiers of government.
• Facilitates parliamentary processes relating to social services.
• Promotes partnerships and linkages with other service partners.

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 • Undertakes international liaison and coordinates the implementation of
international commitments.
• Engages in continuous research projects that assist in informing,
improving, advancing, monitoring and evaluating comprehensive social
services to vulnerable groups.
• Lobbies for adequate provision of resources to ensure social service
delivery.
• Regulates fundraising at all levels of government.
• Markets and promotes the image of the Department.
• Funds national organisations rendering social services in accordance
with the Policy on Financial Awards.
• Reports as necessary to different parliamentary structures on social
services.

13.1.2 Roles and responsibilities of the provincial departments of social

development

• Formulate, coordinate, maintain and review provincial policy and

planning in consultation with stakeholders.
• Review, formulate and administer social welfare legislation within the
national framework.
• Plan, implement, coordinate and monitor the delivery of social services in
accordance with national norms and standards.
• Develop and monitor specific services.
• Facilitate the establishment and maintenance of social services
structures.
• Negotiate and lobby for provincial funding and maintain appropriate
financial management systems.
• Finance social service programmes provided by provincial organisations
in accordance with the national financing policy.
• Undertake, promote and coordinate appropriate operational research.

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 • Maintain an information management system for all services and
programmes.
• Manage and plan a human resource development programme.
• Market and promote awareness regarding social services programmes.
• Facilitate provincial parliamentary processes relating to social services.
• Promote interprovincial relations and develop and maintain intersectoral
and working agreements.

13.1.3 Roles and responsibilities of the district/regional offices

• Manage and coordinate the delivery of services and programmes at

district municipality level.
• Identify service needs and set priorities.
• Ensure integration of service with municipalities through integrated
development plans.
• Monitor and evaluate service delivery.
• Implement services and programmes.
• Facilitate the establishment and maintenance of social services
structures within the district municipality/region.
• Manage financial and information systems at district municipality/regional
level.
• Finance and monitor social services programmes in accordance with the
Policy on Financial Awards.

13.1.4 Roles and responsibilities of local offices/service delivery points

• Identify local needs and resources at local and community/ward level.

• Respond speedily to needs of individuals, families and communities.
• Promote community participation and mobilisation.
• Coordinate action at community level.
• Create awareness with regard to available services and prevention of
social pathologies.

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 • Provide direct services to clients

13.2 Local government

• Works in partnership with other spheres of government in the provision

of social services.
• Creates comprehensive and integrated database and information
management systems.
• Recognises and addresses specific service needs as per Schedule 4 of
the Constitution.
• Formulates integrated development programmes that incorporate social
development issues.
• Promotes access to services by providing infrastructure to bring services
closer to clients.
• Develops and implements disaster management programmes.

13.3 Roles and responsibilities of service partners

13.3.1 National bodies

• Represent their particular constituencies on structures such as policy

making and coordinating programmes at all levels of government.
• Build the institutional capacity of provincial NGOs, local CBOs and
FBOs.
• Resource mobilisation for own and affiliates’ programmes and activities.
• Carry out research.
• Develop policies and programmes for identified service delivery targets.
• Participate in the continued professional development of their staff.
• Promote linkages and partnerships.
• Do the necessary advocacy and lobbying.
• Carry out monitoring and evaluation.

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13.3.2 Non-governmental organisations and faith-based organisations

• Work with the government to provide services.

• Render generic and specialised services.
• Identify service needs and set priorities.
• Lobbying and advocacy.
• Marketing and fund-raising.
• Research.
• Supervise service personnel.
• Training.
• Partner with emerging organisations for skills transfer.

13.3.3 Community-based organisations

• Identify local needs and resources.

• Respond speedily to the needs of individuals, families and communities.
• Promote community participation and mobilisation.
• Coordinate action at community level.
• Create awareness with regard to available services and prevention of
social pathologies.
• Promote grassroots participation in decision making and direct service
delivery.

13.3.4 Private practitioners/consultants

The following services are provided at a fee:

• Counselling and therapeutic services
• Adoption services
• Training, facilitation and capacity building
• Employee assistance programmes
• Research projects

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 • Policy development and project management
• Facility management

All the above service providers must ensure that services are integrated,
coordinated and managed to maximise the benefit for communities.

