Guideline For Municipal Competency Levels: Chief Financial .

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1 July 2007Guideline for Municipal CompetencyLevels:Chief Financial OfficersMunicipal Regulations on Minimum Competency Levelsissued in terms of theLocal Government: Municipal Finance Management Act,2003

IntroductionThis guideline is one of a series to explain the Local Government Municipal FinanceManagement Act, 2003: Municipal Regulations on Minimum Competency Levels foraccounting officers, senior managers, finance officials, and other officials responsible forsupply chain management of municipalities and municipal entities. Sections 83, 107 and 119of the MFMA require officials to meet prescribed competency levels in financial and supplychain management and should be read with the Municipal Regulations on MinimumCompetency Levels. This guide also complements the performance managementregulations issued under the Municipal Systems Act by the Department of Provincial andLocal Government.Minimum competencies: chief financial officersCompetencies required of every chief financial officer of a municipality and municipal entitymust be understood within the broader context of the MFMA. Specific roles andresponsibilities are assigned to the chief financial officer of a municipality in chapter 9 of theMFMA and additionally in a number of sections throughout the Act. In the case of amunicipal entity, chapter 10, Part 5 prescribes general duties of officials exercising financialmanagement responsibilities and where it appoints a chief financial officer these competencyrequirements will apply to that person.The Regulations require the chief financial officer to meet minimum competencyrequirements in the three categories below and each is discussed further in this guideline: Proficiency in the competency areas, as prescribed in the Regulations and described inthese guidelines (see table)Higher education qualificationWork related experienceThe three categories are further divided into two streams according to the municipal capacity(High, Medium and Low as prescribed) and budget size. Chief financial officers employed byall low capacity municipalities, medium capacity municipalities with an annual budget belowR500 million, and municipal entities with an annual budget below R500 million have lessstringent competency criteria to apply than the remaining municipalities and municipalentities with higher capacity and budgets.Please note that municipal capacity was prescribed for the implementation of the MFMA andpublished in government gazette No 26511 on 1 July 2004.Financial and supply chain management competenciesGenerally speaking, the skills required of officials are categorised into 11 competency areas,they are:1.2.3.4.5.6.7.8.9.10.Strategic leadership and managementStrategic financial managementOperational financial managementGovernance, ethics and values in financial managementFinancial and performance reportingRisk and change managementProject managementLegislation, policy and implementationStakeholder relationsSupply chain managementGuideline for Municipal Competency Levels: Chief Financial OfficersMunicipal Regulations on Minimum Competency Levels1

11. Audit and assuranceThe table contained within this guideline provides a comprehensive guide to the knowledgeand skills required of the chief financial officer to effectively implement the MFMA, in each ofthe 11 competency areas. The knowledge and skills are drawn directly from the MFMA andthe roles and responsibilities assigned or delegated to the official. The table has been usedto identify relevant Unit Standards on which the Regulations are based.The Regulations prescribe Unit Standards (US ID) that match the skills and knowledgerequired in respect of each competency area. In some cases the Unit Standard prescribeddoes not fully address the range of skills required for a particular competency area. Thetable however, provides comprehensive guidance on the required skills and knowledge andin time Unit Standards will be developed or expanded to address any gaps. It is importanttherefore, to read both the Regulations and these guidelines together to ensure officials areappropriately skilled for their positions.Unit Standards referred in the Regulations are registered by the South African QualificationsAuthority (SAQA) and form part of the following higher education qualifications: The Certificate in Municipal Financial Management (Qualification ID No. 48965)National Diploma: Public Finance Management and Administration (Qualification ID No.49554)The Unit Standards specify minimum training outcomes and provide guidance on the specificabilities that the official must demonstrate.Higher education qualificationsA chief financial officer must have or attain by 1 January 2013 a higher educationqualification as follows:QualificationMunicipal capacity and budgetAt least NQF level 6, or Certificate in Municipal Financial Management(SAQA qualification ID No. 48965) At least NQF level 7, orChartered Accountant (SA) All Low capacity municipalitiesMedium capacity municipalities with annualbudgets of a value below R500 million for thecurrent yearMunicipal entities with annual budgets of avalue below R500 million for the current yearAll High capacity municipalitiesMedium capacity municipalities with annualbudgets of a value equal to or above R500million for the current yearMunicipal entities with annual budgets of avalue equal to or above R500 million for thecurrent yearForeign qualifications obtained outside the Republic of South Africa and qualifications thathave not been accredited by the South African Qualifications Authority (SAQA) held byexisting officials and applicants for new positions must be submitted to SAQA for evaluation.“NQF” refers to the National Qualifications Framework prescribed by regulations issued interms of the South African Qualifications Authority Act, 1995 (Act 58 of 1995).Guideline for Municipal Competency Levels: Chief Financial OfficersMunicipal Regulations on Minimum Competency Levels2

