Deputy Minister & Department of Home Affairs: Large ICT projects Progress reports, Committee Report adoption

Home Affairs

05 March 2012
Chairperson: Ms M Maunye (ANC)
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Meeting Summary

The Department of Home Affairs (DHA), in the presence of the Deputy Minister of Home Affairs, gave a presentation on the plans for, progress on and budgets of its large Information and Communications Technology projects. The DHA aimed to change its systems from paper-based systems, which it conceded were very cumbersome, to online and real-time electronic systems, which would be integrated not only within the DHA, but also with other government systems. The main IT system, which would be the turnkey, was the “Who Am I Online” (WAIO) programme. The development of systems infrastructure and software would be outsourced. DHA would monitor and evaluate the systems. A core business application would be combined with integrated client services consoles. This should address the major challenge of lack of integration that had beset the systems in the past, and would minimise opportunities for fraud and corruption, since a transaction on one register would be automatically reflected on all other systems. An Integrated Electronic Document Management System would also be interfaced. Quality of fingerprints captured would improve, and biometric scanning would be used for DHA access, both at the start of and during a transaction. The General Live Capture concept was already in use, and had made it possible to issue a passport in one day. Enforcement of business rules would improve integrity. Queues and infrastructure problems would be addressed by counters housing client service consoles, which would allow for completion of transactions even where there were power failures. Ten of the major initiatives under the modernisation programme were presented and described. The National Identification System had biometrics security features, and this would replace the National Population Register and current asylum seeker systems. Live capture should be rolled out to all offices. The Online Application System would be used for civic services and permits and visas, and would combine web-based applications with fingerprint verification on collection of documents. The Electronic Queue Management System would monitor performance of DHA staff, and was being piloted at Barrack Street.  The Electronic Movement Control System had been used temporarily in place of Who Am I Online during the 2010 World Cup, was in use at 33 ports of entry and would be extended to all. The Electronic Document Management System would digitise all paperwork and improve communications and overall performance. Infrastructure upgrades would improve DHA offices in rural areas, and customer services interface would be improved so all information could be accessed from every office. contact centre upgrade could only be achieved when all the systems were integrated. The Trusted Traveller System provided an automated system for frequent travelers, and was to be piloted at the Maseru Bridge. Announcements would be made, within the next few weeks, on the ID Smart Card system, which would replace the green ID book. DHA was currently finalizing agreements with Gijima and South African Revenue Services for the total project, which would cost R1.28 billion and the modernisation programmes would commence from 1 April 2012.

Members were appreciative of the presentation but stressed that implementation was key, and a number of questions were directed to time-frames, implementation arrangements, monitoring and improvement of past systems. Members asked if the systems used by South African Police Services (SAPS) would be employed, and how fingerprinting would be done. They asked if other countries had successfully implemented the ID smart card and the comprehensive ID system, what biometric systems would be used, whether there would be cooperation with other departments, particularly how DHS and SAPS would interface, and what information was to be made available via the Smart Card. The Deputy Minister noted that the Smart Card system would be fully introduced and explained at the appropriate time. The terms of the agreements with Gijima were interrogated, particularly in view of the previous failures and difficulties, and Members asked if there was money in the budget to implement. It was noted that integration would not happen overnight and systems would be run concurrently to ensure that there were backups until they were fully tested. Members noted the need to improve systems recording entry to and exit from the country, asked how the migrations, both legal and illegal, were monitored, and asked whether the system alerted DHA to overstays on permits. They also asked what methods were being used to address security shortfalls and improve mobile technology. The Deputy Minister noted that the problem of people unlawfully claiming social services was one to be tackled by improving systems of registration, identity and Social Security records.
The Committee adopted its report on the Presidential Review Committee on State Owned Entities, and its report on the Film and Publications Board, with amendments.

