The Journal for Transdisciplinary Research in Southern Africa 
ISSN: (Online) 2415-2005, (Print) 1817-4434
Page 1 of 10 Original Research
Towards strengthening collaboration between district 
and local municipalities in South Africa: Insights 
from Ehlanzeni District Municipality
Authors: This article examines the state of collaboration between a district municipality and its local 
Douglas N. Magagula1 municipalities using Ehlanzeni District Municipality as a case study. This is important because 
Ricky M. Mukonza2 
Rasodi K. Manyaka1 in terms of the Local Government: Municipal Structures Act, 1998, district municipalities are 
Kabelo B. Moeti3 established to coordinate and support their local municipalities to enable them to deliver services 
to the communities that they serve. In spite of this, literature on local government shows that 
Affiliations: there is ambiguity regarding the roles of district and local municipalities within the sphere of 
1Department of Public 
Management, Tshwane local government. The study was essentially qualitative in design with the use of a semi-
University of Technology, structured interview as a data collection instrument. The findings of the study reveal that local 
Mbombela, South Africa municipalities have an executive and legislative authority, which limits the district municipality 
towards holding them accountable for failure to execute their constitutional obligations. The 
2Department of Public study further affirms that there is ambiguity in legislation regarding the discharge in roles and 
Management, Tshwane responsibilities between a district and a local municipality. Thus, it is suggested that for the 
University of Technology, 
Polokwane, South Africa district municipalities to strengthen their roles of coordinating, intergovernmental forums 
between a district and local municipality should be used as a starting point. The article concludes 
3Department of Public that there is a need to review legislation regarding the extent to which a local municipality should 
Management, Tshwane account to a district municipality, as well as clarity regarding the discharge in roles and 
University of Technology, responsibilities between a district and a local municipality.
Pretoria, South Africa
Keywords: collaboration; district municipality; local municipality; intergovernmental relations; 
Corresponding author: local government.
Ricky Mukonza, 
mukonzarm@tut.ac.za
Dates: Introduction
Received: 13 Feb. 2019
Accepted: 10 Sept. 2019 It remains true that the regime of apartheid in South Africa has left the vast majority of communities 
Published: 25 Nov. 2019 severely affected, where marginalised black communities live in rural areas with lack of 
infrastructure, poor social services and a shortage of basic services such as access to water, 
How to cite this article: sanitation, provision of electricity, as well as proper roads. In the democratic South Africa, which 
Magagula, D.N., Mukonza, 
R.M., Manyaka, R.K. & came into place after the 1994 elections, the imbalances of the past needed to be robustly addressed. 
Moeti, K.B., 2019, ‘Towards This view is supported by Pretorius and Schurink (2007), who explicate that access to public 
strengthening collaboration services is a legitimate entitlement that all people of the Republic of South Africa should enjoy, in 
between district and local particular, those who belong to previously disadvantaged groups. This democratic era saw the 
municipalities in South Africa: 
Insights from Ehlanzeni establishment of the three spheres of government, which are national, provincial and local 
District Municipality’, The government. Local government consists of metropolitan, district and local municipalities that 
Journal for Transdisciplinary execute their mandates in accordance with the Constitution of the Republic of South Africa, 1996 
Research in Southern Africa (also referred to as the Constitution) and supporting legislation. The Local Government: Municipal 
15(1), a673. https://doi.org/ Structures Act 117 of 1998 (also referred to as the Municipal Structures Act) (Republic of South 
10.4102/td.v15i1.673
Africa [RSA] 1998) provides for separation in functions and powers between the municipalities. 
Copyright: Metropolitan municipalities are autonomous local authorities, while the responsibility in respect 
© 2019. The Authors. of the local government is shared between the district and its local municipalities, and all 
Licensee: AOSIS. This work institutions remain instrumental to the development and transformation of communities in 
is licensed under the 
Creative Commons South Africa. The intended purpose of sharing responsibilities between a district and its local 
Attribution License. municipalities is to facilitate and ensure equal access to resources and services across all 
communities (Van der Westhuizen & Dollery 2009). Metropolitan municipalities are commonly 
in an expedient position with better infrastructures and substantial tax bases, and are more 
privileged in terms of the number of staff members appointed compared to the district and local 
Read online: municipalities, which poses the question of what can be done to improve the state of district 
Scan this QR and local municipalities in ensuring strong and effective local government (Van der Waldt 
code with your 
smart phone or 2014). Palmer (2011) observes that the future of district municipalities in South Africa remains 
mobile device questionable. This is attributable to the fact that their ability to assist and support local 
to read online.