The following table provides examples of qualifications within the various NQF levels andshould be used as a guide only. The criteria for determining the NQF level of qualifications isavailable on the SAQA website (see below for contact details).NQFBandsExamples of Qualifications8Higher education and trainingDoctorates and research masters7Higher education and trainingHigher degree: Honours, postgraduate certificate & diploma6Higher education and trainingFirst three-year degrees & higher diplomas5Higher education and trainingTwo year diplomas and occupational certificates4Further education and trainingHigh School/College/NGO certificates/Grade 123Further education and trainingSchool/College/NGO certificates2Further education and trainingSchool/College/NGO certificates1General education and trainingGrades 4-9, ABET 1-4Work related experienceOfficials must be able to demonstrate previous work related experience. This can be at asenior management level or middle management level depending on the position, themunicipality’s capacity and/or the budget size. Regulation 1 contains a definition of middleand senior management levels.Where an official claims previous work related experience outside the local governmentsphere the municipality or municipal entity will need to evaluate past work experience toensure it is indeed substantially similar to the local government sphere. Experience shouldbe verified by contacting past employers, obtaining copies of job descriptions and viewingexamples of past work where appropriate.Work related experienceMunicipal capacity and budget Minimum of 5 years at middle management level Minimum of 7 years at senior and middlemanagement level (2 of the 7 years must be atsenior management level). All Low capacity municipalitiesMedium capacity municipalities with annualbudgets of a value below R500 million for thecurrent yearMunicipal entities with annual budgets of avalue below R500 million for the current yearAll High capacity municipalitiesMedium capacity municipalities with annualbudgets of a value equal to or above R500million for the current yearMunicipal entities with annual budgets of avalue equal to or above R500 million for thecurrent yearImplementation of the RegulationsWhen the regulations become effective, there will be existing chief financial officers inmunicipalities and municipal entities that do not meet the prescribed competencies. Themunicipality or entity must ensure that the competencies of existing officials are assessedGuideline for Municipal Competency Levels: Chief Financial OfficersMunicipal Regulations on Minimum Competency Levels3

