Original Research

Embedding public participation in service delivery planning in South Africa

France K.L. Kgobe, Mohamed S. Bayat, Abdulrazak Karriem

Received: 30 Sept. 2024; Accepted: 02 Dec. 2024; Published: 28 May 2025

Copyright: © 2025. The Author(s). Licensee: AOSIS.
This is an Open Access article distributed under the terms of the Creative Commons Attribution License, which permits unrestricted use, distribution, and reproduction in any medium, provided the original work is properly cited.

Abstract

Background: In the past 30 years, South Africa has prioritised public participation in service delivery planning as a cornerstone of democratic governance by using forums and meetings to integrate citizen input. This commitment is backed by legal frameworks to enhance public service standards and ensure community voices are represented in local governance process.

Aim: This article evaluates public participation in service delivery planning and its impact on democratic governance and sustainable service delivery in South African municipalities. It explores how citizen engagement through participatory platforms aligns government services with citizens’ needs and expectations.

Methods: The study used a mixed-methods approach to analyse stakeholder involvement in service delivery planning. Eighty respondents were selected through probability sampling, and quantitative data were collected via a closed-ended questionnaire. Qualitative insights were obtained through semi-structured interviews.

Results: The study reveals that public participation in service delivery planning is common in South African municipalities, but its effectiveness faces challenges. While technological advancements could enhance engagement, inadequate communication strategies, limited access to information, and distrust between citizens and local authorities impede public input, ultimately affecting service delivery planning quality processes.

Conclusion: The article emphasises public participation in service delivery planning to promote democratic governance and ensure municipal service viability, highlighting the value of collaboration with citizens and the use of participatory platforms and technology tools.

Contribution: This study evaluates South Africa’s participatory service delivery planning, highlighting challenges in translating public input into improved services and the potential of technological advancements to enhance participation and service delivery.

Keywords: public participation; service delivery planning; democracy; service delivery protest; municipalities.

Introduction

The emphasis on public participation in South Africa is rooted in the principles of democratic governance and accountability, aiming to empower citizens to actively engage in decision-making processes that affect their lives. This focus is reflected in various legislative frameworks, such as the Constitution of the Republic of South Africa, which mandates local governments to encourage community involvement in development matters. Public participation is seen as essential for enhancing service delivery, ensuring that government actions align with the needs and expectations of citizens and fostering transparency and trust between the government and the public. Additionally, mechanisms such as Integrated Development Planning (IDP) processes are designed to facilitate citizen input, thereby promoting a more inclusive approach to governance and addressing historical inequalities in service provision. This emphasis has led to the development of various forums, symposia, meetings and hearings where citizens engage with government officials (Barnes et al. 2003). We use the terms ‘citizen participation’ and ‘public participation’ interchangeably throughout this article to avoid confusion. No government official or expert can claim to fully understand the needs of the people (Sebola 2017). Therefore, Kgobe, Bayat and Kariem (2023) deem public participation in service delivery planning crucial for ensuring the long-term viability and democratisation of service delivery in South African municipalities. Participatory service delivery planning is fundamental in a democratic setting as it allows people to express their needs and concerns. Public participation empowers individuals and encourages their engagement in matters affecting them (Mauger 2019).

This engagement facilitates the government’s identification of necessary services to improve the quality of life and ensure better access to socioeconomic services. Importantly, public participation brings to light previously undisclosed or hidden matters, thereby facilitating the planning process (Mauger 2019). Furthermore, public participation allocates resources based on public priorities, thereby preventing waste (Hasan, Nahiduzzaman & Aldosary 2019; Merino 2018). However, despite the constitutional mandate for public participation, decisions sometimes fail to adequately consider citizens’ views and contributions (Hasan et al. 2019; Merino 2018). The Constitution of the Republic of South Africa underscores the importance of public participation by local government in development matters affecting communities (Hoffman 2019; Zhang 2019). Scholars, such as Zhang (2019), Hoffman (2019) and Kgobe et al. (2023), argued that frequent violations of these rights impact service delivery planning across all government levels. Despite the constitutional provisions and the Municipal Systems Act of 2000 mandating public involvement in service delivery planning, challenges persist in ensuring effective participation (Meier et al. 2013). Citizens suffer from ineffective public participation, as they might not receive consultation on the nature, scope and impact of the public services they receive (Meier et al. 2013). This lack of consultation deprives citizens of the opportunity to influence decisions that affect their standard of living, leading to disengagement from the decision-making process (Maphunye & Mafunisa 2008).

