Conference Agenda

South African municipalities have consistently underperformed, over the past 25 years as evidenced by numerous empirical studies. The latest report by the Auditor-General further confirms this trend, highlighting a continued regression in both financial management and human resource governance across municipalities. This sustained underperformance has contributed to a widespread erosion of public trust and confidence in the local governance system.

In order to address this downward spiral, 9 focus areas have been identified in the Local Government White Paper Review (2025); viz financial and fiscal reform, combating unethical behaviour and poor accountability, depoliticising municipal governance, restoring relationships with communities, integrating traditional governance systems, strengthening oversight at national and provincial levels, improving cooperative governance, embracing climate responsive governance and tackling persistent spatial inequality. However the most important focus area have been ignored namely the management and development of human resource.

This paper explores the management of human resource development and its role in enhancing the effectiveness of local government. Three research questions emerge (i) what are the legislative human resource development functions of managers (ii) how are managers performing their human resource development roles and (iii) how should managers be supported to perform their human resource development roles.

The study followed a mixed-methods approach, applying both qualitative and quantitative methods to both primary and secondary data sources. The mixed-methods approach allowed the researcher to test and triangulate the validity of the research findings and to develop accurate, in-depth understanding of the aspects measured. The data analysis followed a thematic frequency approach. The population was (N= 49 492) and the sample (N=572) across 17 municipalities and 5 provinces. This included (N = 428 non managers), (N = 12 councillors), (N= 89 managers) and (N = 43 human resource professionals). In addition face-to-face interviews (N=7) and focus group discussions (N=11) conducted.

Human resource development is not effectively measured and managed in municipalities, despite an enabling policy framework that includes the Skills Development Act (1998), Employment Equity Act (1998) and Municipal Staff Regulations (2021). Although managers have clearly defined human resource development responsibilities, there is continued overreliance on consultants (Auditor General, 2025). This reflects the poor managerial commitment to equal opportunities, inconsistent policy application and fragmented practices. Skills development audits are inadequately conducted, resulting in human resource interventions that are misaligned with employee development plans. Furthermore, many managers lack the capacity to implement human resource development projects effectively, undermining long-term institutional capability.

An increase in management controls will ensure municipalities become more capable, responsive and agile to address the human resources development challenges facing local government in South Africa. Evidenced-based human resource development provide municipalities with an institutional model to ensure human resource development performance of managers are included as part of material irregularities reporting. The effective management of human resource development will foster trust and increase municipal implementation capabilities. This will place local government on a completely new trajectory with effective and efficient management of human resource development at the centre of the transformation efforts of local government.

1.Problem Statement & Purpose :

Amidst the global digital transformation of governance, technology-driven administration has become indispensable, particularly with the integration of generative AI (e.g., DeepSeek) in public services. While technologies ranging from smart city surveillance to grassroots traceability systems promise enhanced efficiency and optimized services, they simultaneously generate a digital governance paradox: tools designed to liberate human effort create new transactional burdens, precision-oriented instruments amplify procedural complexity, and collaboration platforms erect administrative barriers. This co-emergence of "technological empowerment and burden proliferation" exposes fundamental tensions between technical rationality and governance praxis. Our study investigates this paradox by examining digital burdens faced by civil servants and their willingness to adopt generative AI, considering critical factors like institutional pressures, technical competency, and risk perceptions. We aim to: (a) quantify the threshold effects of digital burden accumulation, (b) identify causal pathways linking institutional factors to burden generation, and (c) assess how AI risk perceptions moderate technology adoption.

2.Methods:

We employed a survey experiment methodology to establish causal relationships while controlling confounding variables. Data collection occurred over 31 days (Feb 21 – Mar 21, 2025) via online channels (links/mini-programs), yielding 680 initial responses. Rigorous quality controls were implemented: (1) minimum completion time (≥2 minutes), (2) attention-check items (e.g., "select option 1"), (3) response consistency analysis, and (4) IP/geolocation verification. After excluding invalid responses, 424 valid questionnaires from local government workers were retained. Structural Equation Modeling (SEM) analyzed the relationships between institutional pressures, technical misapplication, individual competency, technology acceptance, screen time, and digital burdens.