Meeting report

Introduction by Chairperson
The Chairperson noted that insecurity of information, and hackers gaining fraudulent access to government systems had been on the increase and there were ongoing instances of people abusing the government Information Technology (IT) system. The Department of Home Affairs (DHA or the Department) had therefore been asked to brief the Committee on its plans to modernise and streamline government IT systems to minimize such access and abuse.

The Chairperson acknowledged the presence of, and welcomed the Deputy Minister of Home Affairs.

Large Information Technology projects: Department of Home Affairs briefing
Mr Sello Mmakau, Deputy Director General: Information Services, Department of Home Affairs, noted apologies from the Director General and Chief Financial Officer of the DHA. He noted that his presentation would focus on the plans and budgeting for systems that the DHA was planning to implement.

He noted that the DHA wanted to move away from the manual processes where paper forms were used as a main interface with its clients and internal systems, to a totally paperless environment where all transactions would be done online and real-time. The “Who Am I Online” (WAIO) programme, which was the main IT system, supplied a “turn-key” solution for an integrated core system based on the General Live Capture Concept (GLCC). The entire development of the system infrastructure and software would be outsourced to a supplier, while the DHA monitored and evaluated the system. This differed from alternative systems, where the Department had provided the hardware and the supplier provided the software. He emphasised that this solution consisted of an integrated core business application, and a set of integrated client services consoles for the DHA’s front offices, both locally and internationally.

Mr Mmakau noted that one of the major challenges was that the DHA systems were not integrated. This resulted in poor monitoring of transactions, and provided opportunities for fraud and abuse of the system. He gave an example of such a systemic flaw, saying that currently, when a transaction was done on the National Population Register (NPR), that transaction did not immediately reflect also on the Asylum Seeker Management System, or the automated Home Affairs National Identity System (HANIS). Corrupt officials exploited this flaw by performing transactions in one system, but not updating the other systems at the same time. The new system would integrate the National Population Register (NPR), National Immigration Information System (NIIS) and Movement Control System (MCS), to provide simultaneous solutions for both the Immigration and Civic services. He reiterated that at the moment the systems were not integrated and not effectively monitored and evaluated. HANIS and the Integrated Electronic Document Managing System (IEDMS) were also to be interfaced into the core system, to provide integration between HANIS, IEDMS and WAIO.

Mr Mmakau outlined the key benefits of the IT integration programme. It would eliminate manual and tedious processes that arose through having huge numbers of files in paper form. It was far more effective to work with electronic files. It would reduce the paper work, and electronic data would become more available. The quality of the fingerprints captured at offices of application would improve, and he noted that the use of biometric eye (iris) scanning and fingerprint scanning curbed corruption to a large degree. The turnaround times for “enabling documents” applications would also be reduced, and here he pointed out that DHA was already using the General Live Capture Concept, which had improved the turnaround time for applications and issuing of passports. The IT programme would eradicate the need for “back record conversion” in the future. Overall, security would be improved. In addition, workflow and compliance should improve to the service oriented architecture.  The enforcement of business rules would improve integrity, particularly since the system was designed with consideration to the dynamics of the technology, consideration to people and other relevant processes. Finally, the queues and office counter problems that were experienced, particularly in rural offices that were faced with infrastructure challenges, would be addressed by Highly Configurable Counters, which would house Integrated Client Service Consoles, backed up with fault-tolerant controllers that allowed for completion of transactions, even in the event of power failures.

Modernisation programmes
He then went on to present on ten of the major items in the systems modernisation programme.
The National Identification System (NIS) with inherent Biometrics security features (including fingerprint and eye scanning), was outlined. DHA gave priority to the fingerprint biometric feature because it was a security technique that was well advanced and used by several organisations. Every user must use a fingerprint to access the NPR. This minimised the possibility of fraud, because in the past users claimed that fraudulent transactions were done by other people using their usernames and passwords. The fingerprint security access control was required at various stages of every transaction, so an unauthorised user would not be able to tap into transactions. In addition, this security feature would provide evidence for prosecution should there be any fraud discovered through systems checks and audits. This NIS would replace the NPR and the NIIS used for the Asylum Seeker Management System.

