“Skills profile of technical staff in the south African local government sector: an empirical survey”

The purpose of this article is to reflect on the findings of a local government sector-wide technical skills audit. A mixed-method research design was followed in both a positivist and interpretivist scientific paradigm to conduct the survey in local, district and metropolitan municipalities. Quantitative and qualitative data were processed and thematic analyses were done per respondent and participant category to obtain rich descriptions of current technical skills challenges and skills development priorities in local government. From the empirical survey it is evident that significant technical skills shortages exist, especially in rural district and local municipalities. This severely compromises the delivery of the four basic technical services, namely water provisioning, waste management, sanitation and sewerage, and electricity.


INTRODUCTION
Based on the principles of a constitutional democracy, local governance draws more closely to the needs of the people.The effective dispensation of this responsibility depends largely on the capability, knowledge and skills of municipal employees to successfully perform their responsibilities and functions.In terms of the Skills Development Act 97 of 1998, Chapter 3, section 10, the Local Government Sector Education and Training Authority (LGSETA) must receive and approve workplace skills plans of all municipalities in South Africa.The accuracy and reliability of such workplace skills plans can only be ensured if municipalities regularly conduct skills audits per job category in the sector.
Skills audits are generally undertaken to determine and record the skills base of individuals or groups within an organization.The general aim of such audits is to pinpoint potential gaps between the skills and knowledge the organization requires to successfully operationalize its strategic objectives and the level of skills and knowledge it currently possesses.The result of a skills audit is usually a skills gap analysis which helps to obtain a comprehensive skills profile of an organization.The ultimate intended outcome of skills audits in the local government sector is to develop a sector skills development plan aligned to the sector skills development strategy.Skills audits furthermore guide resource allocation to develop skills through appropriate training interventions.As such, skills audits validate official workplace skills plans.This article reports on the findings of an empirical survey of the status of skills of technical staff in municipalities.The survey was undertaken to obtain a profile of the skills base of employees in technical positions, to pinpoint skills development challenges, and to make recommendations regarding addressing potential skills gaps in the delivery of four basic technical services, namely water provisioning, waste management, sanitation and sewerage, and electricity.A mixed-method research design was followed to conduct the survey in local, district and metropolitan municipalities in all nine provinces of South Africa.Quantitative and qualitative data revealed current technical skills challenges and skills development priorities in local government.

SKILLS CONCEPTUALIZED
The concept "skill" is generally regarded as the ability to carry out a task with pre-determined results often within a given amount of time, energy, or both (Velada et al., 2007, p. 2).To this, Grindle and Hildebrand (1995, p. 442) add that skills also refer to the ability of employees to perform tasks effectively, efficiently and sustainably.Skills can generally be divided into domain-general and domain-specific skills.For example, in the domain of municipal functions, some general skills would include time management, leadership, organizing, planning and others, whereas domain-specific skills would be useful only for a certain job, such as technical services (Niaz, 2011, p. 3).Ongori and Nzozo (2011, p. 3) and Zeiger (2014, p. 1) highlight the need for training to improve the skills levels of individuals.The goal of training is primarily to empower employees to master certain specific conduct and behaviors related to their specific functions (De Wet & Van der Waldt, 2013, p. 49).
Skills improvement initiatives such as training are grounded in various human development theories.The rationale for examining these theories is based on the fact that it provides foundations for meta-theoretical arguments and set theoretical parameters for an analysis of skills profiles.According to Olum (2004, p. 12) and Francis (2012, p. 1), these theories can be classified according to different periods, namely classical, neo-classical and more contemporary theories.To this, Mahmood et al. (2012, p. 9), Pham (2014, p. 1), and Thenmozhi (2014, p. 12) add that variations in human resource development, thought associated with each period, are mainly the result of multiple perspectives, including modern and postmodern views, as well as organizational culture.These theories provide a cognitive justification of the building of skills of technical staff in municipalities.