municipalities to render services has been a subject of discussion since the advent of the 
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democratic dispensation. An issue here has always been of local government in Germany are districts and municipalities, 
whether the district municipalities are effectively providing where the district is responsible for coordinating functions 
their local municipalities with the necessary support required that, because of the nature of the function, a municipality 
for them to undertake their functions optimally. cannot perform sufficiently on its own (Steytler 2003). Steytler 
(2003) adds that a district municipality also plays a role of 
District and local municipalities are envisioned to have supervision in constituent municipalities, and has the 
differing but complementing roles and responsibilities responsibility to administer all affairs of its territory within its 
whereby a district municipality focuses on macro-level own discretion. In Canada, which is also a federal state, local 
functions such as planning, land and economic and municipalities fall within the jurisdiction of a district, and 
environmental development, whereas a local municipality just like counties that are governed by county councils, districts 
should deal with the provision of specific services such as do not perform municipal government functions unless there 
waste removal and housing (Afrika 2010). District and local is an exception (Swift 2012). Slack (2008) submits that all 
municipalities mostly serve economically stagnant rural Canadian municipalities provide services irrespective of 
areas (Van der Waldt 2014). All of the established whether they are mandatory or not, as their legislation is more 
municipalities are governed by elected councils. There are permissive in the provision of services to local communities. 
intergovernmental forums provided for in terms of the Uganda is a unitary state in which municipal government 
Intergovernmental Relations Framework Act, 2005, to strengthen comprises a five-tier structure in which the district becomes 
the colloboration between a district and its local municipalities the basic unit where various municipal governments and 
so that the needs of local municipalities are well understood administrative units resort, and the district council has 
and addressed with the district municipality having to executive and legislative powers because it is the uppermost 
coordinate and manage the seating of these intergovernmental political authority within the district (Ojambo 2012). Under the 
forums. This article commences with an examination of district, there is a lower municipality but the law does not 
scholarly debates regarding the state of collaboration between make a clear provision for the extent to which municipalities 
the district and local municipalities. This is followed by the may be accountable to the district (Bainomugisha et al. 2014). 
discussion of the findings of the study, as well as the Bainomugisha et al. (2014) posit that district municipalities in 
conclusions and recommendations thereof. Uganda are dominated by a number of factors such as poor 
monitoring of projects rendered by local government, low 
Literature review levels of civic awareness among the voters, poor record 
This section reviews academic literature to seek an keeping by councillors, internal political wrangles, lack of 
understanding of the role that district municipalities play in revenue generation strategies, as well as poor facilitation of 
strengthening collaboration with local municipalities to councillors.
ensure improved service delivery, and also to seek clarity on 
the current legislation and supporting regulations that A South African context
govern the relationship between the district and local In South Africa, government is categorised into three 
municipalities in South Africa. spheres – national, provincial and local government – which 
should work together guided by the principles of cooperative 
Global perspective towards cooperation governance as enshrined in the Constitution of the Republic 
between municipalities of South Africa, 1996. The local sphere of government is 
In both emerging and the developed countries, municipalities consisted of metropolitan, district and local municipalities. 
are faced with persisting challenges of enhancing the South Africa is a unitary state with federal characteristics in 
development of local communities and also ensuring that the that district and local municipalities have to collaborate 
quality of services that they render is improved (Pooe & Mafini with one another and be fully involved in decision-making 
2012). Nkuna and Nemutanzhela (2012) posit that the rapid and budget coordination, municipal policies, as well as in 
booming of urbanisation during the industrial revolution activities of the two spheres of local government (Paralegal 
period in Britain necessitated an increased need for municipal Manual 2015). Kanyane (2014) notes that planning in the 
services. Hartwich (2013) notes that in Germany, the local spheres of government and planning for provincial and 
sovereignty of the district municipality is vested in its national government are not aligned and coordinated. This 
municipal council, which is appointed to serve for a period of creates a problem of governmental institutions having to 
6 years, and its functions are not determined forever, because operate in silos. This is exactly what this study seeks to 
they change and develop according to social convictions and investigate.
economic patterns, but not to political decisions (Haschke 
2013). Germany uses the federal system of government, with a It is often argued that in most cases the failure of a district to 
commendable municipal government, to such an extent that assist local municipalities to deliver effective and efficient 
the need for national government in the provision of resources services is attributed to capacity constraints. It is for this 
and services is relatively low, and with their robust legislation, reason that the Paralegal Manual (2015) affirms that district 
municipalities are guaranteed the right to regulate all local municipalities should capacitate all of the local municipalities 
affairs themselves (Goldsmith & Page 2010). The institutions in their areas of jurisdiction so that local councils can 
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effectively and efficiently execute their functions. Furthermore, • The district and its local municipalities must assist and 
district councils have to ensure that resources and services are support one another.