The Live Capture Concept for passports and identity documents was already operative in 40 high volume offices around the country, and DHA hoped to roll it out to all offices. This Concept would provide improved quality, reduced fraud and corruption, and improved turnaround times. DHA had been able to produce a passport in one day using this system, and delays were only registered at the level of delivering the passports to the office of application.

The Online Application System was a permitting/visa solution and was used for civic services. It would significantly reduce the long queues usually found in most DHA offices. In terms of this online application, clients could do web-based applications and would only have to go to DHA offices to confirm, using their fingerprints, that they were the owners of the information provided, and to verify the status of their applications. These online applications would serve for permit/visa applications, identity documents and other applicable documents issued by the DHA.

The next system presented was the Electronic Queue Management System, which was intended not only to manage queues but also to monitor the performance of DHA staff. Members of the Portfolio Committee on Home Affairs had visited the DHA office in Barrack Street, Cape Town where this system was being piloted.

The Electronic Movement Control System (EMCS) was used, temporally, to replace the WAIO system during the 2010 Soccer World Cup and was jointly implemented by the DHA and the South African Revenue Service (SARS). This new system was currently used in 33 ports of entry and was being extended to all the other ports of entry. The implementation of this system would significantly improve DHA’s controls on the movement of people in and out of the country.

The Electronic Document Management System (EDMS) was introduced to manage the huge volumes of paper. It would digitize all paperwork and transform the DHA into a completely paperless and electronic environment. It was of particular significance to the entire systems modernisation programme and would improve communications and overall performance.

Infrastructure upgrades were also envisaged to look after the needs of DHA offices in the rural areas. The infrastructure upgrade included IT modernisation, and improvement of the construction and design of DHA buildings, power supply and data lines.

There would also be upgrades to the Contact Centre/Customer Services, in recognition of the need to improve customer services so that users could access information requested by clients from the system directly, without having to refer customers to other offices. This contact centre upgrade could only be achieved when all the systems were integrated.

Another system within the modernisation program was the Trusted Traveler System (TTS), which was designed for people who travelled frequently into and out of the country. It would benefit both South Africa and its neighbouring countries. It provided an automated system where the travellers could transact with the DHA without the physical intervention of the DHA officials. It would be piloted at the Maseru Bridge.

The ID Smart Card system was currently being designed, and there would be announcements on it over the next few weeks. It was designed to replace the ID green book, which was not sufficient to match new technologies and transactions.

Mr Mmakau said that the DHA was in the process of finalising “Definitive Agreements” with Gijima and SARS, who were both key stakeholders in the systems modernisation programme. The DHA had been defining the scope and statement of work for the project. The total project would cost R1.283 billion, and there would be a bill of materials to determine the specific cost of each project. The definitive agreements would be followed up with actual implementation of the IT modernisation programme, which was to begin in the 2012/13 financial year.

Discussion
The Chairperson noted the importance of IT security management, e-governance and user access.

Mr G Mackenzie (COPE) asked if the DHA was going to use the HANIS that was introduced by the South African Police Services (SAPS) some years ago, or if there was now a better system. He asked about the status of the National Fingerprinting Record, and asked if the DHA would use electronic scanning or inkpads.

Mr Mmakau replied that the new system would include all the positive elements of the old system yet with further improvements, so that it could give a single view of a person on the basis of information such as the fingerprints. For instance, it would be able to indicate whether that person was a foreigner or South African, their marital status and travel details. This was to be done by a service-oriented architecture, and this would be accessible from every Home Affairs office. EDMS was the system that handled the challenges around the National Fingerprint Record (NFR). This record would be converted into electronic format, and the new fingerprint system would be based on electronic scanning.

Mr Mackenzie asked if other countries had successfully implemented the ID smart card and the comprehensive ID system.