Conducting skills audits
A skills audit can be regarded as a process to measure and record the skills base of an individual or group (Meyer et al., 2007, p. 86).The main purpose for conducting a skills audit is to identify the skills and knowledge that the organization requires, as well as the skills and knowledge that the organization currently has (Murphy, 2001, p. 5).Skills audits are also usually done to determine training needs so an organization can improve its skills and knowledge.However, skills audits are also completed for other reasons such as restructuring of organizations and deployment of staff (Liebowitz et al., 2000, p. 4).It gathers more information than simply qualifications.It firstly identifies the skills matrices for the organization and then delves into what the current competencies are of each individual against this predefined set of skills required to fulfil a specific role (Knechel & Salterio, 2016, p. 17).According to Rao (2014, p. 78), a skills audit needs to pinpoint at least the following: • competency standards of employees to be appointed with the requisite skills, expertise and qualifications; • the requisite qualifications, experience, functional, technical, managerial, leadership and generic competence required for the different posts identified; • technical skills gaps and lack of relevant competencies; • professionalism and regulation by professional bodies and government; and • the capacity required of appointed officials (to improve the sector's qualifications profile and competence).
The outcome of a thorough skills audit is usually a skills gap analysis.This analysis generally enables management to make key decisions and to allocate adequate resources to improve the capacity of employees (Petrick et al., 1999  Technical skills are those abilities acquired through learning and practice.They are often jobor task-specific; in other words, a particular skill set or proficiency required to perform a specific job or task.Most municipalities at all categories are struggling to operate and maintain their services infrastructure in a cost-effective and sustainable manner.These challenges are generally a result of poor technical skills, the absence of such skills, and the shortage of technical skilled professionals leading to most municipalities outsourcing their technical services to consultants.In light of this reality the expected deliverables of the LGSETA's commissioned technical skills audit were specified as follows:

BACKGROUND TO AND OVERVIEW OF THE TECHNICAL SKILLS AUDIT PROJECT
• to provide an analysis on the technical skills challenges in the local government sector; • to conduct a skills audit on technical skills; • to identify factors that contribute to the nonfunctionality of technical divisions; and • to make recommendations regarding possible interventions on skills gaps in technical occupations.

RESEARCH METHODOLOGY
The technical skills audit was undertaken by Enterprises UP with the assistance of an experienced research team.One of the first steps was to establish a consultative platform comprised of experts in the sector, including senior local government officials and research methodology professionals.Interactive sessions were held to: • pinpoint the most suitable research design and methodology to be employed for the technical skills audit; • survey literature on international skills audit best practice; • identify critical elements they perceived as essential to include in the questionnaire and interview schedule; and • set the desired climate for the research.

Audit scope and sampling
The • the categories of municipalities; • rural-urban settings; and • dysfunctional and high-capacity municipalities.

Research process and phases
In determining the most suitable audit method, the following factors were considered: resource requirements (time, cost, labor intensity) and, most importantly, the ability of the method to gather as much of the required information with sufficient validity and reliability.
The research process followed is depicted in Figure 1 below.

Phase 1: Conceptual and contextual analyses
A robust literature survey (as outlined in section 1 above) was conducted to pinpoint the theories, principles, approaches, processes and strategies associated with skills audits.The literature survey also guided the research team to identify the nature of technical skills (e.g.type, positions, post levels, job descriptions) in the South African local government sector.Document analysis of official reports regarding the status of local government was also done, including surveys and reports from Stats SA, LGSETA, SALGA, the Department of Co-operative Governance and Traditional Affairs (COGTA) and the Auditor General.This facilitated the design of a comprehensive local government profile as far as the capacity of local, district and metropolitan municipalities in general and technical services in particular are concerned.This profile was imperative to identify low-, medium-, and high-capacity municipalities for sampling purposes.
Through consultative processes contact was made with the Municipal Infrastructure Support Agency (MISA) to obtain information and statistics pertaining to national technical skills profiles and general skills deficits.This further guided the design of the questionnaire and interview schedule.

Phase 2: Audit methodology
The purpose of the second phase was to plan and design the entire project on a national scale.Two participant groups were identified.The first group comprised the primary target population, namely the supervisors and foreman of technical staff in municipalities.A questionnaire was utilised as data collection instrument for this group.The questionnaire (see Appendix B) was distributed via e-mail and respondents completed the questionnaire online.This data collection instrument made provision for biographical details, as well as Yes/No, Likert scale, and open-ended questions.
The questionnaire was piloted (pre-tested) with 13 respondents from the target group.This ensured that all questions were well-formulated and understood.Telephonic follow-ups were made to obtain the commitment from respondents and to secure an adequate response rate.As with most audits of this nature, not all the managers who were targeted were willing to participate, and not all managers who indicated a willingness to participate sent in their questionnaires.

Phase 4: Data analyses
Data capturers were appointed to record the raw data on statistical software and Excel spread sheets.Based on the principles of Chi-Square tests, a comparative analysis was undertaken to contrast and compare the responses of the two target groups.A thematic analysis was then done to determine the main categories of responses obtained from the questionnaire and interviews.Finally, a frequency analysis was done to determine the relative importance or significance of responses made pertaining to technical skills development challenges.A response rate of 55% for the questionnaire (100/180) and 60% (152/252) for interviews was achieved.The responses could thus be regarded as representatives of the target population.

Phase 5: Findings and reporting
The final phase entailed the final verification and cross-referencing of findings, the identification of key observations made by the research team during the audit process.