Citizen participation serves as a tool for citizens to feel valued and heard, enhancing their sense of belonging and satisfaction with service delivery (Maphunye & Mafunisa 2008). Improper planning, often because of inadequate stakeholder participation, results in wasted funds and poor service delivery (Meier et al. 2013). Insufficient funding directly impedes the achievement of development goals (Meier et al. 2013). The Public Participation Framework, particularly Section 8, provides a platform for South African citizens to participate in discussions concerning their development needs, aiding the government in service delivery planning (Meier et al. 2013). For instance, communities facing shortages of essential services like water, electricity and health services can voice their needs through this framework (Marutha 2011). Despite these frameworks, inadequate participation in service delivery planning has led to protests and unrest in communities, resulting in loss of life and property damage (Mamokhere & Kgobe 2023; Netswera & Kgalane 2014). Mattes (2007) highlights a decline in political and community participation, which correlates with decreased trust in government and satisfaction with economic policies. Therefore, integrated development planning, which emphasises public consultation, is crucial to prevent violent protests stemming from dissatisfaction with service delivery decisions (Tsheola 2012).

Materials and methods

The article employed convergent parallel research methods to investigate stakeholder engagement and participation in service planning, with a focus on Polokwane Local Municipality (PLM) as a case study. We used a non-probability sampling technique to randomly select 80 respondents, asking them to complete a questionnaire with closed-ended responses. We also used purposive sampling to select three respondents and then conducted face-to-face interviews with them using a semi-structured interview schedule. The researchers ensured compliance with all necessary research ethics and integrity prerequisites. All participants provided informed consent after receiving a detailed explanation of the article’s purpose and objectives. We also requested participants to read and sign a consent document, signifying their voluntary commitment to the research endeavour. The study employed both quantitative and qualitative data analysis methodologies. We analysed the quantitative data from open-ended questionnaires using descriptive statistical methods in Microsoft Excel. We effectively presented and elucidated the findings using bar graphs and pie charts. Qualitative data, collected through face-to-face, semi-structured interviews, underwent rigorous analysis using the thematic content analysis approach. We used NVivo software to transcribe the interview recordings. We continued to collect and analyse data until we reached the point of saturation.

Theoretical framework and literature review

Theoretical framework

For this article, the following two theories of local government will be adopted to underpin the argument and crux of the article. Notably, the Democratic Participatory School of Thought and Efficiency Services School of Thought will be discussed in greater detail in the following subsequent sections.

Democratic Participatory School of Thought: The Democratic Participatory School of Thought argues that local government serves as a vital vehicle for promoting democracy by creating opportunities for political participation and civic education among local citizens (Ola 2007). Rooted in the principles of utilitarianism as articulated by John Stuart Mill, this ideology highlights representative government as the most effective form of governance, fostering values such as liberty, equality and fraternity. The representative government encourages individuals to prioritise their immediate interests while also recognising the legitimate demands of others and promoting political education, participation and communication (NOUN 2012). According to the School of Democratic Participation, local governance is intrinsic to democracy, embodying its principles irrespective of the specific services it provides. At the local level, there is the highest degree of consultation and participation in governance processes. Local governments play a pivotal role in fostering political engagement and nurturing political skills, which can later be leveraged at higher levels of government (eds. John & Rupak 2008). Scholars such as John and Rupak (eds. 2008) underscore the significance of local governments in the democratic process, emphasising the importance of ordinary citizens electing representatives at the grassroots level and holding them accountable. Horste (2005) argued that democratic structures and values at the local government level are essential for the successful implementation of democracy, as they contribute to accountability, transparency and effective representation. Local self-government, according to Nico (2008), enhances democracy by promoting representative and participatory governance, with a focus on underrepresented minorities and disadvantaged segments of society. Chukwuemeka et al. (2014) highlighted the accountability of smaller government units to their constituents through direct democratic means, facilitated by citizens’ proximity to elected representatives in local governments. Participatory democracy thrives in local areas, where communities closely identify with political institutions and have a sense of ownership over common resources (Oviasuyi & Dada 2010). Citizen participation in governance, particularly in rural and grassroots areas, is therefore more achievable within the framework of local government.

Efficiency Services School of Thought: The Efficiency Services School of Thought emphasises that the primary role of local government is to deliver services efficiently, with success measured against national standards (Ola 2007). It challenges the notion of local governance as a platform for promoting democratic principles, arguing that regional politics often serve specific interests rather than fostering a broad understanding of democracy (NOUN 2012). Proponents highlighted that local government is uniquely positioned to provide tailored services to communities and in some cases they consider it indispensable for delivering certain services (Kafle & Karkee 2003). They prioritise efficient service delivery above all other municipal duties, contending that democratic engagement is less critical than ensuring proficient service provision. According to proponents of this school of thought, a reduction in democratic participation is acceptable if constituents receive efficient services from local authorities (Sharpe 1970). They argue that local government’s proximity to communities enables more efficient provision of certain services compared to state or central government. Utilising local government as a conduit for implementing policies and programmes may also prove more effective in some cases (Nico 2008). Local-level decisions and development programmes are considered more practical and sustainable because of their consideration of local diversity and historical complexity (Nico 2008). Local government allows for the effective mobilisation of popular support and resources for government projects and programmes, with the ability to generate internal revenue and supplement it with state and federal funds for local improvements (Nico 2008).

Literature review

The significance of ‘planning’ in service delivery often goes unnoticed, with services occasionally arising from political motivations rather than careful planning (Mnisi & Selelo 2021). When democratic contexts provide services without robust planning procedures, the proverb ‘the end justifies the means’ becomes more prominent (Mnisi & Selelo 2021). While the effectiveness of public participation in service delivery planning remains uncertain, this article seeks to advocate for public involvement as a crucial tool in this process. The subsequent analysis delves into the impact of public input on service delivery planning, examining two methods: bottom-up and blueprint approaches. Over the past 29 years, the South African government has increasingly recognised the importance of citizen opinions on governance and service delivery because of the transition to democracy following the end of apartheid in 1994, which emphasised inclusivity and participation (Mnisi & Selelo 2021). The Constitution mandates public participation, particularly in local governance, while legislative frameworks like the Municipal Systems Act of 2000 outline processes for citizen engagement. Technological advancements have facilitated easier communication between citizens and government, enabling broader feedback mechanisms. Additionally, grassroots movements and civil society organisations have advocated for greater public involvement, highlighting the need for accountability and transparency in governance. This shift aims to address historical inequalities and improve service delivery by ensuring that government actions align with the needs and priorities of all citizens. Citizens now have higher expectations of government performance, prompting authorities to align service delivery with citizens’ needs through technological advancements. Integration approaches such as one-stop centres and combined services aim to make it easier for people to access government assistance by bringing different programmes and departments together in one place (Tsheola et al. 2014). In its pursuit of national development goals, South Africa relies on competent and efficient local governments outlined in service delivery agreements and charters, in line with Batho Pele principles. The evolution of service delivery mechanisms reflects a growing recognition of citizen expectations and technological capabilities. By consolidating services and optimising delivery methods, governments aim to better meet the diverse needs of citizens. In this context, public participation emerges as a vital component, ensuring that service delivery strategies are responsive to citizen needs and expectations.

Service delivery planning encompasses decision-making and change management to mitigate threats to human dignity associated with essential public resources such as water, power, transportation, education and healthcare (Tsheola et al. 2014). Hence, the adage ‘service delivery planning should be about the people’ emphasises the importance of public participation, also known as involving the public in the planning process. Upholding the two foundational principles of democracy – popular control and political equality – necessitates the full exercise of ‘people power’ through public participation in decision-making processes. While South African public administration studies often frame democracy as a system of government, the practical implementation of planning is characterised by complexities, disputes and crises (Dale 2004; Sebola 2014; Theron 2008; Tsheola et al. 2014). Defined as an attempt to reduce uncertainty about future outcomes and achieve desired objectives, planning is inherently normative and future-oriented, aiming to anticipate and manage change (Theron 2008). Three factors that construct the planning typologies are planning objectives, activities and operational levels (Dale 2004). Various planning objectives, such as wartime planning, counter-cyclical planning and development planning, delineate different planning approaches (Dale 2004).

In South African service delivery planning, two predominant methodologies are regulatory planning, which employs a top-down approach and advocacy planning, which employs a bottom-up strategy (Tsheola et al. 2014). Regulatory planning involves centralised decision-making processes, typically initiated from higher levels of government and cascaded down to local authorities (Tsheola et al. 2014). Conversely, advocacy planning emphasises grassroots involvement, prioritising the perspectives and needs of local communities in the planning process (Tsheola et al. 2014). The following section will dissect these two strategies thematically to provide insights into their application and implications for service delivery planning in South Africa. This section’s discussion of advocacy and regulatory planning is pivotal, particularly in the context of service delivery planning. Regulatory planning, often ineffective in regions marked by severe poverty, disadvantage and inequality, fails to address the complex needs of communities (Calland 2013; Habib 2013; Mbeki 2009). In South Africa, where a significant portion of the population resides in impoverished informal settlements, the inadequacy of regulatory planning exacerbates social disparities. The public is not interested in service delivery planning, especially in Integrated Development Plan (IDP) initiatives because there is no meaningful political discourse and principles like shared provision, non-rivalry, non-excludability and non-rejectability are also not considered. In South Africa, service delivery planning is guided by two main methodologies: regulatory planning and advocacy planning. Regulatory planning follows a top-down approach, where decisions are made at higher levels of government and then passed down to local authorities. This method often centralises power and can lead to a disconnect between the government and the communities it serves. For instance, policies and plans may be developed without adequately considering the unique needs and circumstances of local populations, particularly in areas facing severe poverty and inequality. This can result in ineffective service delivery, as the plans may not address the specific challenges faced by communities, especially those living in informal settlements where basic services are often lacking. In contrast, advocacy planning adopts a bottom-up approach, emphasising the importance of grassroots involvement in the planning process. This methodology prioritises the voices and perspectives of local communities, ensuring that their needs and priorities are central to service delivery planning. By engaging citizens directly, advocacy planning aims to create more responsive and equitable services that reflect the realities of those who are most affected.

The significance of these two approaches becomes particularly evident in the context of South Africa’s socio-economic landscape. Many citizens, especially in impoverished areas, feel disillusioned with service delivery planning initiatives such as the IDPs. This disinterest stems from a lack of meaningful political discourse and engagement, where citizens do not see their concerns being addressed or valued in the planning process. Furthermore, principles such as shared provision and inclusivity are often overlooked, leading to a sense of alienation among the public. While regulatory planning may streamline decision-making, it often fails to meet the complex needs of disadvantaged communities. In contrast, advocacy planning seeks to empower citizens and ensure that their voices are heard, ultimately leading to more effective and equitable service delivery. Understanding these methodologies is crucial for scholars and practitioners alike, as they highlight the importance of citizen engagement in creating responsive governance systems that address the diverse needs of South Africa’s population.

However, IDP frequently lacks representation from public entrepreneurs who can advocate for the needs and aspirations of underprivileged communities. This deficiency contributes to escalating social divisions, undermining public accountability and fostering public discontent; all these factors can fuel violent protests. Implementing an advocacy campaign centred on the public interest can reshape policy discussions around service prioritisation and implementation, fostering popular control and public participation in decision-making processes. As service delivery planning involves political and ideological decision-making, public participation becomes indispensable for ensuring democratic inclusiveness and addressing current financial constraints (Mnisi & Selelo 2021). The classification of planning activities distinguishes between socioeconomic, environmental and technical planning, underscoring the importance of stakeholder engagement at various levels of planning (Dale 2004). Integrated community development planning, characterised by comprehensive territorial, socioeconomic, environmental and technical considerations, represents an aspirational goal for municipalities in South Africa, albeit one that remains challenging to achieve because of the complexity of planning at such a sophisticated level (Tsheola 2012). Scholars, such as Goodall (1987), Smith (2004) and Jaglin (2008), delineated the two primary planning approaches: regulatory and advocacy. Regulation prioritises technical planning and seeks to allocate resources optimally among competing needs within society. This approach mainly focuses on the provision of private market goods. Advocacy planning, on the other hand, emphasises process-centred planning and aims to deliver public services, particularly to marginalised groups such as the poor. Advocacy planning seeks to mobilise resources to address neglected needs or to redirect existing goals towards achieving new social objectives. This approach relies on a public entrepreneur to advocate for the needs and interests of specific social groups, ensuring equal and open access to public services. According to principles such as joint provision, non-rivalry, non-excludability and non-rejectability, all members of society should have equal access to these services, even in the absence of a functioning market (Goodall 1987; Tsheola 2012).

However, in South Africa, municipal and IDP managers often lack the expertise of public enterprise planners, leading to decision-making dominated by technical engineers (Jaglin 2008; Smith 2004). This approach, which seeks to address inadequate public services through private market mechanisms, has led to glaring inequalities, particularly in impoverished settlements where residents cannot afford essential services. Consequently, South Africans experience increasing frustration and disenchantment with the delivery of public services, exacerbating social tensions and discontent (Asha & Makalela 2020; Mnisi & Selelo 2021). While advocacy planning aims to ensure equitable access to public services for all members of society, the current approach in South Africa often fails to achieve this goal because of the dominance of technical decision-making and reliance on private market mechanisms. This article posits that IDP regulatory planning diminishes public involvement in decision-making, relegating authority to technical experts and thus undermines the potential for political dialogue to address historical injustices. It argues that regulatory planning fails to be responsive to public opinion or to uphold democratic principles (Kollapen 2008). Consequently, it suggests that IDP service planning falls short of restoring local government to the people, as it lacks the involvement of a ‘public entrepreneur’ to ensure that infrastructure investments align with public needs through inclusive participation (Mamokhere 2022a; Mzimakwe 2010).

Ethical considerations

Ethical clearance to conduct this study was obtained from the University of the Western Cape, Faculty of Economic and Management Sciences (HS22/6/39) on 12 September 2022.

Results

Presentation of quantitative results

The primary aim of this research is to gain insight into participatory public service delivery planning, with a specific focus on the Polokwane municipal area, utilising the Bloodriver village as a case study. It seeks to investigate and comprehend the challenges, failures and approaches employed within the Polokwane municipal area. In the subsequent analysis, several key questions or themes are explored.

Municipality use of bottom-up approach in involving citizens in service delivery planning

Figure 1 illustrates respondents’ views on the use of the bottom-up approach by the municipality in engaging citizens in service delivery planning. For this purpose, 50% of the respondents answered ‘YES’, while the remaining 50% answered ‘NO’. From the graph, it is evident that the use of the bottom-up approach by the municipality is commendable to some extent, as reflected by the 50% positive response rate. However, the equal proportion of 50% negative responses of the respondents (NO) clearly indicates that the municipality is only partially committed to community involvement in service delivery planning and therefore highlighting the need for greater efforts by the municipality to enhance citizen participation. Community perceptions of service delivery planning in Polokwane Municipality still require significant reform, particularly to include the involvement of those who feel excluded from the system. Furthermore, the complexity of promoting a bottom-up approach to public participation in service delivery planning can be derailed by a lack of interest from local communities in community affairs.

FIGURE 1: Use of bottom-up approach in involving citizens in service delivery planning.

Municipality use of top-down approach in engaging citizens on service delivery planning

Figure 2 illustrates respondents’ perceptions of the municipality’s use of the top-down approach in engaging citizens in service delivery planning. To this end, 63% of respondents indicated that the municipality uses the top-down approach. Figure 2 also shows that a small proportion of respondents, 37% denied the use of the top-down approach by the municipality in involving citizens in service delivery planning. The literature on planning in Africa suggests that service delivery planning has largely remained unreformed from the colonial planning approach, which is characterised by a top-down approach. The small percentage of respondents who did not perceive the municipality as using a top-down approach suggests that some citizens either do not recognise the influence of public participation in service planning or see little value in it. In addition, the current political landscape may contribute to public disinterested in municipal affairs because even when they are consulted, their wishes are not met, which can lead to never-ending protests in service delivery, as public can assume that they are only consulted to comply with regulations.

FIGURE 2: Use of top-down approach in engaging citizens in service delivery planning.

Failures of service delivery planning

Figure 3 focuses on respondents’ perceptions and understanding of the causes behind the service delivery planning failures in the community. For the purposes of this article, the researcher limited the identified service delivery failures to the following categories: lack of financial resources, lack of information, maladministration, unqualified staff, ineffectiveness of municipal council members, inadequate monitoring and evaluation capacity and corruption. According to the findings, 30% of the respondents indicated that a lack of information contributed to the failure of service delivery planning, while 21% cited corruption as a significant factor. Additionally, 20% of the respondents believed that the failure of service delivery was because of a lack of monitoring and evaluation capacity, while 13% believed that all the listed failures contributed to the failure of service delivery planning. On the other hand, 10% of the respondents believed that service delivery fails because of unqualified staff, 5% believed that it is because of the inefficiency of the municipal council members and only 1% attributed failures to maladministration. The literature on service delivery suggests that the ANC-led government faces protest actions related to perceived deficiencies in basic services and systemic corruption at the local government level. These findings suggested that local governments suffer from various problems and that there is no one-size-fits-all solution. Moreover, the findings of the article indicate that the municipality is struggling to manage the coronavirus disease 2019 (COVID-19) pandemic because of a lack of resources and insufficient capacity to conduct virtual citizen participation. The lack of resources has hindered community involvement in the annual review processes or consultations of communities essential for the development processes.

FIGURE 3: Failures of service delivery planning.

Challenges in service delivery planning

The main purpose of this figure is to highlight the extent and nature of the challenges facing service delivery planning within the Polokwane Municipality’s development planning process. Figure 4 illustrates the key challenges faced by the communities in planning service delivery. The results show that a majority of the respondents (38%) believed that service delivery protests contribute to hindrance in effective service delivery planning, while 36% of the respondents indicated that overpopulation is also one of the challenges faced by the municipality. On the other hand, a larger minority 23% of the respondents believed that vandalism contributes to and is a challenge to service planning, while a smaller proportion (3%) of the respondents cited other unspecified challenges in service planning. Furthermore, the COVID-19 pandemic has contributed to reduced community participation across many communities. The researcher argues that the pandemic has reformed the traditional practices, including community participation in service delivery planning. As a result of these reforms, some communities have found it difficult to implement service delivery planning and community participation successfully and efficiently, while other communities have easily moved to virtual community participation platforms. The literature on local government suggests that a series of protests, demonstrations, strikes and political violence can gradually turn broadly into social unrest under the right conditions. Ultimately, protests on service delivery that lead to the vandalism of municipal facilities can be understood as an expression of collective dissatisfaction with the ANC-led government. Also, the literature argues that citizens increasingly believe that peaceful protests or participation in elections are insufficient mechanisms to voice their grievances and achieve their meaningful goals.

FIGURE 4: Challenges of service delivery planning.

Presentation of qualitative results

The purpose of this objective was to assess the level of awareness among key informants regarding the nature of participatory service delivery planning. To achieve this objective, interviews were conducted with three key informants. The analysis effectively identified and appropriately presented both common and distinctive themes. Thus, the analysis, presentation and discussion of the qualitative information gathered from the key informants are included in this section. The outcomes are discussed below.

Challenges faced by the municipality in enhancing public participation in service delivery planning

The researcher asked the key informants about the challenges the municipality faced when enhancing public participation in service delivery planning. The responses from the key informants are articulated below.

Key informant A indicated that:

‘One of the biggest challenges we are facing as a municipality is that most of the community members do not understand the IDP processes as they confuse public participation with it meaning projects. Furthermore, there is a public participation fatigue meaning that people are getting tired of participating without seeing development and change within their society. The municipality does not have a sufficient budget to address all service delivery backlogs faced and that makes the municipality fail to deliver quality services that have value for money. We as the municipality are concerned when there is a less turn out of stakeholders to public participation meetings which later leaves the municipality deciding with those who would have attended.’ (Key informant A)

Key informant C indicated that:

‘The challenge that we are facing is the compliant handling system that is not properly coordinated as the members of the public are complaining that they report issues and most time their issues are not resolved and that makes the community lose trust in the municipality and they end engaging in service delivery protests. One of the other two key challenges is Political interference during stakeholder consultation and budgetary constraints that make it difficult for the municipality to deliver on the promised services to the public.’ (Key informant C)

The data presented above reveal that community members are confronted with a poor complaints handling system employed by the municipality. The poor handling of complaints from the members of communities by the municipality has led to the society’s loss of trust in the local government. One of the key challenges revealed by the data is that the municipality experiences budgetary constraints, a poor understanding of the service delivery planning processes and persistent service delivery backlogs. The development literature similarly indicated that budgetary constraints are attributed to the fact that most municipalities depend almost entirely on the National Treasury for financial support as they are unable to raise their revenue independently (Makalela 2019). Beyers (2015) argued that this situation simply reflects that most municipalities are failing in their key performance indicator, which is effective revenue collection within their area of jurisdiction.

Domination of the voice in service delivery planning

The researcher asked the key informants whose voice dominated service delivery planning – the public or the municipality. The responses from the key informants are articulated below.

All key informants indicated that:

‘It’s the voice of the public that is dominating service delivery planning as we go to the public we do not impose our plans but we go there to listen to the public telling us what their needs are and that on its own is public participation. The community during stakeholder consultation used to voice out that they need roads inside the townships and rural areas as the taxis cannot travel inside because the roads are not roadworthy so now the municipality has erected concrete roads as a way of giving the community what they need.’ (Key informants A, B and C)

With the above findings, it can be established that the Polokwane Local Municipality uses the bottom-up approach in service delivery planning. It can be deduced that communities can voice their concerns and prioritise needs by participating in the service delivery planning process. The data further show that the communities of the Polokwane Local Municipality have a sense of belonging in the service delivery planning process. However, these findings are supported by existing public participation literature. Stakeholders’ empowerment is a foundation of our new democratic dispensation and for municipalities (Mamokhere 2022b; Molaba 2016). Furthermore, this means that communities and community organisations ought to be involved in all the decision-making processes that affect them indirectly or directly. Having the voice of the communities at the centre of the decision-making process for service delivery planning makes local government effective and responsive to the needs of society.

Who makes recommendations and political decisions on service delivery planning?

The researcher asked the key informants who are responsible for making recommendations and political decisions regarding service delivery planning. The responses from the key informants are articulated below.

All key informants indicated that:

‘Ward councilors and ward committees also participate in making political decisions on service delivery planning. Furthermore, the Polokwane local municipality council has adopted the following two which are steering committee and is made up of politicians and is led by the executive mayor.’ (Key informants A, B and C)

According to the findings presented above, councillors and ward committees actively participate in and contribute to service delivery planning. They are further appointed to represent the interests of their communities. These findings are supported by existing literature. CoGTA (2020) posits that the councillors and ward committees are seen as a legal structure acknowledged by the municipal council as its consultative structure and communication network on issues affecting the wards. Their role further includes, but is not limited to, representing the community during the preparation and implementation of the IDP document, which serves as a guiding document for service delivery planning.

Rural communities’ satisfaction with municipal service delivery planning processes

The researcher asked the key informants whether rural communities were satisfied with the municipal service delivery planning processes. The responses from the key informants are articulated below.

All key informants indicated that:

‘There is dissatisfaction with the service we deliver to the rural communities, as now the people are still waiting for water. With the agility that the new settlement development the municipality is faced with high needs for basic services because this settlement was not planned but is out of the urban sprawl. Furthermore, the municipality is experiencing service delivery backlogs, and this backlog makes the rural communities dissatisfied because people are still waiting for sanitation, electricity, housing, and waste removal. With Polokwane being the capital city of Limpopo with high economic activities and pull factors many people around the province have flocked to the city and its outskirts areas seeking a better life. Then the overpopulation of local people and those from SADC countries implies that the planning is not sufficient since people must share the scarce resources that the municipality has. The other big problem is project implementation because of the budgetary and monetary constraints, it limits the implementation of critical projects for the betterment of people’s standard of living and it leaves the society dissatisfied.’ (Key informants A, B and C)

The data suggest previously that community members are not satisfied with the services that the municipality delivers. Cardinal to the quality of services, the findings show that the officials of the municipality are aware of the service delivery dissatisfaction by their intended beneficiaries. Local government literature posits that, in some instances, poor service delivery has led to violent protests, which further destroyed properties (Ndebele & Lavhelani 2017). Makalela and Asha (2019) argued that the decline in public service satisfaction is one of the challenges that democratic South Africa faces. As much as local government is closest to the people and is representative, there remains a critical need to capacitate municipalities to deliver quality and adequate services. Municipalities in South Africa have been experiencing difficulties because of poor service delivery and they are mostly attributed to a lack of financial capacity and inadequate skills in planning and budgeting (Beyers 2015; Makalela & Asha 2019). It is further recommended that the municipality should create a solid revenue base to avoid depending on grants from national government to provide services more sustainably to the communities (Ndebele & Lavhelani 2023).

Discussion of research findings

The research findings on participatory service delivery planning in South Africa highlight the critical importance of public participation in shaping governance practices and service delivery outcomes. This article underlines the essential role of citizen engagement in ensuring the long-term viability and democratisation of service delivery within South African municipalities. Despite challenges in implementation, such as limited consultation and transparency issues, the article emphasises the transformative potential of technological advancements in enhancing citizen–government interactions and improving service delivery processes. By establishing clear service quality standards through agreements and charters, governments can promote accountability and transparency in service provision, aligning service goals with citizen expectations. The research offers several recommendations for strengthening participatory approaches, including enhancing mechanisms for citizen engagement, promoting transparency, leveraging technology for better service delivery and aligning service quality standards based on citizens’ needs. Implementing these recommendations can foster a culture of collaboration and responsiveness in service delivery planning, ultimately leading to more effective and citizen-centric governance practices.

The objectives of this study were achieved when the researcher assessed the use of the bottom-up approach and the top-down approach in involving members of the public in service delivery planning, the service delivery planning approach and its failures and challenges. In this regard, it was found that the municipality uses a bottom-up approach for consultation with members of the community, especially when identifying and prioritising needs. On the other hand, the municipality uses a top-down approach for providing feedback to the members of the community on services required by society. A majority of the respondents, amounting to 54%, stated that the municipality uses a regulatory service delivery planning approach. According to this finding, the inability to involve the various stakeholders in the planning and management of the city, despite the decentralisation of decision-making from the upper level of government, shows that decision-making has been centralised at the local government level. Literature also revealed that what causes service delivery planning processes to fail are, notably, corruption, poor monitoring and evaluation capacity, the ineffectiveness of ward councillors, unqualified personnel and a lack of financial resources or budgetary constraints. In addition, the findings reveal service delivery protests and overpopulation as one of the key challenges surrounding adequate service delivery planning.

The research findings also indicate that the effectiveness of public participation is often undermined by a lack of capacity within local government structures. Many municipalities struggle with insufficient human resources and expertise, which limits their ability to engage effectively with citizens. This gap in capacity can lead to poorly organised public meetings and consultations, resulting in low turnout and engagement from community members. Furthermore, the study highlights the importance of continuous education and awareness campaigns to inform citizens about their rights and the mechanisms available for participation in service delivery planning. Many community members are unaware of the processes through which they can influence decision-making, which contributes to apathy and disengagement. By providing targeted education and outreach, municipalities can empower citizens to take an active role in governance.

The findings also reveal that the cultural context plays a significant role in shaping public participation. In some communities, traditional leadership structures may conflict with municipal governance, leading to tensions that can hinder effective collaboration. Addressing these cultural dynamics is essential for fostering a more inclusive approach to service delivery planning. Additionally, the research points to the need for more innovative and flexible engagement strategies that go beyond traditional public meetings. Utilising digital platforms, social media and mobile applications can help reach a broader audience, particularly younger citizens who may prefer these methods of communication. This approach can also facilitate real-time feedback and engagement, making the planning process more dynamic and responsive to the community needs.

Lastly, the study emphasises the importance of integrating feedback mechanisms into the service delivery process. Establishing clear channels for citizens to voice their concerns and suggestions after service implementation can help local governments adjust their strategies and improve service quality over time. This iterative approach not only enhances accountability but also fosters a sense of partnership between the government and the community. By incorporating these additional findings, the research provides a more comprehensive understanding of the complexities surrounding participatory service delivery planning in South Africa, highlighting both the challenges and opportunities for enhancing citizen engagement in governance.

Conclusions

In conclusion, the article on participatory service delivery planning in South Africa underlines the pivotal role of public participation in shaping governance processes and service delivery outcomes. By engaging citizens in decision-making, governments can better address community needs and enhance the effectiveness and sustainability of service delivery initiatives. Despite challenges in implementation, such as limited consultation and transparency issues, the article highlights the potential of technological advancements to improve citizen–government interactions and streamline service delivery processes. Setting clear service quality standards through agreements and charters is essential for promoting accountability and transparency in service provision. The research findings offer valuable recommendations for enhancing participatory approaches, including strengthening mechanisms for citizen engagement, leveraging technology for better service delivery and aligning service quality standards with citizen expectations. By implementing these recommendations, governments can foster a culture of collaboration, responsiveness and citizen-centric governance practices, ultimately leading to more inclusive and effective service delivery planning in South African municipalities.

Acknowledgements

This article is partially based on the author’s thesis entitled ‘Assessing the efficacy of public participation in the enhancement of public service delivery planning in Polokwane local municipality, Limpopo Province, South Africa’ towards the degree of Master of Development Studies in the Institute of Social Development, University of the Western Cape, South Africa on 20 September 2024, with supervisor Mohamed S. Bayat and co-supervisor Abdulrazak Karriem.

The authors declare that they have no financial or personal relationships that may have inappropriately influenced them in writing this article.

F.K.L.K. contributed towards the conceptualisation and writing of the original draft. F.K.L.K., M.S.B. and A.K. contributed towards the writing and review of the article. M.S.B. and A.K. contributed towards the supervision of the article. All the authors have read and agreed to publish this version of the article.

This research received no specific grant from any funding agency in the public, commercial or not-for-profit sectors.

The data that support the findings of this study are available from the corresponding author, F.K.L.K., upon reasonable request.

The views and opinions expressed in this article are those of the authors and are the product of professional research. It does not necessarily reflect the official policy or position of any affiliated institution, funder, agency or that of the publisher. The authors are responsible for this article’s results, findings and content.

References