promptly in order to identify and address gaps. Where an existing official does not meet theprescribed higher education qualification and/ or required minimum competency level in therequired unit standards, he/ she should enrol for appropriate SAQA recognised qualificationsand address all other gaps on or before 1 January 2013.The municipality and municipal entity may only recruit new chief financial officers that meetthe prescribed competencies, higher education and prior experience requirements. Duringthe implementation period however, new officials that do not meet the prescribedcompetency levels may be recruited provided the official’s continued employment is subjectto a condition that the official attains the requirements no later than 1 January 2013. This willrequire the official to attain the higher education qualification and the required minimumcompetency level in the required Unit Standards for each competency area on or before1 January 2013.After 1 January 2013 no person may be employed that does not meet the requirements ofthe Regulations.Performance agreementsThe attainment of prescribed competencies and qualifications should be incorporated intothe job description and evaluation criteria as reflected in the annual performance agreementof existing and any new chief financial officer of a municipality or municipal entity. Whendoing so it is important to consider the following: The development plan and learning pathway of the chief financial officer should bereflected in his or her annual performance agreement to ensure that existing competencygaps are met within the prescribed timeframes; New candidates applying for the position of chief financial officer must have theircompetencies assessed in accordance with the Regulations prior to their appointment.Any advert to invite applications for this position should make reference to the requiredcompetencies for this position.Assessment of competency levelsAll assessments of competencies must be undertaken by assessors accredited by the LocalGovernment Sector Education Training Authority (LGSETA) in terms of SAQA guidelinesand NQF-registered Unit Standards and criteria.LGSETA can be contacted as followsSAQA can be contacted as .zaPostal addressBox 1964Bedfordview 2008Postal addressSAQA Postnet 248Private bag X06Waterkloof, Pretoria 0145Physicaladdress4/6 Corporate ParkBuilding, 4th floorSkeen BoulevardBedfordview 2007Physicaladdress1067 Acadia StHatfield 0083Telephonenumbers011 456 8574 (reception)011 450 4948 (fax)Telephonenumbers012 431 5000 (reception)012 431 5147 (fax)086 010 3188 (help desk)Guideline for Municipal Competency Levels: Chief Financial OfficersMunicipal Regulations on Minimum Competency Levels4

SAQA provides guidelines for the assessment of NQF-registered Standards and criteria forthe registration of assessors. Officials in possession of qualifications obtained outside theRepublic of South Africa will have to submit their qualifications to SAQA for evaluation.Monitoring and reporting competency levelsThe accounting officer is responsible to monitor and take all necessary steps to ensurecompliance with the Regulations, including regular reporting.Each municipality is required to furnish half yearly implementation returns to the NationalTreasury and relevant provincial treasury for the period ending 31 December and 30 June.The return is to be in the format of the Schedule to the Regulations and, where applicable,include consolidated information on all its municipal entities. The consolidated returns are tobe furnished by no later than 30 January and 30 July respectively. The annual report of themunicipality must reflect the information as at the end of the financial year to which it relates.Municipal entities must submit the return in the Schedule to its parent municipality (by nolater than 20 January and 20 July) in order for the parent to consolidate the information andmeet its reporting obligations. The annual report of the municipal entity must reflect theinformation as at the end of the financial year to which it relates.Use of the tableGeneral: The following table provides guidance on the implementation of the MunicipalRegulations on Minimum Competency Levels and will assist with the interpretation of skilllevels and areas of competency of the specific position. The table must be read inconjunction with the Regulations.Municipal Entities: In applying the following table, unless indicated otherwise, a referenceto a municipality, a municipal council, a mayor (or executive mayoral committee) or anaccounting officer (the municipal manager) must be read as referring to a municipal entity,the board or directors of a municipal entity, the chairperson of the Board of Directors of amunicipal entity or the accounting officer (chief executive officer) of a municipal entity,respectively.In applying the following table, unless indicated otherwise, a reference to a municipality’sintegrated development plan (IDP) must be read as referring to a municipal entity’s strategicplan or strategic business plan and a reference to a municipality’s service delivery andbudget implementation plan (SDBIP) must be read as referring to a municipal entity’s servicedelivery agreement (SDA) with the parent municipality.Guideline for Municipal Competency Levels: Chief Financial OfficersMunicipal Regulations on Minimum Competency Levels5