distributed equitably among local municipalities. The district • The district may provide financial, technical or 
has an obligation to utilise resources of the district in a administrative support services to local municipalities in 
manner that is beneficial to all local municipalities within the need.
district to ensure that communities are served in the best • AA local municipality may assist the district on issues 
possible way (Fourie & Opperman 2011). The Financial and relating to technical support, financial support or 
Fiscal Commission 2017/2018 report states that local administrative support services when a need arises and 
municipalities fail to utilise their resources in a manner that the local municipality has such capacity to assist the 
is efficient when compared to district municipalities, with the district.
districts having better institutional capacity and ability to • A local municipality may assist another local municipality 
take on more complex strategic infrastructure projects for 
within the same district on an issue of technical support, 
rural development (Financial and Fiscal Commission 2016). 
financial support or administrative support services 
All the local municipalities falling under Ehlanzeni District 
Municipality (EDM) have been struggling to manage their upon request by the district municipality or the local 
municipal affairs over the last three financial years (Auditor- municipality in need.
General 2015). • The Member of the Executive Council (MEC) for the 
Mpumalanga Department of Cooperative Governance 
Legislative and policy framework regulating and Traditional Affairs (COGTA) must provide assistance 
district municipalities to the district so that it is able to provide support services 
to its local municipalities.
Palmer (2011) posits that there are functions of district 
municipalities that are used in current policy debates, as The Constitution of the Republic of  
depicted in Figure 1. South Africa (1996)
The Municipal Structures Act, 1998, makes provision for the Vennekens and Govender (2005) elucidate that the division 
functions of district municipalities as depicted above. Section of the local sphere of government into local and district 
84(1) of the Municipal Structures Act, 1998, states that the municipalities is assumed to be motivated by the fact that 
district municipality should: certain services are resourcefully rendered on a much bigger 
• conduct an integrated development planning for scale because of the economies of scale, and such services 
the whole district, and a framework for integrated could be allocated to district municipalities.. It is argued that 
development plans for all local municipalities under its proper planning and improved coordination can be achieved 
jurisdiction at the district level as it is assumed that opportunities for 
• make provision for systems for supplying water redistribution exist at the district level. The Constitution of 
• make provision for the bulk supply of electricity the Republic of South Africa, 1996, outlines powers and 
• provide municipal roads across the whole district functions that these municipalities need to exercise and 
municipality, and other services such as municipal health execute to fulfil their mandates, and also provides for the 
services. establishment of structures of local government that will 
oversee the functioning of each municipality and the whole 
In terms of Section 88 of the Municipal Structures Act, 1998, sphere of local government.
the district and its local municipalities must cooperate with 
one another as follows: The White Paper on Local Government, 1998
The White Paper on Local Government (1998) is a 
GAPD policy document that outlines the systems to enhance 
developmental local government and to make it possible 
Governance Planning and for local government to achieve the outlined objectives. 
and development Serviceprovision The White Paper on Local Government (1998) adds that in administraon facilitaon areas where the local municipalities do not have adequate 
administrative capacity, district municipalities become 
Council and council Planning Water supply
administraon legally permitted to provide and maintain municipal Coordinaon of Sanitaon
Treasury naonal and provincial Electricity services in an appropriate manner; the district municipality, 
HR administraon iniaves Roads in its role of capacity building, should strengthen the 
Other ‘in house’ Local economic Other minor services capacity of local municipalities to assume municipal 
acvies development
Support to local functions; and that the district municipality should also 
municipalies provide bulk services where required. Moreover, district 
municipalities should develop cooperative relations between 
Source: Adapted from Palmer, I., 2011, An assessment of the performance of district municipalities because they are the point of coordination 
municipalities, viewed 18 December 2017, from https://pdg.co.za/wp-content/uploads/ 
2012/04/Assessment-of-the-perfromance-of-district-municipalities.pdf and location of support to local municipalities (The White 
FIGURE 1: Functions of district municipalities. Paper on Local Government 1998).
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Local Government: Municipal Structures Act, as well as national governments must, upon reaching an 
1998 (Act 117 of 1998) agreement, assist in building the capacity of municipalities to 
ensure that financial management in municipalities is 
The Municipal Structures Act, 1998, provides for the 
effective, efficient and transparent. Section 34 of the MFMA 
establishment of municipalities, and further calls for mutual further adds that provincial and national governments must 
support and cooperation between the district and local assist municipalities in their attempt to identify and resolve 
municipalities. Section 83 of the Municipal Structures Act, the financial problems that they face.