14. SUPPORT FOR SERVICE DELIVERY

In order to implement this Service Delivery Model effectively, a range of human,

financial and other infrastructural resources are required. Ratios and
benchmarks will be determined by norms and standards. Different functions
and areas of work will, however, require different skills and competencies,
drawn from the human resource list below:

14.1 Human resources

The following table illustrates the clustering of human resources in social

service provision:

Category Human resources required

Managers Administrative managers

Professional managers
Professional Social workers
personnel Youth workers
Probation officers
Community development workers
Child and youth care workers
Assistant Social auxiliary workers
personnel Assistant probation officers (APOs)
Auxiliary child and youth care workers

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 ECD caregivers
Home and community-based caregivers
Sign language interpreters
Professional Medical practitioners
support Physiotherapists
Speech therapists
Occupational therapists
Nursing personnel
Psychologists
Psychiatrists
Researchers
Information management specialists
Administrative Information technology specialists
support Administrative officers
personnel Typists
Drivers
Data capturers
Cleaners
General assistants
Security personnel
Other Volunteers
Temporary Student social workers
personnel Interns
Contract workers
Escorts for vulnerable groups
Student, child and youth care workers

It should be noted that this list is not exhaustive.

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14.2 Education, training and development

This is a critical element in the provision of integrated and holistic education

and training, and the development of a human resource cadre for effective
service delivery. It must occur at the following levels:
• Professional education
• Continuous professional development
• Skills training for the implementation of the Service Delivery Model
• Ongoing in service training.

Partnerships must be fostered with training providers to ensure the

development and provision of a relevant curriculum that addresses the
developmental needs of social service professionals at different levels, in order
to meet the demands for services.

This also entails research, which should inform debates about policy
formulation, the development of models for training and service delivery within
the South African context, as well as monitoring and evaluating the impact of
current practice.

14.3 Compliance with professional ethics

Social service professionals are governed by a legislated code of conduct, the
contravention of which can result in disciplinary measures being instituted
against them. The code covers all professional services and includes the
maintenance of confidentiality, the frequency of contact with clients based on
an intervention programme as agreed with clients, keeping acceptable records
of all their interaction with clients, etc. This will also determine the nature of
infrastructural needs of professional personnel.

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14.4 Infrastructure and equipment

To be able to function effectively, certain basic infrastructure and equipment is

critical for social service professionals, particularly social workers who are
legally obliged to provide services in a particular manner. Failure to do so
renders them liable to disciplinary action.

Infrastructure required includes the following:

• Offices accommodation
• Facilities for care (e.g. children’s homes, places of safety, homes for the
aged) and service centres, which can be established by the state and
either managed by same or outsourced to the non-governmental or
private sector.
• Transport to conduct visits to clients and communities
• Furniture that is suitable for interviews with clients
• Systems infrastructure (information technology): To ensure service
integration and to monitor and evaluate services, an integrated
information management system is required for both the government and
the non-governmental sector.
• Telephones
• Fax machines
• Photocopiers
• Filing cabinets to keep clients’ records in safety

This list is not exhaustive and does not include the infrastructure required for
numerous facilities and other community-based services that may require an
array of other equipment and infrastructure suitable for the needs of clients, e.g.
older people, people with disabilities, etc.

14.5 Information management

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It is legally expected of social workers and other social services professions to
keep records of their interaction with their clients and the treatment process.
This is critical to ensure accountability and maintenance of a high standard of
care on the part of the social service professions. It is also meant to ensure
that the interests of clients are protected and enable the professional to follow
the progress of the client and to plan future intervention programmes.

Information management is also critical for the measurement of the

achievement of organisational goals, and to ensure that objectives are being
met in line with the strategic objectives of the organisations. This further assists
with the documenting processes for research and learning, in order to record
best practices, for monitoring and evaluation of service provided by
practitioners, and for provision of training and guidance to new entrants to the
profession. Without effective information management it would be impossible
to plan service delivery that meets the needs of the population.