Mr Mmakau responded that Germany and Malaysia had successfully implemented the ID smart card. However, he noted that both these countries had different government systems, so the local approach to the ID smart card was informed by the structure of the South African system.

Ms N Mnisi (ANC) asked if the DHA, in using biometrics, would concentrate only on fingerprints and iris recognition, or if it would also make use of face marks and voice scanning.

Mr Mmakau replied that the biometrics system would also use face and voice recognition. The Iris was not going to be used because of some technological shortcomings of the system. The use of fingerprints is currently the most advisable biometrics system for identification.

Ms Mnisi noted that the IT modernisation programme was enormously important. She asked if the DHA would cooperate with other departments on issues such as social security and identification.

Mr Mmakau agreed that the collaboration with other departments was an important point and the DHA had already built partnerships with SARS, South African Social Security Agency (SASSA), SAPS, the Department of Social Development, banks, insurance and private security bodies.

Ms Mnisi asked how much information would be available through the Smart Card. She asked that a sample of this card be presented to the Committee.

Ms Fatima Chohan, Deputy Minister of Home Affairs, said that the ID smart card was a concept on which the DHA was still working. She asked that the Committee be patient; the DHA would make the relevant announcements when the time was ripe to do so. The ID Smart Card would be different from the drivers’ licence, and would contain more information. The Smart Card would first be launched as a pilot, where senior management of the DHA would be using the cards for a one-year period to establish how practical, functional and durable they were. Considering that many government systems would depend on this smart card, it would be very important for the DHA to get it absolutely right, since even small errors with the card could lead to a huge national crisis.

Mr A Gaum (ANC) noted that the plans were very good, but said that the problems often lay with implementation. He wanted specific dates when these plans would be started and completed. He asked what role Gijima had to play in the DHA systems modernisation programme, and asked if Gijima could be trusted with that role.

Mr Mmakau replied that the implementation of the project would start on 1 April 2012, the start of the new financial year. He noted that Gijima’s speciality was hardware support, but it lacked the necessary skills on software development and engineering. For this reason, the new agreement stipulated that Gijima would only attend to the hardware duties on the projects, while the DHA and SARS would look after the software. This mitigated the risks of the kind of failures that were previously experienced with Gijima.

Mr Gaum was interested to hear more about cooperation between the DHA and the SAPS, how SAPS would access the huge number of fingerprints that the DHA was keeping, and what plans there were to enhance this cooperation.

Mr Mmakau said that DHA and SAPS were collaborating on the integrated Justice Cluster and it had been agreed that from 1 April the DHA would work with SAPS and ensure collaboration on the DHA interface system

Mr M Mnqasela (DA) thanked Mr Mmakau for his elaborate presentation but requested whether the plans would actually be achieved, as set out.

Mr Mmakau replied that the implementation strategy had been set and rollout would commence on 1 April. The appointment of competent staff to the DHA, ranging through directors, engineers and support staff, had addressed the lack of skills that had previously caused problems in implementation. DHA was now using the same approach that it had successfully used during the 2010 Soccer World Cup.

Mr M De Freitas (DA) asked at what level the DHA saw implementation of these programmes, and if there were any milestones set to evaluate progress in implementation. More information needed to be provided on how much information would be contained on the ID smart card and how it would integrate with other information systems, such as the drivers’ license information and criminal records. If this information was not integrated, then he wanted to know of any plans to integrate the information systems. He further asked if the R1,283 billion to be used for the project was hard cash that the DHA had, or whether this was merely a budgeted figure that was subject to review over the years.

Mr Mmakau said that many of the projects had already started in certain Home Affairs offices and ports of entry around the country, but that the bulk of the programme was set for implementation from 1 April 2012. The funds for the project had been budgeted, and therefore would be available from that date.