3.Results :

Key findings reveal:

(1) Institutional pressures significantly increase digital burdens through the mediating effect of technical misapplication .

(2) Individual technical competency reduces burdens indirectly by enhancing technology acceptance.

(3) A critical threshold effect emerges: screen time exceeding 4 hours daily exponentially intensifies burdens.

(4) AI risk perception significantly moderates adoption willingness: civil servants perceiving high AI risks report 23% lower adoption intent despite recognizing efficiency gains.

4.Recommendations :

To mitigate digital burdens, an integrated approach is essential: redesign workflows by introducing mandatory screen-free periods and automating low-value tasks below the critical 4-hour threshold; develop adaptive competency through scenario-based AI training focused on risk assessment and contextual application; reform incentive structures by shifting performance metrics from traceability (e.g., system-logged actions) to outcome-based evaluation; establish civil servant–AI developer collaboratives to co-create protocols that preempt technical misalignment; and deploy explainable AI interfaces to enhance algorithmic transparency, bridging cognitive gaps between administrators and systems. This synergy of operational adjustments, capacity building, and systemic reforms addresses both technical and institutional roots of burden generation.

5.References:

Chen, H., & Kim, J. (2023). Administrative burden in digital bureaucracy: Evidence from local government adaptations. Government Information Quarterly, 40(4), 101789.

Tochev, S., & Li, X. (2024). The paradox of digital governance: Measuring hidden burdens in smart city initiatives. Sustainability, 16(5), 1234-1256.

Problem statement and purpose: The Public Service sector in South Africa's Free State Province is a significant component of the provincial economy, involving government services, healthcare, education, and municipal operations. However, this sector faces significant challenges in meeting occupational demands in both traditional and emerging occupations. These challenges are mainly due to persistent skills shortages in healthcare, engineering, and information communication technology, which threaten service delivery, whilst the growing demand for digital transformation expertise remains largely unaddressed. Furthermore, the lack of structured workforce development programmes limits the ability to train and retain qualified personnel. At the same time, the provincial government as an employer struggles to compete with private-sector opportunities, which exacerbates staffing challenges.

This study, aimed at developing a Provincial Sector Skills Plan for the Free State Provincial Government. As a strategic initiative by the Public Service Sector Education and Training Authority (PSETA), in South Africa, it was undertaken in partnership with the Free State Provincial government.

Methodology: A qualitative research approach was used to collect and analyse data. The empirical data collection process was underpinned by semi-structured interviews with PSETA specialists and focus group discussions with key stakeholders from all 12 provincial government departments. The population from the provincial government comprised 282 research participants, comprising the following specialist categories: skills planning, development, and partnerships (83), organisational development (33), strategic planning (57), monitoring and evaluation (44), and human resources (65). Ninety-nine research participants participated in the focus group discussions. The population from the PSETA comprised specialists in skills planning and research, learning programmes, projects, and quality assurance. Six research participants were targeted, and three participated in the semi-structured interviews.

Findings: Engagement between the provincial government entities and private sector industries remains superficial, with minimal effort to align training programmes with the evolving demands of the labour market. A notable disconnect between workforce development strategies and industry needs results in persistent skills mismatches. Collaboration between government and industry on skills forecasting and workforce planning is limited, preventing proactive measures to address future labour market shortages.

While numerous partnerships exist between government entities in the province, educational institutions, and private sector stakeholders, the findings pointed out that many lack strategic alignment with the province's broader economic and social development goals. Although agreements are frequently signed, implementation remains slow and lacks structured coordination, with limited impact.

Proposal: To strengthen monitoring and evaluation (M&E) of skills planning and development, align M&E reports with workforce planning to improve capacity-building efforts, and develop a standardised and strategically aligned M&E framework for skills development. To enhance partnerships, the Provincial Skills Development forums should include representatives from Higher education institutions (HEIs). Establishing a forum comprising industry stakeholders, provincial government representatives, and HEIs who will conduct skills forecasting and workforce planning for the province. To establish a workforce development framework, a competency-based training evaluation system should be introduced for the Free State provincial government.