Traditional administrative methods have currently collapsed under the pressure

to deliver - there is no standardisation or quick and easy access to information.
Case files are not updated and management feels disadvantaged by the lack of
cumulative and comparative data. The major results are that there is little
accountability, few statistics to support planning and decision making, and
information is not effectively managed.

Social service professionals must have a management and administrative

system that facilitates compliance with standards set for service delivery. This
raises two critical factors, namely the need for greater efficiency in dealing with
clients, including case and record management; and ethical issues in relation to
the use of an electronic management system within the social work profession.

This would require that certain prerequisites be met, such as understanding the
needs of users, and making sure that adequate resources are allocated and
change management processes are in place. Social service practitioners and

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managers need to be innovative to make sure that there is administrative
efficiency. Extensive training and capacity building is imperative to ensure that
information technology becomes an integral part of social service practice.

Support for effective service delivery extends beyond available human, financial
and infrastructural resource. There also has to be a readiness to embrace new
and changing technologies so that services delivery can make the shift from a
paper-based profession to an electronic one.

15. NORMS AND STANDARDS

15.1 Rationale for norms and standards

The White Paper for Social Welfare, Notice No. 1108 of 1997, states that the
government has a responsibility to determine and regularly review basic
guidelines for norms and standards. The norms and standards are required to
ensure respect for human rights, social justice, redress and creating
opportunities for the development of benchmarks for social service
practitioners.

Under the Constitution, national government shares the responsibility for the
provision of basic social services with the provincial governments. National
government may determine appropriate, essential or minimum levels and
standards for services. The Constitution provides for the setting of norms and
standards to ensure equal access to government services. In addition, human
rights instruments such as the UN Convention on the Rights of the Child set out
minimum service delivery standards for various groups.

The main reasons for having norms and standards are as follows:
• To increase operational efficiency and effectiveness by measuring
performance against them

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• To standardise the quality of service given to all citizens at national,
provincial, regional and district levels

Monitoring and evaluation tools for the management of norms and standards
must be introduced.

15.2 Establishing norms and standards

When norms and standards have been developed the result should be
predictable service delivery and gains in efficiency. For the purpose of this
exercise, the focus is on generic norms and standards. These are meant to
determine the basic requirements for generic service delivery for all social
service professionals, rather than for specific services. To achieve this, the
following factors should be taken into account:

15.2.1 Social workers, auxiliary and development workers

• Population size and density
• Distance
• Human Development Index
• Case/project load size
• Presidential nodes
• Competencies
• Poverty mapping
• Prevalence of HIV and AIDS
• Availability of other service providers
• Specialist nature of service
• Equity
• Infrastructure
• Span of control
• Number of reports
• Legal and policy obligations

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15.2.2 Child and youth care workers in residential facilities
• Number of children
• Shifts
• Nature of the programme
• Nature of the cases
• Intensity of supervision
• The type of child
• Age cohort
• Distance to related services
• Span of control
• Number of reports
• Legal and policy obligations

15.2.3 Probation workers and assistant probation officers

• Case load size
• Number of reports
• Monthly arrests
• Number of diversion/prevention programmes

All or most of these factors need to be taken into account when generic norms
and standards are developed. However, this Service Delivery Model will
determine norms and standards based mainly on population size, and as far as
possible will integrate urban/rural imperatives.

In addition, it needs to be noted that for each service area, for example older
people, more specific minimum norms and standards for particular types of
services such as residential care services will still need to be determined by line
functionaries at the national Department.

15.3 Generic norms for community-based and residential care services

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The established national and international norm for the ratio of social workers to
population is 1:5 000. This norm applies to developed countries but, because
of the high levels of poverty and deprivation in South Africa, it has to be
adjusted to reflect different conditions and needs.

The proposed norms for social workers to population are therefore as follows:
• 1:5 000 Urban (Gauteng)
• 1:4 500 Combined Urban/Rural (KwaZulu-Natal and
Western Cape)
• 1:3 000 All other provinces

Population is not the only determinant of norms. However, a more detailed

investigation, incorporating other indicators such as poverty levels and distance
(see 15.2 above), will be required in the long term to ensure equitable
distribution of personnel.