Deputy Minister Chohan noted that the integration of the systems was a process that would not happen overnight. The old systems were still going to be in use until DHA was sufficiently satisfied that the new systems were efficient and functional. This would therefore mean that there was a back-up, in case anything went wrong during the transition. The process of modernisation would involve constant assessments at the various levels of the programme.

The Chairperson asked how functional the EMCS was, and noted the urgent need to improve systems that could indicate, at any time, who was inside or outside South Africa. She recommended that immediate linkage between the WAIO and the EMCS needed to be set up, so that government could efficiently monitor the movement of people into and out of the country.

Mr Mmakau admitted that there was an urgent need to put the EMCS into use at every port of entry. 33 ports of entry were already using it and monitoring of entry and exit from the country at these ports had improved. There were plans to expand the project, this was being done and this would address the challenges.

Ms G Bothma (ANC) asked for details on the interdepartmental policies of the DHA. There was a need for cooperation but this must be done in a coherent manner.

Mr Mmakau stated that the interdepartmental relations were conducted at the levels of Directors General and even the Ministers. Memorandums of Understanding (MOUs) had been signed by these officials and this facilitated the implementation of any agreements entered into.

Ms Bothma enquired as to how DHA handled the large numbers of migrations for purposes of undertaking work in South Africa, and asked how the systems would identify when an individual had overstayed their permits. She said that there should be alerts in the system that came into operation when passports or ID documents were collected.

Mr Mmakau noted that there was migration for economic reasons. Banks and the DHA worked together to regulate such movements into the country. Currently the system did not alert of any overstay on a permit, but DHA was working on this challenge. Once an ID or passport was collected, the system picked up this information and registered it.

Ms Borman raised the point that people did not always enter through the ports of entry but would often come in illegally at places close to the border posts. She asked if there were cameras or devices to pick up these illegal movements.

Mr Mmakau noted that illegal entry into the country was being monitored and addressed by cooperation between the DHA, SAPS and other stakeholders.

Mr Mackintosh said that the systems at the ports of entry were good, but asked, in practice, what levels of security these systems could actually maintain. He also wanted to know how accessible the central DHA system was from the points of entry.

Mr Mmakau replied that training programmes and pilot programmes were the main way of establishing the level of security at ports of entry. The proposed integration of the DHA modernisation programme would go a long way to improving the security at the ports of entry.

Mr Mnqasela asked what had been done to address the IT security shortfalls identified by the Director General of the DHA, and also asked what DHA had done to improve the mobile technology standard in the systems.

Mr Mmakau said that the use of biometrics had greatly improved the security of the system. For instance, the NPR could now only  be accessed by fingerprint. Firewalls and access control checks had also been put in place, to prevent external intrusion into the system. Satellite mobile technology was introduced by the DHA to improve its mobile services. This service still needed improvement, but DHA was working on it.

Ms Mnisi asked for clarity on the Trusted Traveler System.

Mr Mmakau replied that the Trusted Traveler System would be based on biometrics technology. Individuals entering or leaving the country would be identified, and their information would be captured and stored in the system, and be available from any point, to enable tracking of the person from any DHA office that was linked to the system.

The Deputy Minister addressed points of concern raised in the past. She noted that the problem that people entered the country and claimed social grants would not be effectively dealt with, as some had suggested, by simply stopping them from entering the country. Instead, DHA systems should be cleaned up, to ensure that the correct people were in possession of the correct ID documents. It would also be important to curb future corruption. Responsibility also lay with the Social Security services to clean up their systems, by having regular and periodic checks on who was receiving a social grant, and requiring those people to report to offices on a regular basis.

Ms Borman recommended that the DHA should create positions for Rural Development Officers, to help the DHA identify the many unregistered births that continuously increased the backlog of unregistered births.

Adoption of Committee Report
The Committee adopted its report on the Presidential Review Committee on State Owned Entities.

The Committee also adopted its report on the Film and Publications Board, with amendments.

The meeting was adjourned.  



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