1998, also makes provision for the division of powers and 
functions between a district and local municipalities in the Intergovernmental Relations Framework Act, 
following approach: it states that a district municipality must 2005 (Act 13 of 2005)
seek to achieve the integrated, sustainable and equitable 
social and economic development of its area as a whole, by: Kahn, Madue and Kalema (2016) define intergovernmental 
relations as the relationship between the different spheres 
• ensuring integrated development planning for the district of a government hierarchy. The Intergovernmental Relations 
as a whole Framework Act, 2005, seeks to foster friendly relationships 
• promoting bulk infrastructural development and services within local government and also to ensure that each sphere 
for the district as a whole performs its functions as required by the Constitution. Part 4 
• building the capacity of the local municipalities under its of the Intergovernmental Relations Framework Act, 2005, makes 
jurisdiction so that they are able to perform their functions provisions for the formation of district intergovernmental 
and exercise their powers forums that will be responsible for facilitating and promoting 
• ensuring that resources are equitably distributed between the relationship between a district and its local municipalities.
the local municipalities so that they render municipal 
services at an appropriate level. Challenges faced by the district towards 
cooperation with local municipalities
Section 23 of the Municipal Structures Act makes provision 
Challenges that are faced by the district in improving its 
for the appointment of councillors to represent local local municipalities to deliver services vary according to the 
municipalities in the district council in order to ensure that needs of the local municipalities that they serve. De Vries, 
critical issues affecting the local municipality receive the Reddy and Haque (2008) note that these challenges are 
attention of the district municipality. Section 88(1) of the predominantly worsening local governments in countries 
Municipal Structures Act, 1998, provides that there should that are still developing, because of various aspects that have 
be cooperation and support between a district and its local negative outcomes on improved service delivery.
municipalities.
Capacity and skills shortages
Local Government: Municipal Systems Act, 
2000 (Act 32 of 2000) The African National Congress (ANC) (2010) asserts that a 
district municipality was established to ensure that local 
The Municipal Systems Act, 2000 (RSA 2000), positions municipalities receive the necessary support, as well as 
development with the local sphere of government and an equitable distribution of services and resources. However, a 
integrated approach to such an extent that cooperation number of changes in policy and trends have overlooked the 
between local government spheres becomes key to achieving original model of the two-tier system of local government, 
development. In terms of sections 76 and 77 of the Municipal which has resulted in the view that the district lacks a 
Systems Act, 2000, a municipality should develop mechanisms particular purpose of existence in local government (ANC 
that it should use to provide municipal services in its area, 2010). Most of the district municipalities lack capacity and 
and also provide for the extent to which such mechanisms there is no way that they are able to assist local municipalities 
should be reviewed by the municipality. The Municipal to deliver services (Atkinson, Van der Watt & Fourie 2003). 
Systems Act, 2000, confirms that the executive and legislative According to Sebola (2015), most criticisms in relation to a 
authority of a district or local municipality is exercised by the district failing to assist local municipalities in delivering 
council of that municipality and the council is the decision- effective and efficient services are centred on the scarcity of 
making body of the municipality in accordance with section skills, which makes it difficult for districts to strengthen 
59 of the Municipal Systems Act, 2000, which deals with the collaboration with local municipalities. Palmer (2011) posits 
delegation of powers and functions to other functionaries that district municipalities have been underspending their 
within the municipality. Municipal Infrastructure Grant allocations. Palmer (2011) 
adds that even though there has been insufficient research on 
Local Government: Municipal Finance the reasons for underspending, the likelihood is the lack of 
Management Act, 2003 (Act 56 of 2003) project management capacity in some district municipalities. 
The Municipal Finance Management Act (MFMA), 2003 (RSA This view is in contrast with the Financial and Fiscal 
2003) is a prerequisite of the Constitution and it became Commission 2017/2018 report, which elucidates that local 
effective in 2004. Section 34 of the MFMA calls for cooperation municipalities are inefficiently using their resources compared 
within all spheres of government and indicates that provincial, to districts, as districts have better institutional capacity and 
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they are able to take on more complex strategic infrastructure TABLE 1: Comparison of audit opinions for the Ehlanzeni District Municipality 
and local municipalities.
projects for rural development. According to Kanyane (2011), 
Municipality Audit opinion Audit opinion Audit opinion 
all municipal stakeholders should have a sound basic (2011/2012) (2012/2013) (2013/2014)
knowledge and application of the MFMA and other relevant Ehlanzeni DM Financially Financially Financially 
unqualified unqualified unqualified with 
legislation, because municipalities will be forced to cease with no findings with no findings no findings
operating if they do not possess proper knowledge and Bushbuckridge LM Disclaimed Disclaimed Qualified
understanding of the systems of financial management. City of Mbombela LM
Mbombela Financially Financially Financially 
unqualified unqualified unqualified 
Legislation-related challenges with findings with findings with findings
Umjindi Qualified Qualified Qualified
According to Steytler (2003), the model that is emerging in 
Nkomazi LM Disclaimed Qualified Qualified
local government is the one that sees district municipalities Thaba Chweu LM Disclaimed Disclaimed Disclaimed
becoming direct service providers instead of coordinating Source: Adapted from Auditor-General, 2015, General report on the local government 
and supporting local municipalities to perform their functions audit outcomes of Mpumalanga, MFMA 2013–14, Auditor-General South Africa, viewed 
19 September 2017, from agsa.co.za
effectively and efficiently. In terms of section 151 of the LM, local municipalities.