The norms for community-based and institutional care can be divided into four
categories. These norms have been tested in practice and are recommended:

CATEGORIES NORMS

1. Organisational capacity governance and management

• Caseload size to case manager 1:60
• Span of control – social/probation/community 1:6
development worker
- Probation worker to APO 1:2
- Residential care staff to residents 1:15
This must be further disaggregated in terms of age, frailty and
disability.

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2. Administrative processes and procedures
• Report writing - generic (process/progress/etc.) 60 min
- court reports 20 reports per month
- probation
• Registration and referral of the file 2 days
• Completing forms 30 minutes
• Registration of facilities and organisation 6 months
• Management/team meetings At least once per
month
• Distribution of minutes Within 7 days

3. Service delivery
• Short-term intervention No more than 12
contacts of 60
minutes each
• Crisis intervention Within 24 hours
• Assessment of children awaiting trial Within 48 hours
• Completion of statutory service No more than 6
months
• Admission to residential facility 2 to 3 hours
• Medical assessment Within 72 hours
• First contact with client after admission by professional Within 24 hours
person
• Multidisciplinary evaluation of client Within 4 weeks
• Review panels Every 6 months
• Supervision 60 minutes
• Interviews 45 minutes
• Group work 60 minutes
• Time spent in waiting room before making contact No more than 1/2
hour

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 • Response time for appeals 48 hours
• Response time to acknowledge enquiries/complaints Within 5 days

4. Human resources and organisational development

• Time taken to fill vacancy Within 3 months
• Orientation and induction Within the first week
• Staff training and development (CPD) 20 points per annum
• Staff on probation Not more than 12
months

The provinces will determine their own norms based on the above factors as
well as considerations that are unique to their operational environment.

16. WORKSTREAMS

To deliver effectively on the functions outlined in this Service Delivery Model,

particularly in the national and provincial departments of social development,
the following functions and workstreams are proposed for developmental social
services:

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 DEVELOPMENTAL SOCIAL SERVICES
SOCIAL WELFARE WORKSTREAMS
PROFESSIONAL COMMUNITY
SERVICES SUPPORT DEVELOPMENT

CHILDREN QUALITY ASSURANCE POVERTY

 Families  Quality assurance  Income generation

 Alternative care  Norms and standards  Food security
 Statutory foster care  Human rights
 ECD and partial care violations
 Adoption
 Child protection
RESEARCH, POLICY HIV AND AIDS
SPECIAL NEEDS AND COORDINATION

 Older people  Research  Home/community-

 People with disabilities  Policy planning based care and
 Substance abuse  Coordination support
 Women  Services to people
 infected and
 The youth affected
RESTORATIVE NPO FUNDING
SERVICES AND SUPPORT

 Youth care and  Funding service DEVELOPMENT

probation services providers FACILITATION
 Social crime  Monitoring
prevention and VEP  NPO Support
 Child justice  Youth
development
 Development of
women
 NPO development

These workstreams represent professional services as well as professional

support required to render these services. The grouping of functions will differ
from province to province depending on need, available resources, provincial
and regional demarcation of functions, etc. However, it is important that there
is as much structural alignment as possible between the national and provincial
departments, as this will facilitate the coordination and integration of services,
and improve communication and joint planning.

17. IMPLEMENTATION AND CHANGE MANAGEMENT PLAN

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The success of the Social Development Service Delivery Model depends
largely on continuous review, customisation to suit settings of implementation,
and identification with and total ownership by the sector. This is a sector model
and the Department of Social Development is a lead stakeholder in facilitating
processes for initiation and implementation of the model.

The model represents a shift or change in the sector, so its implementation

cannot be left to chance. It must be planned, guided and facilitated. This
section of the document addresses implementation issues and discusses the
following aspects:
• Leadership buy-in and resource allocation
• Implementation plan
• Change management process
• Communication plan

17.1 Leadership buy-in and resource allocation

Leadership buy-in and resource availability are crucial if the model is to be

implemented successfully. Priority must be given to the following:

• The model should be presented to the MINMEC for approval.

• The model should be presented to the highest appropriate decision-

making structures of provinces, municipalities and civil society
organisations for approval.

