Human Resource Management in the Public Service

Description
The PSC has conducted various research projects on HRM, and has found that whilst there are a number of HR policies in place that seek to bring about the transformation of HRM in the Public Service, progress to date has not been adequate.

Published in the Republic of South Africa by:
THE PUBLIC SERVICE COMMISSION (PSC)
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Compiled by Branch: Investigations and Human Resource Reviews
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ISBN: 978-0-621-39183-1
RP: 33/2010
Assessment of the State of Human Resource
Management in the Public Service
i
ii
FOREWORD
The quality of human resources is a critical factor in the capacity of the
government to deliver on its mandate. Human Resource Management
(HRM) is critically important in that it ensures that human capital is well
managed and that all issues relating to this resource are effectively dealt with.
These issues include compensation, recruitment and selection, performance
management, organisational development, safety, wellness, HIV and AIDS,
employee motivation, communication, administrative support and training.
The terrain of HRM is thus broad and complex. In the Public Service a range
of legislative frameworks and policies were put in place since the advent of
democratic rule in 1994. The question, however, is whether during the 14
years of democratic government we have been able to implement these
policies and frameworks in order to impact positively on the quality of HRM
in the Public Service. The Public Service Commission (PSC) has therefore
found it important to assess the State of HRM in the South African Public
Service.

Apart from its own work in this area, the PSC has drawn on a wide body of evaluations that have been conducted
on various aspects relating to human resources. It has organised the reviews into distinct but interrelated themes,
and all these point to progress made and challenges that must still be addressed. A permeating reason for many
of the challenges that still exist is the low status accorded to the HR function with human resource management
not being taken on board as a key management function. Sadly, the Public Service is not at a point today where
it can confdently say that most of its managers are adequately competent in HR.
Serious questions have to be asked as to why this is still the case, given that most of Governments’ budget is
spent on personnel. If the Public Service cannot derive optimal value from the human resources that it has at
its disposal, there must be fundamental diffculties which have to be addressed. Assessments such as this one
become critical to ensure that the Public Service maximises the potential of its human resources.
I trust that departments and the executive will fnd this assessment instructive, and will apply the fndings and
recommendations to improve HRM across the Public Service.
DR R MGIJIMA
CHAIRPERSON
iii
TABLE OF CONTENTS
LIST OF TABLES iv
GLOSSARY OF TERMS v
EXECUTIVE SUMMARY vi
CHAPTER 1: INTRODUCTION 1
1.1 Background 2
1.2 Mandate of the PSC 2
1.3 Objectives of the Study 2
1.4 Scope of the Study 3
1.5 Indicators as per the Five Key HRM Areas 3
1.6 Structure of the Report 7

CHAPTER 2: AN ANALYSIS OF HUMAN RESOURCE MANAGEMENT
AND KEY CHALLENGES 8
2.1 Introduction 9
2.2 Analysis of the Five Key HRM Areas 9
2.2.1 Human Resource Organisational Strategy and Planning 9
2.2.2 Human Resource Practices 15
2.2.3 Human Resource Utilisation and Development 21
2.2.4 Employee Health and Wellness 25
2.2.5 Employee Relations 26
2.3 Summary 29
CHAPTER 3: RECOMMENDATIONS AND CONCLUDING REMARKS 30
3.1 Introduction 31
3.2 Recommendations 31
3.3 Conclusion 32
APPENDIX A 33
Legislative Framework 34

APPENDIX B 37

References 38
APPENDIX C 42
Human Resource Self-Assessment Instrument 43
iv
LIST OF TABLES
Table 1: Proposed performance indicators in the area of HR Organisational Strategy 4
Table 2: Proposed performance indicators in area of Human Resource Practice 5
Table 3: Proposed performance indicators in the area of Human Resource Development 5
Table 4: Proposed performance indicators in the area of Employee Health and Wellness 6
Table 5: Proposed performance indicators in the area of Labour Relations 6
Table 6: Race and Gender composition at National level 13
Table 7: Race and Gender composition at Provincial level 14
Table 8: Disability Representivity as at October 2009 15
Table 9: Number of posts flled and vacant in Public Service as at October 2009 19
Table 10: Number of Grievances lodged with the PSC as September 2008 28
