Assessing the Impact of Conditional Grant Under-Expenditure on Municipal Service Delivery and Sustainable Local Government in South Africa

Authors

DOI:

https://doi.org/10.51137/wrp.ijsbe.904

Keywords:

Administrative Capacity, Financial Accountability, Fiscal Sustainability, Grants, Intergovernmental Fiscal Relations, Service Delivery.

Abstract

Conditional grants play a critical role in supporting the development and sustainability of local government and infrastructure provision in South Africa. However, over time, evidence has shown that municipalities are plagued by administrative inefficiencies that lead to under-expenditure and grant forfeitures, thereby negatively impacting service delivery. This paper adopted a qualitative research approach to examine the impact of conditional grant under-expenditure on municipal service delivery and sustainable local government in South Africa. The paper relied on secondary data from academic literature, government reports, Auditor-General findings, and policy documents. The findings revealed that weak administrative capacity, poor financial management, ineffective planning, governance deficiencies, and delays in project implementation contributed to the under-utilization of conditional grants, delaying the delivery of essential services such as water, sanitation, housing, roads, and electricity, thereby undermining social and environmental sustainability. The paper concluded that conditional grant under-expenditure is not merely a financial management problem, but a systemic governance and institutional challenge that undermines sustainable local government and developmental service delivery in South Africa. The study further recommends adopting an Integrated Municipal Conditional Grant Management Model to strengthen institutional capacity, governance accountability, expenditure performance, and intergovernmental coordination within municipalities.

Author Biography

  • Mpumelelo Ndlovu, University of Fort Hare

    Lecturer at University of Fort Hare

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Published

2026-09-01

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Section

Literature Review Paper

How to Cite

Mofokeng, S., & Ndlovu, M. (2026). Assessing the Impact of Conditional Grant Under-Expenditure on Municipal Service Delivery and Sustainable Local Government in South Africa. International Journal of Sustainability in Business and Economics, 2(7). https://doi.org/10.51137/wrp.ijsbe.904

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