• Once leadership approval has been received, a process setting up the

Model Implementation Advisory Team (MIAT) should be initiated
immediately at all levels as discussed below.

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 • The MIAT, in consultation with leadership and following appropriate
internal protocol, should cost model implementation and seek budget
approval. Even if only a portion of the funds required is made available,
implementation should start. The model can be implemented in phases.

• Resources allocated should go beyond finance to include people, time

and space.

If leadership buy-in is lacking and necessary resources are not allocated, the
model cannot be implemented, and will merely gather dust while the sector
regresses 10 years and an ever-increasing backlog builds up.

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17.2 Implementation plan

The Department of Social Development is expected to continue to be a leading

stakeholder in the initiation and implementation of the model. However, it is to
be supported by a MIAT.

17.2.1 Model Implementation Advisory Team

A MIAT is to be established at the national, provincial and local levels of the

Department to guide implementation and manage change brought about by the
existence of the model.

The following are some guidelines for constituting an advisory team:

• It must be a small manageable team of not less than five or more than
10 members at each level. The number will depend on resources
allocated to drive this process.

• Individuals appointed to the team must have sufficient time at their

disposal to champion the implementation of the model over a period of
12 months.

• Individuals appointed to the team should, among other attributes, have a

sound knowledge of the sector and social development, a clear
understanding of the model, knowledge of change management, and
impeccable communication and facilitation skills, as well as being able to
operate at all levels of the organisation.

• Even though a representative group of the sector is ideal and

encouraged, it should not supersede availability and competencies.

• The team reports to the Department and is accountable to the sector.

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17.2.2 Scope, role and mandate of a MIAT

• A MIAT is not an implementing agency; its role is limited to advise,

guide, consult, share and inform. It is a change agent that champions
implementation.

• A MIAT is not an enforcement agency or watchdog, but a catalyst that

seeks to promote standardisation across the sector and identify best
practices.

• It provides leadership and strategic directions in the implementation of

the model.

• It facilitates and maximises identification, ownership and implementation

of the model by all stakeholders in the sector at both organisational and
individual level.

• It monitors, evaluates and reports progress on the implementing of the

model to the sector.

17.2.3 Process for phasing in the model

• Phase 1: Customisation or development of own model

o Some provinces or municipalities may prefer to develop their own

model based on this one.

o Others may simply customise this model to suit their unique

characteristics.

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 o Some stakeholders such as institutions and civil society
organisations may identify practice elements of the model and
align their strategies accordingly.

Whatever choice is made, the MIAT should be readily available to assist on

request.

• Phase ll: Assessment of the current state compared to the envisaged

model end state.

o Stakeholders may want to assess their current state of practice in

order to determine gaps and map the road to model
implementation.

o Tasks, implementation processes and resource requirements can

be determined on the basis of gap-analysis.

o Time frames and performance indicators can be determined.

• Phase lll: Model alignment

Stakeholders may choose to align their model with some or all of the
following:

o Alignment with organisational strategy: The choice of aligning

the model with strategy ensures that the model informs and is
informed by the future end state of the stakeholders’ business or
reason for existence.

o Alignment with organisational policy: When the model begins

to inform the stakeholders’ organisational policy, the sector can be
sure that it will be implemented.

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 o Alignment with business plan: When the model begins to
inform stakeholders’ business plans, the sector will be on the road
to successful implementation of the model.

o Alignment with organisation culture: When the model begins

to inform the way provinces, municipalities, institutions and civil
society organisations do their business, the sector will have
embraced and truly identified with the model.

• Phase lV: Change management

o The existence of the model represents change that must be

managed at all levels of the sector.

o Clearly identifiable levels of change must be managed at

organisational and individual levels.

• Phase V: Continuous monitoring and evaluation.

o Tracking the progress made in acknowledging and celebrating

past achievements and embracing new practices must be an
integral part of implementation.

o Identifying and celebrating short-term achievements at both

organisational and individual levels will be a motivator that makes
the task of change seem less daunting.

o Continuous assessment of whether the model is implemented as

intended and its impact will assist in measuring gains and
improving model implementation.