Table 11: Appendix A Legislative Framework 34
v
GLOSSARY OF TERMS
AA Affrmative Action
ASGISA Accelerated and Shared Growth Initiative for South Africa
DG Director-General
DPSA Department of Public Service and Administration
EA Executive Authority
EE Employment Equity
ETD Education, Training and Development
GEMS Government Employees Medical Scheme
HoD Head of Department
HRD Human Resource Development
HRM Human Resource Management
KRA Key Result Area
JIPSA Joint Initiative for Priority Skills Acquisition
LRA Labour Relations Act
MDGS Millennium Development Goals
MEC Member of the Executive Council
MTEF Medium Term Expenditure Framework
NACH National Anti-Corruption Hotline
OPA Organisational Performance Assessment
OSD Occupation-Specifc Dispensation
PA Performance Agreement
PALAMA Public Administration Leadership Management Academy
PDP Performance Development Plan
PERSAL Personnel and Salary System
PFMA Public Finance Management Act
PMDS Performance Management and Development System
PRC Presidential Review Commission
PSR Public Service Regulations
PSC Public Service Commission
SAMDI South African Management Development Institute
SCOPA Standing Committee on Public Accounts
SMS Senior Management Service
WPTPS White Paper on the Transformation of the Public Service
WSP Workplace Skills Plan
vi
EXECUTIVE SUMMARY
1. INTRODUCTION

The PSC has conducted various research projects on HRM, and has found that whilst there are a number of HR
policies in place that seek to bring about the transformation of HRM in the Public Service, progress to date has
not been adequate.
However, each of these research projects dealt with a specifc aspect of HRM, such as performance management,
gender mainstreaming and the employment of people with disabilities. As a result there has not been a single
report providing a holistic assessment of the State of Human Resource Management and Development in the
Public Service and given the lack of progress in transforming the HRM function, the PSC deemed it necessary
to conduct an overview assessment of the State of HRM. This assessment aims at flling this gap by comparing
progress to date with the original aims and objectives enshrined in the Constitution and other relevant policy
documents.
2. OBJECTIVES
This report looks at human resource management in all its dimensions, but more specifcally at the challenges
that still persist. The specifc objectives of this report are to:
• Develop indicators against which HRM in the Public Service can be assessed.
• Using the indicators, conduct an assessment of the State of Human Resource Management in the Public
Service.
• Identify and highlight the challenges in human resource management in the Public Service.
• Recommend actions to be taken to improve the state of HRM in the Public Service.
• Develop a HR Self-Assessment Instrument for use by departments.
3. SCOPE OF THE STUDY
This report is based on the results of a desktop study. The desktop study focused on a wide range of reports
published by the Public Service Commission and other organisations. Although no primary research was done,
it provides a useful overview of the state of human resource management in the Public Service and the progress
that has been made over the past 14 years. For the purpose of this report the PSC utilised the fve key areas of
HRM as identifed by the Department of Public Service and Administration (DPSA) Circular on “Interventions
to Improve the Human Resource Management Function in the Public Service”
1
, namely:
• Human Resource and Organisational Strategy and Planning.
• Human Resource Practice.
• Human Resource Utilisation and Development.
• Employee Health and Wellness.
• Employee Relations.
The fve areas provide a broad framework covering all the key human resource functions that the report is
assessing. The PSC developed indicators for each of these areas, which were then used to assess the progress
made by departments, and the challenges experienced.
1 Republic of South Africa. Department of Public Service and Administration. Circular on “Interventions to Improve the Human Resource
Management Function in the Public Service. August. 2008.
vii
4. MAIN FINDINGS
4.1. Human Resources Organisational Strategy and Planning
Human resource organisational strategy and planning is about ensuring that proper organisational structures
together with human resource requirements are in place and are aligned to the departmental strategic plan. It
is important to assess this area because the quality of organisational structures and capacity in turn impact on
service delivery.