Constitution, 1996, district and local municipalities have 
legislative and executive authority, vested in their councils, Table 1 depicts the comparison of performances of the 
to govern and run their affairs without interference by any local municipalities under EDM, as well as the district 
other sphere of government. Steytler (2003) asks a question municipality. This comparison is for three financial years, 
about how legislative and executive authority can effectively namely, 2011/2012, 2012/2013 and 2013/2014. The table 
and efficiently be shared. Masehela, Mamogale and Makhado highlights the performance status of the district and its local 
(2012) affirm that provisions of the Constitution primarily municipalities, which is key to exploring the extent to which 
safeguard the autonomy of the municipal council from other collaboration between these spheres of local government 
spheres of government. Ensuring effective collaboration is coordinated. This performance outlook also shows 
between the district and its local municipalities becomes a the capacity of each municipality to govern its own affairs. 
challenge because of the executive authority enjoyed by each The next section discusses the research methodology of the 
of the spheres of local government. Nkuna and Nemutanzhela article.
(2012) argue that the Constitution addresses the powers and 
functions of the district and local municipalities apart from Research methodology
the delivery of services. Nkuna and Nemutanzhela (2012) go Research methodology is a way of solving the research 
on to provide a distinction between the powers and functions problem in a systematic manner (Kothari 2004). This article 
and service delivery, in that service delivery is a synthesis of looks at the state of collaboration between a district 
enforcing or applying power or authority by a municipality municipality and its local municipalities, as well as trying 
over functions to be performed. In view of the above, to find ways in which these collaborations can be enhanced 
coordination of intergovernmental forums and providing to ensure improved service delivery. A qualitative study 
support to local municipalities is a function to be performed approach was used in gathering information. Kothari (2004) 
by the district municipality. opines that the qualitative study approach is concerned with 
subjective assessments of attitudes, opinions and behaviour. 
Poor accountability The reason for using a qualitative approach is that it allows 
Masehela et al. (2012) add that there is poor accountability in for the use of open-ended questions, and spontaneity and 
local government. Manyaka and Sebola (2015) note that it can variation of the interaction between the researcher and the 
be argued that the inadequate service delivery in most South study participant (Mack et al. 2005). It carries on from the 
African municipalities is compounded by the fact that holistic assessment of the current literature on the role that district 
mechanisms for monitoring the performance of officials are municipalities play in improving service delivery in local 
inadequate, and in light of this view, officials in South African municipalities. In this study, the following institutions were 
municipalities are not properly held accountable for their selected and used:
performance. Municipal councils at the district and local • Ehlanzeni District Municipality
municipalities are found to be failing to take action on issues • the local municipalities that fall under Ehlanzeni district, 
of poor performance and matters of financial misconduct, namely, the City of Mbombela, Nkomazi and 
unauthorised, irregular and fruitless and wasteful expenditure Bushbuckridge Local Municipality
(Van Niekerk & Dalton-Brits 2016). There has been an • South African Local Government Association (SALGA)
indication of a lack of cooperation between the districts and • Mpumalanga Department of Cooperative Governance 
local municipalities from administration level to political and Traditional Affairs.
oversight; mayors raised problems of undermining the 
competency of the council without necessarily improving The population in this research study comprised the political 
delivery of services and enhancing accountability; municipal office bearers and top management officials of EDMEDM, 
officials tend to utilise party political processes to subvert political office bearers and top management officials of 
council procedures (Chabane 2009). the local municipalities within EDMEDM, top management 
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official from SALGA and the municipal cluster representative of the research study to the participants. The researcher sent 
from COGTA. Thaba Chweu Local Municipality was the list of semi-structured questions to all research participants 
excluded from participating in this study because of the so that they could prepare themselves for the interview 
non-availability of officials as a result of work commitments sessions, which also served as a method of saving time.
