The 30-year South African government review reveals that economic, political, spatial, and institutional disparities hinder municipalities' ability to deliver services. An estimated 29% of municipalities are on the verge of operational collapse, pointing to systemic dysfunction rooted in governance failures and limited capacity. Research conducted by the Centre for Gender and Africa Studies at the University of the Free State in partnership with the Local Government Sector Education and Training Authority (LGSETA) over the past three years confirms the poor state of knowledge management, the lack of evidence-based human resource development practices and the persistent barriers facing women in local government.

The Municipal Staff Regulations (MSR) were introduced in 2021 as a policy intervention to professionalise local government and standardise human resource practices. The MSR provide clear guidelines for organisational design, recruitment and selection, performance and development management and skills development. The MSR also provide a competency framework for a more objective and accurate assessment of individuals enabling the municipality to select and recruit the right people, in the right job and at the right level of work and competence. In addition, it sets the institutional framework for talent management and succession planning in local government.

Research objectives

The University of the Free State (UFS) was tasked to undertake an assessment of the role of workplace training systems to support the implementation of the MSR in South African municipalities. The objective of the research was seven-fold.

1. To assess the readiness of municipal staff and institutions to implement the MSR;
2. To explore the municipal capabilities to support implementation of the MSR;
3. To explore the challenges facing managers in implementing MSR;
4. To investigate what constitute good management and leadership practices in municipalities to support the MSR;
5. To identify gaps and challenges in the training systems that hinder the effective implementation of the Regulations;
6. To provide a comprehensive analysis and actionable recommendations for improving workplace training systems; and,
7. To facilitate the implementation of the MSR and to provide concise recommendations to the LGSETA for the enhancement of the workplace training systems to support the implementation of the MSR, taking into account the regional and international experiences.

Methodology

The research methodology was twofold: a literature review was conducted that relied on primary and secondary data; the literature review was complemented by semi-structured interviews. A total of 32 municipalities participated in the study that included local, district, and metropolitan municipalities, and one municipal entity across the nine provinces. In the process, 240 interviews were conducted with senior, middle and junior managers, directors, municipal managers, trade union leadership, political office bearers and consultants. The study also involved focus group discussions with officials of the Department of Cooperative Governance and Traditional Affairs and consultants.

Drawing on the 7-C implementation framework of De Coning, Cloete and Burger, “Policy implementation” in F. Cloete, C. De Coning, H. Wissink & B. Rabie, (eds.) Improving public policy for good governance (2018), the study evaluated the regulatory framework and its practical implications for municipalities.

Key findings and recommendations

The research identified several obstacles that hinder the effective implementation of the MSR, including resistance to change, financial constraints, lack of training, and political interference. Municipal staff often resist new policies due to fear of job losses and attachment to established practices. Limited budgets also impede the ability to hire necessary staff and provide adequate training, while insufficient training on the MSR leaves personnel unprepared to navigate Regulations, highlighting the need for ongoing professional development. Furthermore, external political dynamics complicate implementation, undermining merit-based hiring and performance management.

The research findings emphasise the importance of administrative capacity for successful policy execution. Many municipalities struggle with inadequate resources and bureaucratic inefficiencies that slow down progress. Additionally, the findings underscore the necessity of collaboration among various stakeholders, including municipal managers, human resource professionals, and trade unions. Effective communication regarding the MSR's goals and roles is vital, as many stakeholders expressed confusion over the policy and whether MSR is a “must or a may,”  indicating a need for clearer guidelines and consistent messaging.

Despite these challenges, several municipalities have demonstrated notable successes in aligning their governance practices with the MSR. This was observed in two municipalities in the Western Cape and another municipality in KwaZulu Natal that have effectively integrated their recruitment and human resource processes with the MSR, illustrating their potential to enhance governance. Additionally, the adoption of performance management systems and competency-based hiring practices contributed to increased accountability and transparency within certain municipalities, reinforcing the effectiveness of structured regulatory frameworks in local government operations.

To enhance the implementation of the MSR, the report recommends the development of structured human resource development programs that include coaching, mentoring and training, tailored to equip specifically line managers in their new role as defined by the MSR. The report also recommends the establishment of a help desk in collaboration with professional bodies such as the Institute of Municipal People Management of South Africa (IMPSA), the Institute for People Management (IPM) and the Institute of Local Government Managers (ILGM). It further recommends that the implementation of the MSR take on an evidence-based approach as per the methodology employed by the office of the Auditor General.

To facilitate consistent and objective assessment, the development of standardised metrics for measuring MSR implementation success is recommended to ensure comparability across municipalities. In addition, the consideration of tailored implementation models is crucial, as municipalities differ in context and capacity. Exploring alternative approaches that align with these variations can enhance the effectiveness and adaptability of MSR initiatives.

The implementation of the MSR represents an opportunity for municipalities to reset and professionalise their operations and in this way improve service delivery. However, addressing the identified challenges through targeted human resource development interventions, effective communication, and strong stakeholder collaboration is essential for realizing the full potential of the MSR. By fostering a culture of accountability and continuous improvement, municipalities can enhance their governance capabilities and better serve their communities.

Conclusion

The study contributes both theoretically and practically to the field of policy implementation within a complex governance context. Theoretically, it advances the understanding of policy implementation by emphasizing the significance of adaptive management and stakeholder engagement, as articulated by Walters and Holling (1990). This perspective highlights the dynamic and evolving nature of governance, requiring flexible approaches to address uncertainties and diverse stakeholder interests. Practically, the study offers actionable insights for policymakers, underscoring the necessity of tailored and customised human resource development programs, improved communication strategies and enhanced intergovernmental coordination. These practical recommendations aim to strengthen policy execution by fostering institutional capability, ensuring effective information dissemination and promoting collaborative efforts across various spheres of government.

This article is part of a series reporting on research commissioned by the Local Government Sector Education & Training Authority (LGSETA) (Contact: matodzir@lgseta.org.za).