Evidence from the Ten Year Review
2
indicates that at a departmental level organisational development skills are
in short supply which is why departments do not have proper structures that are supported by suffcient human
resources. An assessment conducted in 2005 by the Forum for South African Directors-General (FOSAD)
3
, also
identifed poor practices in organisational design within departments. In addition, human resource planning was
seen to be still in its infancy.
HRM also needs to be supported by proper HR Information Management (HRIM) systems. To this end the
importance of a PERSAL clean-up strategy and the introduction of the Integrated Financial Management System
(IFMS) is necessary. Processes are well underway to implement such a strategy as well as IFMS. This should allow
departments to have a credible information base from which to align their organisational structures, forecast
their human resource needs and maintain proper databases for the management of human resources.
Proper organisational structures are, however, not an end in themselves. Among others, they should be a
mechanism for changing the composition of the Public Service. Special provisions contained in the Public Service
Staff Code
4
at the time of democratisation made provision for the introduction of Affrmative Action as an
approach to redress the imbalances that existed. This received further impetus in 1998 with the introduction
of the White Paper on Affrmative Action in the Public Service
5
and the White Paper on the Transformation of
the Public Service
6
.
Collectively, these policies underscore the importance of representivity of race, gender equality and disability.
However, progress to date indicates a gap in the employment of people with disabilities and the integration of
women in the workplace.
4.2 Human Resource Practices
Human resource practices deal with the human resource administration services within a department. This
includes the management of recruitment, selection, compensation, conditions of service and human resource
personnel records. The PSC has found that there is widespread disregard of elementary processes such as
compiling job descriptions, conducting job evaluations and obtaining approval of job adverts prior to their
placement in the media. These procedural omissions undermine the credibility of the selection process and open
the Public Service up to legal challenges by disgruntled applicants. At a national level various steps have been
taken to improve the quality of recruitment and selection processes. However, most of these initiatives focus
on the senior and middle management layers of the Public Service while the vast majority of public servants are
employed at the lower levels.
The shortage of skills has been identifed as the single greatest impediment to the success of public infrastructure
and private investment programmes. Even though extensive work has been done at the national level to identify
2 Republic of South Africa. The Presidency. Towards a Ten Year Review. Pretoria. 2003.
3 Republic of South Africa. Department of Public Service and Administration. Guide and Toolkit on Organisational Design. 2007.
4 Republic of South Africa. Public Service Staff Code. 1994. (Replaced by the Public Service Regulations).
5 Republic of South Africa. White Paper on Affrmative Action of the Public Service. 1995.
6 Republic of South Africa. White Paper on the Transformation of the Public Service. 1995.
viii viii
occupational categories most affected by labour shortages and introducing initiatives to attract and retain staff in
these areas, departments are not doing enough to introduce targeted interventions. As a result, skills shortages
are continuing to constrain government’s delivery programmes. The PSC has also found that there are challenges
that departments are experiencing in recruiting and retaining employees with scarce skills which is evident in the
high vacancy and turnover rates within departments.
Provinces appear to be particularly severely affected by high staff turnover at the professional levels. Most of the
staff turnover occurs as a result of the internal movement of staff through promotions and transfers within and
to other departments/organisations. More research is required into this phenomenon but provisional indications
are that departments tend to compete with each other for the same scarce skills because of the fexibility they
have in grading positions and setting salaries at higher levels.
Compensation and service benefts have a major bearing on the ability of departments to recruit and retain
employees with scarce skills. Evidence indicates that the State as an employer is offering progressive medical
and pension benefts, and has introduced competitive remuneration packages at the senior management and
middle management levels. Further, occupation specifc dispensations for certain professional job categories were
introduced. However, the impact of these cannot be determined yet and will have to be closely monitored.