and other reasons. Purposive sampling, which is a part of 
non-probability sampling, was used and the selection of Data analysis techniques
participants involved was informed by the judgement of the 
researcher. According to Tongco (2007), purposive sampling As argued by Cohen, Manion and Morrison (2007), qualitative 
is the deliberate choice of an informant because of the data analysis is the process of ensuring that views and 
qualities possessed by that informant. Tongco (2007) adds opinions of situations, themes, corresponding patterns, 
that the danger of using purposive sampling is that the categories and regular similarities are well understood as 
researcher exercises judgement based on the reliability and provided by the research participants. When engaging in 
competency of the informant. However, the reason for using qualitative data analysis, the researcher wishes not only to 
purposive sampling was that the information needed for the reflect the different steps, processes and the procedures that 
study could be found from a certain group of officials, the top are at the researcher’s disposal, but also to point out recurring 
management and political office bearers, because they bear features that reveal the voices and emotions of participants to 
the responsibility to oversee the overall functioning of local the researcher (Vosloo 2014). After the data collection process 
government. had been completed, the researcher listened to the interview 
recordings a number of times while checking against the 
Data collection methods notes that were taken during the interviews. The results were categorised in accordance with the questions asked and an 
Prior to commencement of data collection, permission to analysis of remarks was made according to the outcomes 
undertake the research study at EDMEDM was sought from provided during the study process. The following section 
and granted by the municipal Manager. The researcher presents the findings of the research study.
further requested permission to extend the research study to 
all local municipalities within Ehlanzeni district. Three of Ethical consideration
the four local municipalities granted permission in writing 
for the researcher to carry out the research project, Request letters to conduct the research were sent to the 
namely Nkomazi Local Municipality, City of Mbombela institutions within which the research has been conducted 
Local Municipality and Bushbuckridge Local Municipality. and permission was granted. All sources of articles and 
Permission was also obtained from SALGA (through email) information used in this article have been well cited and 
and Mpumalanga COGTA (through telephonic conversation), acknowledged. The names and personal details of the 
which also participated in the study. Sutton (2015) asserts research participants are kept private to protect them.
that whatever data collection method is employed in a 
research study, it will involve the generation of large amounts Presentation of findings
of data. Interview as a research instrument was selected by This article sought to contribute to the discourse on the state 
the researcher and is clearly explained below. of collaboration between a district and its local municipalities. 
This was done with the purpose of understanding the 
Interviews profundity of the need for district municipalities to live up to 
De Vos et al. (2005) posit that an interview is a principal their legal mandate of playing a coordinating and supporting 
method of data or information collection in qualitative role to local municipalities. This is understandable because, 
research. According to Rubin and Rubin (2005), interviews are in practice, it appears that there is no clarity as to what 
extended conversations about a research topic in which the exactly the role of a district municipality is in assisting local 
researcher guides the respondent and a follow-up on feedback municipalities to deliver services. Moreover, section 151 of 
supplied by the respondent can be made. In this research the Constitution of the Republic of South Africa, 1996, states 
study, semi-structured interviews were conducted so that that a municipality should govern its own affairs without 
answers could be open-ended to produce more ideas on the interference. Afrika (2010) notes that lack of involvement by 
topic to constructively address the research objective. Semi- district municipalities limits the coordination role that they 
structured interviews comprise several main questions should be playing in ensuring improved service delivery in 
formulated with the aim of defining the areas to be explored, local municipalities.
but they also permit the researcher or the respondent to 
deviate to obtain feedback in broader detail (Gillet al. 2008). In State of collaboration between 
semi-structured interviews, it is critical for researchers to pay Ehlanzeni District Municipality and its local 
attention to the participant’s responses in order to ascertain municipalities: Views of district officials
and explore new arising lines of inquiry related to the research It is understood that section 83 of the Local Government: 
study (Nieuwenhuis 2007). Prior to the collection of data, Municipal Structures Act, 1998 demonstrates that a district 
briefing sessions were held through face-to-face meetings, municipality is established not only to deliver services 
phone calls and the use of emails so as to explain the purpose directly to the people, but also to play a supporting and 
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coordinating role in assisting local municipalities to efficiently It has been noted that most of the representatives of local 
and effectively provide services to the local communities that municipalities do not honour the consultative forums 
they serve. In other words, the district municipality conducts organised by the district municipality, irrespective of the 
planning for the local municipalities and also equitably sector departments which are fully committed to working 
distributes resources to those local municipalities so that they with the district so that these local municipalities receive the 
are well capacitated and able to execute their constitutional necessary support. This may be attributed to the fact that 
and legislative mandates. However, the view of one of the the Constitution of the Republic of South Africa, 1996, gives 
managers of SALGA, who is a female aged 51 years, is that too much autonomy to local municipalities, when it states 
the district municipality fails in its coordination role, as well ‘a municipality should govern its own affairs’ without 
as the manner in which it conducts planning for the whole interference. Some of the respondents from Bushbuckridge 
district, and added that: Local Municipality, a male who is a Manager aged 49 years, 
To be honest, there is a serious lack of coordination by the and Nkomazi Local Municipality, a male who is a Chief 
district municipality and until that matter is resolved, local Operations Officer aged 47 years, stated that:
municipalities will continue to fail the public. The integrated There is a lack of clarification of roles and responsibilities of a 
development planning conducted by the district is not aligned district and a local municipality. A clear distinction needs to be 
with the planning of local municipalities, and some of the local made from the legislation so that the workers can know exactly 
municipalities fail to cooperate with the district. what should be done and what is expected of them.
