GREEN PAPER ON THE CONCEPTUAL FRAMEWORK FOR AFFIRMATIVE
ACTION MANAGEMENT OF DIVERSITY IN THE PUBLIC SECTOR

1. Introduction

This is a discussion document that suggests a holistic approach to Affirmative Action (AA) and proposes to move away from AA as a number driven process. This document derived from an analysis of current AA policy in the public service and the difficulties around its achievement. The document draws largely on the limitations of existing AA policies and moves towards the development of a framework for common understanding and AA practices.

Presently, AA within the public sector has various interpretations. This is problematic and undermining the contribution AA could make to the transformation of public service delivery. Often, because of a lack of commitment to the spirit of AA as a tool for transformation a common perception arises, viewing AA practices as a number driven and token black appointees process. On the other hand the document describes AA appointees' experiences in the organisational environment as being alienating and unfriendly to race, gender and disabilities. Often AA appointees are assessed as under performers and made responsible for adapting in their new environments. In relation to women, it appears that they are used for work with high level responsibilities but seldom appointed in corresponding responsible positions. Disabled persons on the other hand, are denied senior management opportunities. These scenarios call for a common understanding and new approaches for AA.

This discussion document proposes the development of a new mission and broad goals for AA and its role within the public service transformation process. In addition, it focuses on locating AA within service delivery, human resource management and human resource development. Lastly it considers the role of organised labour in AA and the links between AA and transformation structures.

2. Policy framework for AA

The conceptual approach favoured in this document is the perception of AA as a comprehensive process of institutional capacity building. This approach is closely linked to public service transformation and reforms rather than the traditional approach of AA as continued to recruitment and selection practices only. The paper further argues for the attainment of equality for the disadvantaged as opposed to a strategy of reverse discrimination and preferential treatment.

2.1. Broad Goals of AA

Affirmative Action as a strategy should contribute to the public service transformation process by:

• ensuring personnel representation on all levels where the disadvantaged are under represented
• transforming institutional cultures and organisation's environment to bring it in line with the principles of broad representation
• building institutional capacity by tapping the full potential of all employees within the public sector
• developing management systems that enable staff to be effective, efficient and accountable
• involving AA employees in policy making, planning, implementation, monitoring and evaluation process in the public sector

3. Implementation Strategies

3.1 Service Delivery and Human Resource Management

This document calls for an AA model that is broader than just a number driven process. The new approach moves towards the development of a new organisational culture that recognises that employees not only differ according to race and gender but that they also have different educational backgrounds, language, experiences, lifestyle, socioeconomic and class positions. The model should include strategies for the effective management of such diverse staffing. It should also include long term change management strategies that move towards the eradication of discrimination within the work place. Training for managers in the management of long-term change is needed. In addition, it should have recruitment mechanism in place for the achievement of broad representation, stimulate creativity and create equality in the enjoyment of benefits and opportunities.

3. 2 Human Resource Development

The document suggest that human resource development strategies within the framework of AA should not be limited too formal training only, but include programmes such as:

(a) Orientation programmes

Orientation programmes should be directed at new recruits to the public service and at public servants that move into new positions. These programmes should be cost and time effectively. Standardised audiovisual materials could be used which would ensure that public servants nationally receive the same orientation.

(b) Induction into line functions

Induction into line functions should move beyond senior management levels and focus on all new appointees irrespective of positions appointed for. A self administered computer programme could be used for this purpose. The programme can be designed in different modules with a self assessment facility. These should be adjusted to accommodate the different line functions. Mentoring programmes could also serve as an effective method to acquaint staff in their positions. The limitations could be that mentors are over extended and have very little time for their mentees. To redress the lack of time and mentors, structured mentoring programmes can be developed to acquire skills.

3.3 Recruitment Mechanism

It is envisaging that recruitment mechanisms should be broad, to accommodate a wider section of our communities. Public service post should be advertised locally and internationally. Employment agencies' services could be applied and where needed head hunting and direct referrals. Attention should be given to the recruitment of disabled person into the public service. Disabled persons with the required skills could be track down by means of a national data base, where such persons could register their skills and competencies. Bursaries awarded by departments for non-serving members should not be tied into guarantees employment in the public service. Mechanism for internships or vocational training should be build into the recruitment framework.

3.4. Selection

The selection criteria for AA candidates within the public sector should be broader than the current merit criteria. Section 11 of the Public Service Act (1994) stipulate formal qualifications, levels of training, merit, efficiency and suitability of candidates as criteria for selection. At issue is the narrow interpretation of these terms and the exclusion of candidates with the required skills but without formal qualifications. To rectify the imbalances, skilled and potentially good but formally under qualified candidates need to be given equal chances at entry. A new definition of the selection process is needed and include skills such as communication abilities, ability to take initiative, interpersonal, and problem solving skills. Recognition need to be given to past experiences and performances. Candidates need to be measured against minimum requirements for the post as oppose to maximum requirements.

Comments on this document can be submitted to the Director-General: Department of Public Service and Administration, Directorate: Affirmative Action Policy, Private Bag X916, Pretoria, 0001. The final version of this document will lead to the official policy framework (White Paper) for Affirmative Action.

The PHILA programme is supported by a grant from the Henry Kaiser Family Foundation.

PHILA

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