Data collection instrumentation
A questionnaire was developed based on the results of the comprehensive literature review and input obtained from local government experts, senior officials and research experts.An interview schedule was further designed based on the results of the literature review and input obtained from local government experts, senior officials and research experts.The interview schedule was utilized by field-workers to conduct face-to-face, semi-structured interviews with the secondary target population, namely key municipal role-players and stakeholders regarding technical staff.As stated, the second group acted as reference cohort to validate and cross-reference the responses obtained from the first group.This group was selected to obtain a comprehensive systemic and strategic overview of technical skills challenges in the local government sector.

Ethical considerations
Based on the stringent and rigorous ethical clearance procedures at the University of Pretoria, the necessary documentation was completed and a clearance number was allocated to the project.The ethical considerations included voluntary participation of both respondents and participants (i.e.all participants signed a declaration of consent to participate), and anonymity and confidentiality of responses and respondents.

RESEARCH FINDINGS
This section outlines the findings of both the interviews and questionnaires.These findings are aimed at addressing the stated objectives of the research.General conclusions and observations are added to contextualise the responses obtained.The graphs below reflect the geographical and biographical profile of participants and respondents.
The findings of the skills audit are summarized per cohort group (i.e.target groups 1 and 2) and per project deliverables below.• issues related to public financial management processes and the funding available for training and development; • the absence of a culture of learning in municipalities; • the need for opportunities for learning and development; • inefficiency of current human resource management processes and practices; and • misalignment of technical skills development processes to support the overall organizational strategy.

Target group 2: senior managers and political representatives
The majority of participants (63.4%) are of the opinion that the poor quality of supervision, ineffective human resource policies and planning, the low strategic priority of skills development, the relative unavailability of technical staff, as well as the general unavailability of resources, equipment and tools are the most significant challenges as far as skills development is concerned.In response to questions related to the effectiveness of municipalities to develop the skills of technical staff, nearly one third of all interviewees are of the opinion that: • skills development for technical staff is regarded as a low priority and the allocation of funds for training are very limited; • in general there is a lack of experienced staff with no initiatives to retain them, resulting in a situation of poor supervisory and management skills; and • the local government technical skills environment is also faced with a situation of staff with low levels of literacy and an aging work force that are not interested in training and development.
Derived from interviews conducted about the most significant challenges and obstacles associated with skills development of technical staff, the following areas can further be highlighted: • lack of a proper skills development plan resulting in a lack of technical skills development opportunities; • lack of resources, with specific reference to financial constraints; • it seems that municipalities are not serious about training and skills development plans leading to a lack of commitment; • human resource departments, including SDFs are generally not familiar with the unique requirements pertaining to technical skills development and are ignorant towards the development of technical staff; • in some provinces and regions there is limited access to accredited training institutions and staff had to travel long distances to attend training programs.

General factors leading to limited technical skills capacity
The general lack of finances earmarked for training and development was singled out as the most significant factor leading to non-functionality.However, in follow-up questions with participants, it became apparent that money received from the LGSETA for training is not "ring-fenced" for training.Municipalities often utilize this money for other purposes.Respondents indicated that since skills development is generally not regarded as a strategic priority or critical performance area, in cases of "belt-tightening", council simply take away money from the training budget to fund other imperatives.Other factors leading to limited technical skills development, include the following: • Job descriptions and specifications are generally absent.This makes it extremely difficult to determine whether technical staff comply with the conditions and requirements of the position.This, of course, hampers consequence management and the measurement of skills gaps.
• The SDFs are not always utilized in the capacity for which they were appointed.• A significant number of respondents indicated that technical staff often utilize training for personal gain; they use it as a "stepping stone" to go to higher-capacity municipalities or the private sector.Often staff lobby for the "outsourcing" of all technical services, but then intend to resign to become part of the private entity or ensure that family of friend get the contracts.
• Trade testing is not done at technical colleges.Staff only receive theoretical training without getting document proof that they completed certain training programs.They thus do not have evidence of training when they would like to apply for vacant technical positions.
• senior managers commute between the municipality where they work and the area where they stay (i.e.neighboring municipality).They thus do not take ownership of technical service delivery problems in the particular municipal area since service issues such as electricity and water supply, and sewerage do not affect them personally.They thus generally lack the commitment to take action.