The challenge of district-wide planning was supported by Views of local municipality officials regarding 
the respondent from Nkomazi Local Municipality who collaboration between Ehlanzeni District 
stated that ‘the district municipality may sometimes conduct Municipality and its local municipalities
planning in the space of a local municipality without having 
consulted that local municipality because local municipalities It was noted that the contribution of EDMEDM in assisting 
local municipalities is good because they have been able to 
have their own priorities’.
assist local municipalities such as Bushbuckridge Local 
Municipality when it was placed under administration in 
A key informant from Bushbuckridge Local Municipality 
2012. The district was also able to assist the City of Mbombela 
stated that the impact of EDMEDM in assisting local 
Local Municipality in 2017 by deploying a Chief Financial 
municipalities to deliver services is good and progressive. 
Officer to assist in managing the financial affairs of the local 
However, it was also noted that there are many areas for 
municipality. In light of the deployment of a Chief Financial 
improvement. For instance, the manner in which coordination 
Officer to the City of Mbombela Local Municipality, Kanyane 
is conducted by the district municipality, as well as their ability 
(2011) notes that it is critical for municipal officials 
to assist local municipalities need to be given the requisite 
and stakeholders to have knowledge of sound financial 
attention. Moreover, different role players in the district management systems because without such expertise, 
municipality perceive the Intergovernmental Relations Framework municipalities would be forced to cease operating.
Act, 2005 (Act 13 of 2005) as providing an opportunity to 
strengthen collaboration between a district and its local The study revealed that the role players in local municipalities 
municipalities through the district forums in which they invite are well conversant with the consultative forums that are 
sector departments to be fully involved to ensure that local aimed at strengthening collaboration between a district 
municipalities receive the necessary support, and that there is municipality and local municipalities, establishing in terms 
a sound working relationship between the district and its local of the Intergovernmental Relations Framework Act, 2005 (Act 13 
municipalities. However, the respondent from SALGA stated of 2005). In spite of this, some municipalities are of the view 
that there is poor coordination of these consultative forums, that such forums are not assisting them. A respondent from 
and collaboration between the district and its local one of the local municipalities, a male who is a General 
municipalities is very poor. This poor coordination attests to Manager aged 52 years, stated that:
the comments made by Afrika (2010) that there is a lack of 
The equitable share allocated to the district municipality by the 
involvement in district municipalities, which limits the 
national government should be directed to local municipalities 
coordination role that they are supposed to play. It was also to strengthen their capacities and scrap district municipalities 
noted that the Municipal Structures Act, 1998, calls for because they play a relatively minimal role on the sphere of local 
collaboration between the district and the local municipalities. government.
Section 83(3) of the Municipal Structures Act, 1998, further 
mandates the district municipality to conduct district-wide The reason for the perception that consultative forums are 
planning, but it remains a challenge to ensure the success of not assisting is because the district municipality does not 
this planning. This is evident in that a Director from the district have enough human and financial resources to implement 
municipality, who is a male aged 44 years, observed as follows: resolutions taken at forums, and the implementation 
Some of the local municipalities do not support the forums becomes dependent on the budgets of local municipalities. 
that have been put in place to share experiences between us The observation that district municipalities should be 
(the district municipality) and local municipalities, and they scrapped is not new. It has been raised in the past as a result 
sometimes fail to attend the meetings. of the frustrations that officials have regarding the lack of 
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Page 8 of 10 Original Research
clarity regarding the roles of district and local municipalities. important that these municipalities should streamline their 
The view of scrapping district municipalities is supported plans, thereby consulting each other on issues of common 
by Holomisa et al. (2017), in Mokoena (2017), who argued interest and to avoid working in silos. As it has been observed 
that district municipalities are just a buffer zone with no in this study, respondents from local municipalities stated 
clear-cut service delivery objectives, except in some that they often conduct their own planning without 
instances, where district municipalities are responsible for the district. This is, however, contrary to section 23 of 
the coordination of the provision of water and sanitation. On the Municipal Structures Act, 1998, which provides for the 
the contrary, the same respondent who stated that district appointment of councillors to represent local municipalities 
municipalities should be abolished, proposed that the in the district council so as to ensure that issues hindering 
district should offer support to local municipalities during service delivery in local municipalities are known by the 
community service delivery protests, which is also suggested district, and that plans of local municipalities are in line with 
by a respondent from Bushbuckridge Local Municipality. the programmes and actions, as well as the plans of the district 
Respondents from SALGA and Bushbuckridge and Nkomazi municipality.