Annual and sick leave are among the key service benefts provided to public servants. Previous PSC reports
indicated major abuse of the Public Service’s sick leave and ill health provisions. However, the DPSA developed
the Policy on Incapacity Leave due to Ill-Health Retirement (PILIR) that was implemented in 2006. The policy is
intended to curb abuse of sick leave in the Public Service.
A positive development in the Public Service’s human resource practices is the authentifcation of the qualifcations
of serving offcials. The PSC has found that only a very small percentage of offcials have doubtful qualifcations.
While this is an encouraging sign, the focus should be on the proper verifcation of qualifcations at the point of
recruitment and selection rather than reactive measures.
4.3 Human Resource Utilisation and Development
Human resource utilisation and development deals with the proper deployment of employees as well as
their development, through training, learnerships, bursaries, mentorships and the Performance Management
Development System (PMDS). One of the critical tools for the effective utilisation and development of employees
is a Human Resource Development Plan. The PSC has found that in 2008, only 16 out of 144 departments
submitted their HRD plans, translating into an 11.1% compliance rate
7
. This suggests that some departments may
not even have these plans in the frst place. Furthermore, the PSC has found that Personal Development Plans
(PDPs) are often completed for the sake of ensuring compliance instead of genuinely identifying training needs
that are aligned to actual job performance.
4.4 Employee Health and Wellness
Employee Health and Wellness (EHW) is about the development and implementation of effective programmes
that are aimed at enhancing the quality of work-life within departments. These include among others, initiatives
to manage HIV/AIDS and Occupational, Health and Safety programmes. In view of the vulnerability of the Public
Service to the HIV/Aids pandemic, research was undertaken in 2006 regarding the extent to which the policy
framework for managing HIV and Aids and the requirement for associated employee assistance programmes
had been implemented. The results at that time suggested that while the required management structures
at departmental level were put in place, there, however, was less success in achieving the implementation of
voluntary counselling and testing, infection control and monitoring and evaluation of programmes. Lack of SMS
7 Republic of South Africa. Public Service Commission. State of the Public Service Report. Pretoria. 2006.
ix
commitment towards implementing the EHW programme, inadequate counselling skills and fnancial constraints
were also identifed as the most important factors contributing to this situation.
4.5 Employee Relations
Employee relations is about the promotion of effective labour relations in the workplace. Employee relations are
governed by specifc Labour Laws in South Africa which apply to the Public Service as a whole. Apart from the
salary strike in 2007, the Public Service has despite being highly unionised, enjoyed relative labour peace during
the last few years. This can be ascribed to the conclusion of multi-term collective agreements and the effective
utilisation of dispute resolution mechanisms. However, signifcant challenges remain around the management
of disciplinary and grievance processes. The PSC has found that inexperience and ignorance among managers
remains a major stumbling block in this regard.
5. RECOMMENDATIONS
5.1 Key HRM Area One: Human Resources Organisational Strategy and Planning
In order to improve the area of Human Resource Organisational Strategy and Planning it is recommended that:
• The DPSA should conduct a follow-up assessment to establish how organisational design practices in
departments have improved since the introduction of the Guide and Toolkit on Organisational Design.
• EAs must ensure that their departments implement the Directive’s on HR Planning issued by the
Minister for Public Service and Administration in October 2009 and submit the necessary six-monthly
reports in this regard.
• Departments should update PERSAL information to ensure proper information systems and proper
record management. HoDs and HR managers should sign a formal declaration once a year certifying that
their department’s information is valid and reliable.
• Meeting disability and gender targets must be cascaded down to each component in departments and
must receive special focus during the evaluation processes of all SMS members on an annual basis.
5.2 Key HRM Area Two: Human Resource Practices
In order to improve the area of Human Resource Practices it is recommended that:
• Departments should develop detailed and clear recruitment and selection policies and ensure that those
policies are approved in order to avoid haphazard recruitment practices. To this end departments should
utilise the PSC’s Recruitment and Selection Toolkit which provides clear guidelines on how to develop
such policies.
• Departments should have clearly spelt out delegations to approve the advertising of posts as well as the
appointment of persons to posts, these should be made available to all managers. Human resource
components should monitor adherence to these delegations at all times.