Table: Description of competency areas for Chief Financial Officers in municipalities and municipal entitiesCompetency areaCompetencies required1. Strategic leadership andmanagementWithin the Budget and Treasury Office, theability to contribute to service delivery systemsof a complex nature and to manage theachievement of municipal strategies andgoals.Knowledge and Skills Within the area of responsibility, the ability toformulate and influence short, medium andlong-term service delivery plans to deliver onmunicipal strategies and goals. The ability to provide supportive leadership tothe accounting officer and senior managementteam. Within the area of responsibility, the ability todevelop and maintain strategic alliances withvarious stakeholders. Guideline for Municipal Competency Levels: Chief Financial OfficersMunicipal Regulations on Minimum Competency LevelsProviding visible, supportive & effective leadershipMotivating and empowering staff to deliver on municipal strategies and goals.Fostering a positive and creative management culture.Contributing to the alignment of strategies and goals with national and provincialpolicies and within the district.Managing and overseeing implementation of an effective performance managementsystem.Utilising strategic planning methods and toolsProviding direction and contributing to the development and review of credible plansincluding the integrated development plan (IDP) and service delivery and budgetimplementation plan (SDBIP).Ensuring, within area of responsibility, the alignment of municipal strategies and goals.Assessing and monitoring the impact of financial and non-financial changes on plansincluding national and provincial policy statements and changes.Implementing plans within the local government legal framework.Identifying and managing risk in plans.Based on the past and current performance and financial position of the municipality,advise on plans and strategies and goals.Working closely in conjunction with senior management to support the accountingofficerContributing and advising the accounting officer and senior management on policyobjectives to ensure clear purpose and direction.Evaluating and reporting to the accounting officer and senior management on thealignment and achievement of strategies and goals in respect of activities, servicedelivery and performance.Formulating, in conjunction with the accounting officer and senior management, a clearvision, mission and strategies and goalsEstablishing a culture of learning within the finance function.Developing and maintaining strategic alliances within the cooperative governanceframework.For the purpose of achieving the Constitutional mandate of local government,developing and maintaining strategic alliances with organisations and bodies outsidegovernment.Communicating the municipality’s mission and vision to various stakeholders.6

Competency area2.StrategicmanagementfinancialCompetencies requiredThe ability to guide the management of aneffective, economic and efficient financefunction, supported by effective financialmanagement policies and practices.Knowledge and Skills The ability to forecast revenue andexpenditure and assessing the impact thereofon a municipality’s financial position andperformance.Guideline for Municipal Competency Levels: Chief Financial OfficersMunicipal Regulations on Minimum Competency Levels Formulating and implementing finance strategies, which enhance good financialmanagement and decision-making practices across the finance function.Developing and implementing financial policies and systems to ensure efficient andeffective financial administration and control.Developing, implementing and maintaining financial management guidelines, financialinstructions, credit control procedures, debt collection and related financial policies.Within the area of responsibility, managing the control of assets according to policiesand procedures.Managing and overseeing implementation of an effective performance managementsystem within the finance function.Applying best practice management accounting techniques within the finance functionSupporting the accounting officer to oversee the financial management, tax implicationsand performance of service delivery mechanisms (internal and external (includingmunicipal entities in the case of a municipality)) and outsourced service agreements.In conjunction with the accounting officer, preparing multi-year revenue and expenditureforecasts aligned with the strategic plans and budget and advising the impact thereof onservice delivery, performance and financial position.In conjunction with the accounting officer, developing sustainable strategies to addressrevenue shortfalls in alignment with strategic plans.7

Competency area3.OperationalmanagementfinancialCompetencies requiredThe ability to commissionfinancial systems.andKnowledge and Skillsoperate The ability to maintain sufficient workingcapital (cash flow/short-term liquidity) to meetthe needs of the municipality. Guideline for Municipal Competency Levels: Chief Financial OfficersMunicipal Regulations on Minimum Competency LevelsFormulating specifications, commissioning and overseeing the maintenance ofappropriate and accurate financial operating systems, including the areas of debt, cash,investment-, asset and liability management, revenue management expendituremanagement, audit- and analytical requirements and statutory deductions.Generating, regular reporting, measuring and monitoring of financial information toensure financial control and to measure and monitor performance.Ensuring adequate control of financial operating systems.In conjunction with the accounting officer, and through the financial operating systems,analyse and report on the financial position, borrowing and performance of themunicipality and how that impacts on the implementation of the annual budget and onthe service delivery and budget implementation plan (SDBIP) .In conjunction with the accounting officer, determining requirements for in-house oroutsourced or shared service agreements for the operation of financial systems.Regular review of the efficiency and effectiveness of financial operating systems toalign with the changing needs of the municipality.Monitoring the effects of changes, including legislation, inflation and resourceallocations, on the working capital.Prioritising working capital to align with strategies and goals.Monitoring and reporting on working capital, including how that affects investmentoptions, revenue and debt collection.Monitoring and reporting, through analysis, the implications of borrowing and thesignificance thereof to service delivery programmes and possible influences on thefinancial markets.Applying ‘best practice’ risk management practices to the management of workingcapital.8