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The phasing in of the model described here is not a linear process. It is
dynamic and acknowledges the value of concurrently implementing elements
as needed. No one phase is more important than any other. They are all
negotiable and renegotiable until the ultimate goal of the model - a better life for
all - is achieved.

17.3 Change management

Special attention is paid to detailed guidelines for managing change in the

process of phasing in the model. Consideration is given to two levels of
change, organisational and individual. The MIAT is expected to guide this
process.

• Broad considerations for change at a provincial, municipal or

organisational level

o Ensure that the model is integrated to the organisational strategy,

policy, business plan and informs organisational culture.

o Ensure that organisational structure is redefined in terms of its

appropriateness to support implementation of the model.

o Ensure that roles in the reviewed organisational structure are clearly

identified and defined.

o Ensure that competency requirements are identified for the various

roles.

o On the basis of these role competency requirements, ensure that an

organisational and sector competency model is developed.

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 o Ensure that roles are evaluated to determine their complexity, grade
and monetary value.

o Ensure that existing employees are assessed against the newly

defined appropriate role competency requirements so as to
determine individual competencies, competency gaps and
development plans, and to ensure appropriate placement in correct
roles or jobs.

o On the basis of individuals’ development plans, workplace skills plans

and organisational competency models, develop organisational and
sector learning, development and training strategies.

o Make sector learning, development and training strategies accessible

to the Health and Welfare SETA and sector training service
providers.

o Develop a performance management system that has a relationship

with the learning, development and training strategy; career
management; employment equity plan and human resources
retention strategy.

o Review and align workflow processes, systems and procedures in

line with the model.

• Broad considerations for change at an individual level

It cannot be assumed that changing organisational strategies, policies,

systems and procedures will guarantee successful implementation of the
model. In all this there are people, who should be involved right from the
beginning and assisted to make the necessary changes at all levels,
whether intellectual or emotional. It cannot be assumed that because of

74
their role as agents of change they will make an automatic switch. They are
only human, and normal responses will range from denial, shock, retreat
and resistance, to commitment and acceptance. As with organisational
change, individuals must be assisted through a planned process to navigate
this transition curve.

• Broad considerations for people change management process

o People in the sector should be involved from the conception of the

model to the implementation and monitoring and evaluation phases.
They must own the process and model, and see it as their product
not the Department's.

o Awareness must be raised, and people must be educated and

informed about the model, its intentions and implications for change
at both organisational and individual level. Involvement in
conceptualisation should not be equated with understanding.

o The period allocated to complete the change process should be

clearly set out. Change is always unsettling, but will be worse if it is
perceived to be timeless.

o The implications of the change must be clearly communicated, with

old and new, losses and gains, and current and future expectations
set out in detail.

o Feelings and responses at every phase of change must be

acknowledged as normal, and individuals must be assisted to
progress rather than being labelled as resistant to change. In the
process, it must be remembered that people respond in different
ways to change, and a one-size-fits-all approach will not work.

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 o Staff must be given regular updates on the change process. Both
progress and what remains to be done must be clearly indicated.

Everyone has the capacity to change. All that is needed is to help people see
that the change will bring more benefits than disadvantages.

17.4 Communication plan

It is impossible to place too much emphasis on the importance of

communication throughout the transformation process. Communication
strategies proposed here are at three levels: sectoral, organisational and
intersectoral.

[Link] Sector level communication strategies

• Consultative forum: Consultative forum meetings at national and

provincial level should be convened every six months or whenever
necessary. The MIAT should coordinate these meetings to ensure that
they are structured to include process reports, the review of plans, the
identification of challenges and lessons, and the celebration of
achievements.

• Regular updates to the sector: The MIAT should produce six-monthly

updates to be posted on the web site of the national Department for the
sector to access easily.

• Media statements: Through the communications unit of the

Department and the spokesperson for the Minister, regular statements
regarding strategic issues of achievement in the implementation of the
model should be issued in both print and electronic media.

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 • Launch the model: Perhaps this should be the first communication
strategy to be implemented once the model has been approved by the
MINMEC.

17.4.2 Organisational level communication strategies

The proposed communication strategies are applicable at provincial,

municipality and individual organisation level.