• Departments should prioritise and properly manage record keeping of all recruitment and selection
processes. These should include job evaluation results, job descriptions, proof of HR delegations, copies of
submissions approving appointments and copies of the appointment letters.
• Job hopping should be restricted by utilising regulatory measures where employees have to work a certain
number of years in one level, before they can apply for promotion to a different position within or in a
different department.
x
5.3 Key HRM Area Three: Human Resource Utilisation and Development
• Training courses provided to employees should address training needs of employees and these should be
relevant to the skills requirements of the departments.
• Departments should give special focus to the Core Management Criterion (CMC) relating to People
Management and Empowerment. There should be clear objectives and measures in the performance
contracts of all managers with employees reporting to them. This should be stringently monitored during
the mid-term and annual reviews.
5.4 Key HRM Area Four: Employee Health and Wellness (EHW)
In order to improve the area of EHW it is recommended that:
• Management and leadership should provide support by providing funding and staff to implement and
maintain the programmes. Further, SMS members and HoDs should participate in these various
programmes to give them their stamp of approval.
• Appropriate budgets should be allocated to the EHW units to ensure that they function effectively. SMS
and HoDs should assume the responsibility for budgets.
• Management should be seen and heard relaying strategies and their commitment regarding EHW
programmes directly to employees, they can use workshops as one of the communication mediums.
5.5 Key HRM Area Five: Employee Relations
In order to improve the area of Employee Relations it is recommended that:
• All departments must ensure strict adherence to the procedures and timeframes contained in the grievance
rules.
• Departments must also improve the appropriateness and consistency of sanctions given in cases of
misconduct.
1
C
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Introduction
2
1.1 BACKGROUND
Since the advent of democratic rule, government has introduced a number of measures to transform Human
Resource Management (HRM) in the Public Service. By 1999 most of the key policy frameworks had been put in
place although other policy changes continued to be introduced afterwards to refne the existing framework and
to facilitate implementation.
The PSC has conducted various research projects on HRM, and has found that whilst there are a number of HR
policies in place that seek to bring about the transformation of HRM in the Public Service, progress to date has
not been adequate. Each of these research projects dealt with a specifc aspect of HRM, such as performance
management, gender mainstreaming and the employment of people with disabilities. As a result there has not been
a single report providing a holistic assessment of the State of Human Resource Management and Development in
the Public Service and given the lack of progress in transforming the HRM function, the PSC deemed it necessary
to conduct an overview assessment of the State of HRM. This assessment aims at flling this gap by comparing
progress to date with the original aims and objectives enshrined in the Constitution and other relevant policy
documents.
1.2 MANDATE OF THE PSC
Section 196 (4) (b) of the Constitution
8
, read in conjunction with section 9 and 10 of the Public Service Act
9
, mandates
the Public Service Commission (PSC) to investigate, monitor and evaluate the organisation of administration and
personnel practices in the Public Service.
In addition, in terms of section (196) (f) (iv) of the Constitution, 1996, the PSC may of own accord or receipt
of a complaint, advise national and provincial organs of state regarding personnel practices in the Public Service
including those relating to the recruitment, appointment, transfer, discharge and other aspects of the careers of
employees in the Public Service.
HRM is one of the key functions in ensuring that a department meets its objectives. Without sound and proper
HRM a department would not be able to promote service delivery. Therefore it is imperative that Executive
Authorities (EA) and managers ensure that the management of human resources does not take a backseat to
other functions within a department but becomes an integral part of a department’s strategic objective.
1.3 OBJECTIVES OF THIS STUDY
This report looks at human resource management in all its dimensions, but more specifcally at the challenges that
still persist. The specifc objectives of this report are to:
• Develop indicators against which HRM in the Public Service can be assessed.
• Recognise achievements made in HRM.
• Using the indicators conduct an assessment of the State of Human Resource Management in the Public
Service.
• Identify and highlight the challenges in the human resource practices of the Public Service.
• Recommend actions to be taken to improve the state of HRM in the Public Service.
• Develop a HR Self-Assessment Instrument for use by departments.
8 Republic of South Africa. The Constitution of the Republic of South Africa Act 108, 1996.
9 Republic of South Africa. Public Service Commission. Public Service Commission Act of 1997.
3 3
1.4 SCOPE OF THE STUDY
The study comprised of a desktop assessment of all reports and reviews relating to a number of different areas of
HR policies, procedures and processes. Inputs were obtained from a variety of sources, analysed and compiled into
this report. The project comprised of the following phases:
Phase 1: Data Gathering
Reports developed by the PSC and other institutions in the Human Resource Management feld were collected.
A desktop audit of all these reports was conducted. Statistical information relating to the different areas of HRM
and HR processes such as the composition of the Public Service and vacancy rates, was extracted from Vulindlela
and PERSAL. A desktop search was also conducted to obtain information on global trends around the area of HR,
in order to gain an understanding of these issues within a global context.
Phase 2: Data Analysis
Before the data analysis took place indicators were developed, against which the state of HRM in the Public Service
was assessed. These indicators were based on the key fve HRM areas identifed by the DPSA in a Circular on
Interventions to Improve the Human Resource Management Function in the Public Service
10
. The main aim of
this assessment was to compare the status quo with the original aims and objectives enshrined in the legislation
and policy documents, whilst noting implementation progress and challenges that still persist. Based on the analysis
conducted recommendations on the areas for improvement were made.
Phase 3: Development of an HR Self-Assessment Instrument
As a key requirement towards rendering a professional human resource service a HR Self-Assessment Instrument
was developed and is attached as Appendix C. This instrument contains indicators that will be used by departments
when they are assessing their performance in the HRM area.
1.5 INDICATORS AS PER THE FIVE KEY HRM AREAS
Based on the fve HRM areas, indicators were developed and they have been used as a basis for assessing and
determining the extent to which HRM policy implementation has been met and to identify challenges that are still
being experienced. The indicators listed below will be further used by departments to:
• Establish whether performance in various areas of HRM is stagnating or progressing.
• Assess and track implementation of HRM processes.
• Determine whether the HR components are strategically positioned to assist departments in achieving
the service delivery goals.
• Plan appropriate interventions to improve the strategic capability of the HRM components.
1.5.1 Key HRM Area 1: Human Resource Organisational Strategy and Planning
The table below contains indicators that have been developed for the area on Human Resources Organisational
Strategy and Planning which includes Organisational Strategy, Human Resource Planning, Human Resource
Information Management and Change Management:
10 Republic of South Africa. Department of Public Service and Administration. Circular to Heads of all National Departments, Provincial
Administrations and Provincial Departments: Interventions to Improve the Human Resource Management Function in the Public Service.
Pretoria. August 2008.
4
Table 1: Performance Indicators in the area of Human Resources Organisational
Strategy and Planning
Key Performance
Area 1
Indicator
Organisational
Development
The Executive Authority (EA) must ensure that adequate capacity exists within the department •
to oversee the job evaluation process.
It is the duty of the EA to ensure that the organisational structure of the department is •
aligned with the strategic objectives of the department and that the roles and responsibilities
of all concerned are clearly defned.
The EA has proper delegations in place, to ensure an enabling working environment to •
support administrative leadership.
Human Resource
Planning
The EA ensures that policies and procedures are implemented for effective HR planning and •
managers are held accountable for non-compliance.
The HR plan contains clear human resource strategies to achieve the operational objectives •
of the department.
Current organisational structures enable the department to fulfl its service delivery •
mandate.
EA’s must ensure that the human resource plan contains the budgetary requirements to •
action the plan.
A dedicated team must be in place to maintain the plan. •
HR Information
Management
The EA must ensure that within the HR component there are standards set for the collection •
of HR information as well as for reporting to senior management.
There must be proper reporting procedures in place to ensure the processing and updating •
of HR information is done on a regular basis.