Recommendations regarding possible skills interventions in technical occupations
Based on the coding and thematic analyses of open-ended responses of both target groups, the following general and specific recommendations can be made for the improvement of technical skills in the local government sector: • It is evident that training and development is not regarded as a strategic key performance area in municipalities.The Directors Corporate Services, HODs for Human Resource Management and SDFs should be regarded as strategic partners in the operationalization of strategic objectives, the design and implementation of the IDPs, and the long-term service delivery improvement imperatives in local government.
• All relevant structures and role-players should better utilize the GAPSKILL tool as instrument for skills development.
• Although the technical skills colleges in metropolitan municipalities can add significant value the problem is that employees generally only get theoretical training.There is very limited practical application and therefore actual skills of technical staff cannot be trade tested.This result in the fact that individuals who were trained by these trade colleges remain unemployed.This is the case despite the dire need for technical skills in often neighboring cities and towns.The mobility and recruitment of trained technicians to other municipalities should thus be investigated.Training colleges should provide both theoretical and trade testing facilities.
• It is further recommended that skilled senior officials or technical professionals should mentor more junior or inexperienced technical staff.There is therefore the need for mentorship and career coaching skills development programme in municipalities.
• A further recommendation is that the functioning of training committees should be optimized.Especially in low-capacity local municipalities these committees do not perform their coordinating functions.

General observations and lessons learned
The political dynamics at some municipalities made the audit process extremely challenging.
In some instances the field-workers travelled to municipalities only to learn that some of the senior managers did not agree amongst themselves to participate in the project.The high levels of non-commitment to participate, cancellation of appointments, and infighting in municipalities made the process time-consuming and expensive.
It has led to re-appointments to be made, as well as additional travel and accommodation costs.Other specific observations and lessons learned include the following: • Concept "audit": It is evident that the term "audit" should be avoided in similar projects in future.The concept conjures images and perceptions of Auditor General audits of financial statements and budget spending.This made some officials very reluctant to participate or to speak freely about their skills development challenges and concerns.When the field-workers referred to the technical skills audit as a "survey" instead, attitudes immediately changed.
• SDF forums: As far as skills development is concerned it is evident that quarterly SDF Forums should be utilised as instrument to gain commitment in future regarding participation in similar surveys.These forums are also ideally positioned to gain detailed insight into the status of technical skills in municipalities.
• Role of SDFs: The role and functioning of SDF country-wide should receive serious attention.Most SDF revealed that they simply 'tick some boxes for compliance sake'.They are not utilised as a strategic asset for organisational performance and growth.Many are in acting positions and are excluded from opportunities to be influential in terms of the development of municipal staff.The biggest challenge with the role and functioning of SDFs is the fact that most of them have other titles within the HR (development) environment with the additional responsibilities of a SDF added to their existing roles.The ideal situation is an appointed full-time SDF.
• Scheduling of surveys: Municipal officials made it clear that from December 15 to January 13 annually it will be virtually impossible to make arrangements for the site visits due to the festive season.SDF's find it also difficult to arrange interviews on one day.
• Communication: General coordination and communication seem to be a major challenge in the local government sector.Direct face-toface communication seems to be the solution.
Communication between SDFs and staff divisions in municipality is not taking place as it should.

CONCLUSION
This article sought to report on the general status of technical skills in local, district and metropolitan municipalities in all nine provinces of South Africa.A comprehensive profile of the skills base of employees in technical positions was obtained to pinpoint skills development challenges, and to make recommendations regarding addressing potential skills gaps.It is evident that skills development of technical staff in municipalities is a multifaceted process.It consists of a series of actions requiring the interaction between employees, supervisors, senior management, political representatives and various municipal coordinating structures.Training of technical staff to acquire the required skills and knowledge to perform their respective duties is a critical component of local government capacity building.
The technical skills audit conducted in the local government sector revealed that significant systemic challenges exist.In general it is clear that the current municipal skills development arrangements have not yet succeeded in providing major positive results concerning the development of an effective and efficient local government service as exemplified by the number of protests and court cases regarding service delivery.Furthermore, the necessary institutional capacity (i.e.structures, systems, strategies, programmes, resources) as well as policy framework require serious attention to support all skills development initiatives.It is therefore encouraging that the LGSETA invests in building the necessary capacity of technical staff at the coalface of service provision.A comprehensive framework for local government skills development should be developed which underscore lifelong learning, ethical norms, and skills and knowledge improvement.It is equally important to ensure that technical staff acquire the necessary skills and value base to perform the functions assigned to them.An equally important requirement for efficiency and effectiveness of municipal service delivery is the cultivation of a culture of commitment to the cause of the public service, namely the improvement of the living conditions of society.

Phase 3 :
Conducting the audit surveyPhase three entailed the identification and training of fieldworkers for interviews with the first target group to cross-reference and verify data collected from the second target (reference) group.The fieldworkers, under close supervision of the research team, travelled to the 36 sampled municipalities.
research obtained a representative sample of the entire local government sector in South Africa.A national survey was thus conducted in all nine provinces.At the time of the municipal elections of August 3, 2016, there were 8 metropolitan, 44 district, and 205 local municipalities in South Africa.Based on statistical calculations, a representative sample of 36 municipalities were both randomly and purposively sampled (i.e. 1 metro/or capital city per province, 1 district and 2 local municipalities per province [n = 36]).The sampled municipalities were representative of: