Evidence ignored? Unpacking barriers to evaluation use in the city of Tshwane’s indigent programme exit strategy

Abstract

Evaluation systems are slowly making inroads in South African municipalities, particularly in the metros, yet their effective utilisation remains uneven across service delivery programmes. This study investigates the barriers affecting the uptake of evaluation in implementing the Indigent Programme Exit Strategy within the City of Tshwane (CoT) Metropolitan Municipality. Despite the strategic intent of the exit strategy to reduce long-term dependency and promote self-sufficiency among beneficiaries, the study finds that evaluation evidence is rarely used to inform decisions related to the strategy's design, implementation, or review. Instead, reliance is placed on administrative reporting and compliance-driven monitoring data, which limits learning, adaptation, and accountability. Using a qualitative case study approach grounded in institutional and systems theory, the study draws on semi-structured interviews and document analysis to identify key barriers, including weak political incentives for evaluation use, limited integration of evaluation processes into decision-making cycles, and inadequate feedback loops between evaluators, implementers, and policymakers. The findings underscore that the challenge is not the absence of M&E systems but rather the underutilisation of evaluation evidence to inform programmatic change. The article concludes by offering context-sensitive recommendations for enhancing evaluation uptake within municipal exit strategies and related interventions, contributing broader lessons for strengthening evidence use in local governance.

Keywords: {'name': 'Evaluation systems, Indigent programme, Local government, institutionalisation, Evidence-informed decision-making, CoT, South Africa, Developmental governance'}

Authors & affiliations

Lesedi Matlala
University of Johannesburg

Diniko Piet Setwaba
National School of Government (NSG)

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