• Consultative sessions with employees: Depending on the size of the

organisation and the need for communication, such sessions should be
held regularly, preferable once a quarter.

• Existing internal communication tools: Provinces, municipalities and

organisations have their own internal modes of communication such as
intranets, circulars, magazines and periodicals. These should be used to
communicate progress.

• Workshops and seminars: It may be necessary to hold workshops or

seminars to address specific aspects of implementation. Such contact
points with staff members can also be used to give updates on progress
made and implementation plans.

17.4.3 Intersectoral level communication strategies

Communicating the model and its implementation across sectors is considered

crucial in successful implementation. Existing structures should be used to
reach other sectors. There is no need to establish an independent
communication mechanism.

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18. MONITORING AND EVALUATION

Effective monitoring and evaluation of the programmes and activities of the

Department and sector is essential for measuring the success of developmental
social service provision. These functions assist service providers at all levels to
manage their programmes and activities better by providing timely feedback on
whether or not services provided respond to the needs of clients, and
furthermore, whether they are consistent with the overall realisation of the
objectives of the Department. The feedback provided can be used to improve
current operations and to provide the basis for future strategic planning.

The following criteria are among those to be used for monitoring and evaluating
implementation of the Service Delivery Model:
• Reports to the Department
• Client satisfaction surveys
• Quality assurance

18.1 Reports to the Department

The service areas responsible for social service provision will be the central
vehicle to report on the service delivery targets, the results of implementing the
model, and the achievement of significant milestones. Specific reporting
guidelines will be developed and made available to all service providers. These
guidelines will serve as accountability frameworks for each service area and will
indicate who is accountable to whom, and for what purpose.

The guidelines will include the following:

• Performance contracts
• Individual work plans
• Quarterly evaluation reports.

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18.2 Client satisfaction surveys

The Department will target both internal clients (service providers) and external
clients (consumers of social services) in assessing the level of satisfaction in
the utilisation of services. The client satisfaction information as well as
performance of the service providers will guide operational decisions to
continually improve actual service delivery.

The following issues will be addressed in order to increase the level of client
satisfaction:
• Range of services available
• Competency of service providers
• Continuity of care
• Access to services

18.3 Quality assurance

Moving from a “traditional model” of social service delivery to a more fully

integrated developmental social service system requires organisational and
procedural changes. The Department is committed to reforming existing
procedures, legislations, policies and attitudes until service providers are more
responsive to the needs of their clients.

The recipients of social services are entitled to know what they can expect from
the Department. The Service Delivery Model serves as a basis for the
determination of appropriate norms and standards. This will in turn serve as a
basis for determining the expected quality of service.

The Quality Assurance section within the Professional Support component of

the workstream will provide support to the service delivery components. This
section will develop a national quality assurance framework, which will clearly
determine the indicators that will be used to measure the quality of social

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services provided. Service managers will be expected to monitor compliance
with set standards on an ongoing basis and address issues which impact on the
quality of service.

19. CONCLUSION

This document provides a framework for developmental social services in the

country. It further provides guidelines on the range of services that must be
provided in both community development and social welfare. The approach to
service delivery, however, should be integrated and holistic, so that it assists
the Department to achieve its goal of a better life for all South Africans.

As indicated earlier, this document must be read in conjunction with others such
as the Community Development Framework, the Policy on Financial Awards,
the White Paper on Social Welfare, and relevant policies of the Department.

The Service Delivery Model will set the basis for the design and costing of
generic norms and standards for developmental social services, which will
require input from various experts. Once generic norms and standards have
been developed and costed, they will be used to monitor implementation at
both national and provincial level.

This document does not purport to cover all aspects of service delivery, as
some services are still being developed. It will be reviewed and updated from
time to time to ensure that it is in line with new developments.

It is, however, critical that the Service Delivery Model be utilised to reposition
the Department so that the services it provides are understood by the country
as a whole. The model should be used as a yardstick to measure the
performance of the Department and its partners.

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The Service Delivery model should be further unpacked at all levels of
government in accordance with the defined responsibilities of various
stakeholders, so that strategic objectives, outputs and targets are formulated to
operationalise the model.

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