The ability to manage the budget preparationand implementation process and providetechnical expertise in this regard Guideline for Municipal Competency Levels: Chief Financial OfficersMunicipal Regulations on Minimum Competency LevelsIn the case of a municipality:o Advising the accounting officer on the time schedule outlining key deadlinesfor the preparation, tabling and approval of the annual budget and the annualreview of the IDP, budget related policies and related consultative processes.o In conjunction with the accounting officer ensuring that the budget processaligns the budget and related budget policies to the integrated developmentplan (IDP) and service delivery and budget implementation plan (SDBIP) of themunicipalityIn the case of a municipal entity:o Advising and supporting the accounting officer with the budget process andannual review of related policies and related consultative processes with theparent municipality. This includes the alignment of the entity’s budget with itsstrategic plan and the service delivery agreement (SDA) and the integrateddevelopment plan (IDP) of its parent municipality.o Supporting the accounting officer to ensure the proposed budget is submittedto the parent municipality and that any recommendations of the council of theparent municipality are considered by the board of directors prior to approvalof the budget.Preparation, adoption and implementation of the budget and providing support to theaccounting officer throughout the budget process.Ensuring compliance to the legislative framework governing municipal budget andformats.Knowledge of financial planning, taxation, budgeting and forecasting and theinterrelation thereof.9

Competency area4. Governance,valuesinmanagementethics &financialCompetencies requiredThe ability to support and implement goodgovernance in the area of responsibility.Knowledge and Skills Guideline for Municipal Competency Levels: Chief Financial OfficersMunicipal Regulations on Minimum Competency LevelsSupport and implement clear roles and responsibilities, separation of powers andregular reporting lines for all role players within the area of responsibility to ensuretransparency and accountability.Knowledge and understanding of governance and ethics in financial management,embodied in the King Report on Corporate Governance, as it applies to the localgovernment legal framework.Supporting the accounting officer in the generation and sharing of knowledge andlearning to enhance the collective knowledge, capacity and skills of officials andcouncillors or directorsSupport the formulation of and implement the codes of conduct for all role players withinthe area of responsibility, which shall as a minimum include financial management,supply chain management and the codes of conduct set out in the Local Government:Municipal Systems Act.Support the implementation of systems to encourage and enforce good governance,ethics and the codes of conduct. These systems could include mechanisms to reportmisconduct, fraud, corruption, favouritism and non-compliance with legislation anddisclosure of conflicts of interest, inducements, rewards, gifts, hospitality and favours.Ensuring that investigations are conducted within 30 days of discovery of allegationsand that cases that may constitute a criminal offence are reported to the South AfricanPolice Service.Ensuring that codes of conduct, roles and responsibilities and reporting lines are clearlycommunicated, understood and observed by all role players within the area ofresponsibility.Leading by example and promoting high standards of ethical behaviour by acting withfidelity, honesty, integrity and in the best interests of the municipality and maintainingthe confidentiality of information.10