Local Municipalities mentioned that there is ambiguity in 
the discharge of the powers and functions of the district Section 106 of the Municipal Systems Act, 2000, gives 
municipality, resulting from unclear legislation regarding powers to the provincial government to hold a municipality 
the roles and responsibilities of district municipalities accountable for non-performance and maladministration. 
and local municipalities. This ambiguity in legislation There is a need for the addition of a clause that would give 
corroborates with Nkuna and Nemutanzhela’s (2012) a district municipality some legal ground to hold a local 
findings in their study ‘Locating the role of service delivery municipality accountable for failure to execute constitutional 
within powers and functions of local government in South and legislative mandates and in that way, district and local 
Africa’, which argued that there is a misperception in policy municipalities will cooperate with one another. Subsequent 
and in practice on the concept of service delivery within the to legislative review, there is a durable need for review of 
functioning and powers of district and local municipalities. certain critical aspects in legislation, such as the discharge in 
One of the respondents from the Mpumalanga Department roles and responsibilities between a district municipality and 
of Cooperative Governance and Traditional Affairs added a local municipality so that each of the spheres of local 
that certain local municipalities do not respect the authority government knows exactly what functions to execute, instead 
of the district municipality, and it negatively impacts on of a district municipality providing services when a local 
their relationship because they only want support when municipality lacks such capacity.
their local municipalities are in need. The respondent, who 
is a male Director aged 55 years, observed that: Conclusions and recommendations
Some of the councillors of local municipalities within Ehlanzeni This article sought to investigate the state of collaboration 
do not respect the district; they will only come when they need between a district and its local municipalities, as well as trying 
help. The district municipality continues to obtain clean audits, 
to find ways in which these collaborations can be enhanced to 
whereas they are struggling, so you can ask yourself …
ensure improved service delivery, with EDMEDM being used 
This view was supported by a respondent from the district as a case study. The following was discovered:
municipality who stated that some local municipalities have • Ehlanzeni District Municipality fails to coordinate 
lost respect for authorities of the district municipality, adding intergovernmental forums as prescribed in the 
that local municipalities recommend conducting their own Intergovernmental Relations Framework Act, 2005, to promote 
municipal planning without the interference of the district. and facilitate the relationship between a district and its 
local municipalities.
Mechanisms suggested to strengthen • Some of the local municipalities under the district do 
collaboration between the district and not observe and respect the authority of the district 
its local municipalities municipality and its role in local government.
It was proposed that district intergovernmental forums • There is ambiguity in legislation regarding the roles and 
should sit more often so that collaboration between the district responsibilities of the district and its local municipalities.
municipality and local municipalities can be strengthened. 
This is because most of these forums could play a crucial role According to the Municipal Structures Act, 1998, a district 
in ensuring that councillors get to work as a collective and municipality is not established to deliver services directly to 
subsequently develop respect for each other. Based on the local communities, unless a local municipality lacks such 
findings presented above, councillors should attend training capacity. It is critical that municipal officials and councillors 
so that they know their roles and responsibilities and get to across the country are familiar with legislation that governs 
understand procedures and processes that govern district and collaboration between the district and local municipalities. 
local municipalities to promote a cooperative, democratic and Based on the findings presented above, the contribution 
accountable government. The cooperation between a district by EDMEDM in improving service delivery in local 
and a local municipality is central for efficient and effective municipalities is good. However, the district municipality 
delivery of services to communities. For this to happen, it is has some areas of improvement, in particular, on their 
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Page 9 of 10 Original Research
coordination role in which the district meets with all local Data availability statement
municipalities to strengthen collaboration on local government 
Data sharing is not applicable to this article as no new data 
matters. There is no cooperation between the district and were created or analysed in this study.
some of its local municipalities, which suggests that the 
district municipality may not be able to successfully 
coordinate the intergovernmental forums. As much as it Disclaimer
has been noted that most of the local municipalities do The views and opinions expressed in this article are those of 
not honour these forums, the district municipality should the authors and do not necessarily reflect the official policy or 
continue to arrange the meetings and involve the higher position of any affiliated agency of the authors.
structures of government when necessary.
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