Competency areaCompetencies required5. Financial and performancereportingThe ability to implement and manage thefinancial reporting process of the municipality.Knowledge and Skills The ability to implement and manage theperformance reporting process of themunicipality. Knowledge and understanding of the legislative framework governing financial reportingin local government, including generally recognised accounting practice (GRAP).Manage the timely preparation, submission and publication of statutory reports,including the annual financial statements, annual report, in-year reports (e.g. in the caseof a municipality monthly (section 71) and mid-year reporting (section 72), withdrawalsfrom bank accounts (section 11(4)) etc.Ensure that the content of financial reporting is specific (unambiguous), measurable,accurate and valid, reliable and time specific.Support the accounting officer to analyse and evaluate the financial reports tounderstand the impact on, and to guide planning in respect of strategies and goalsincluding the financial position, borrowings, performance, implementation of the annualbudget and service delivery and budget implementation plan (SDBIP), tariff-, rates-,credit control, debt collection-, supply chain management-, and relevant policies.Knowledge and understanding of the local government legislative framework governingperformance reporting.Within the area of responsibility implementing and maintaining a performancemanagement system. In the case of a municipal entity also regularly monitoring,measuring, reviewing and reporting its performance to its parent municipality.Within the area of responsibility timely preparation, submission and publication ofstatutory reports relating to performance. For example the annual performance report(section 121(3) of the MFMA), mid year performance reporting (section 72 of theMFMA) of a municipality and in the case of a municipal entity, an assessment of theentity’s performance (section 121(4) of the MFMA), mid year performance reporting(section 88 of the MFMA)Within the area of responsibility, ensure that the content of performance reporting isspecific (unambiguous), measurable, accurate and valid, reliable and time specific.Within the area of responsibility support the accounting officer to analyse and evaluatethe performance reports to understand the impact on, and to guide planning in respectof, strategies and goals including the implementation of the budget and service deliveryand budget implementation plan (SDBIP) and policies.Within the area of responsibility support the accounting officer to analyse and evaluatethe performance of:1. service delivery mechanisms (internal and external) and outsourced serviceagreements against performance targets, and2. in the case of a municipality, of each of its municipal entities against theservice level agreement and performance targets for that entity,oGuideline for Municipal Competency Levels: Chief Financial OfficersMunicipal Regulations on Minimum Competency Levels11

Guideline for Municipal Competency Levels: Chief Financial OfficersMunicipal Regulations on Minimum Competency LevelsWithin the area of responsibility, ensuring that there is a link between the performanceindicators and targets and the integrated development plan (IDP), service delivery andbudget implementation plan (SDBIP) and the individual performance agreements ofofficials.Within the area of responsibility, ensuring that the remuneration and appraisal system isperformance based and that all performance bonuses are only awarded afterconsideration of actual performance of the municipality against the performance targetsfor a specific period.Regularly benchmark the performance of the Budget and Treasury Office functionagainst the performance of similar and/or comparable Budget and Treasury Office’s toimprove and guide in the planning and delivery of services.12

Competency area6. Risk and changemanagementCompetencies requiredThe ability to understand risk and guide themanagement of risk for the municipality withinthe area of responsibility.Knowledge and Skills The ability to guide the management ofchange for the municipality within the area ofresponsibility. Guideline for Municipal Competency Levels: Chief Financial OfficersMunicipal Regulations on Minimum Competency LevelsContributing to and supporting the accounting officer with the establishment andmaintenance of effective, efficient and transparent systems of financial and riskmanagement and internal control.Contributing to and supporting the accounting officer with the implementation of a riskmanagement- and fraud prevention planContributing to and supporting the accounting officer with regular risk assessments andensuring that risks are prioritised according to highest versus lowest potential riskMitigating risks within the area of responsibility in accordance with the prioritisation ofriskWithin the area of responsibility contributing to the management of risk (including thepossible transfer of risk) and consideration of potential risks relating to mechanisms forservice delivery (both internal and external), outsourced service agreements. In thecase of a municipality it must also consider its municipal entities and Public-and-PrivatePartnerships (PPPs) and the

Financial and supply chain management competencies Generally speaking, the skills required of officials are categorised into 11 competency areas, they are: 1. Strategic leadership and management 2. Strategic financial management 3. Operational financial management 4. Governance, ethics and values in financial management 5.

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