Change
Management
The Department is representative of the South African people and it implements diversity •
management measures.
An employment equity policy is in place and an employment equity plan is submitted to the •
Department of Labour on an annual basis.
All representivity targets are met within a set timeframe, that is 50% women within senior •
management by 2009; and 2% disability by 2010.
Affrmative Action (AA) surveys are conducted and EE plans are in place as required by law. •
AA accountability is integrated into the Performance Management and Development •
System.
Implementation of AA and EE is monitored and reports produced as required by law. •
Gender Mainstreaming Framework is implemented. •
Job access strategy is implemented. •
1.5.2 Key HRM Area 2: Human Resource Practices
The table below contains indicators that have been developed for the area on Human Resource Practice which
includes Recruitment and Selection, Scarce Skills, Verifcation of Qualifcations, Retention Strategy, Remuneration
and Conditions of Service:
5
Table 2: Performance Indicators in the area of Human Resource Practices
Key Performance
Area 2
Indicator
Recruitment and
Selection and
Employee life
cycle
A recruitment policy complying with good practice standards and spelling out detailed •
procedures is in place.
Fair and objective recruitment and selection processes are utilised as required by law. •
Qualifcations of all employees are verifed prior to appointment. •
All vacant posts are advertised and flled within the prescribed timeframe of three months •
Job descriptions are in place. •
Job evaluations are conducted in accordance with national norms and standards, including •
upgrading of positions.
All advertisements are approved before publishing. •
The Department complies with all the provisions of the Skills Development Act. •
Scarce Skills The EA must ensure that the recruitment policy clearly defnes the scarce and critical skills •
of the department.
There must be a retention programme in place that targets scarce posts and occupations. •
Verifcation of
Qualifcations
Procedures must be in place to ensure the verifcation of qualifcations. •
Retention
Strategy
A retention policy and programme are in place and monitored on an annual basis. •
The vacancy rate is less than 10%. •
Structured exit interviews are conducted and information obtained is used to inform •
targeted retention programmes.
A succession management system is in place to ensure the smooth replacement of •
employees who occupy key positions.
Career pathing and career management systems are introduced. •
Compensation
and Conditions of
Service
A policy on remuneration and conditions of service is implemented. •
An overtime policy is developed and implemented. •
Employment of professionals and specialists is increased to meet organisational service •
delivery needs.
1.5.3 Key HRM Area 3: Human Resource Utilisation and Development
The table below contains indicators that have been developed for the area Human Resource Utilisation and
Development which includes Human Resource Development (HRD) and Performance Management and
Development System (PMDS):
Table 3: Performance Indicators in the area of Human Resource Development
Key Performance
Area 3
Indicator
HRD A HRD Strategy is developed, implemented and monitored on an annual basis. •
A Work-Place Skills Plan based on thorough Skills Audit is in place. •
Employees are subjected to post-training assessment six months after training to determine •
the impact of training.
All employees have personal development plans that are aligned with career goals and the •
operational requirements of the department.
Institutional-specifc induction and job-specifc orientation conducted for all employees within •
three months of appointment.
Training and
Development of
Seniors Managers
EA’s need to ensure that prioritisation is given to the training needs of SMS. •
Capacity building must become a priority. •
6
Career
Management
Employees must be kept informed of career opportunities. •
Development and Mentorship programmes must be put in place to guide employees on •
correct career pathing.
Performance
Management and
Development
System (PMDS)
A formal performance management and development system that is in line with the priorities, •
objectives, indicators and targets contained in the Strategic Plan is applied and implemented
for all levels of staff.
Information gathered from the performance cycle is linked to other human resource functions, •
in particular training and development.
Performance bonuses are based on the outcome of performance appraisals and are distributed •
in line with the guidelines issued by the DPSA.
1.5.4 Key HRM Area 4: Employee Health and Wellness
The table below contains indicators that have been developed for the area on Employee Health and Wellness
which includes Employee Health and Wellness and HIV & AIDS:
Table 4: Performance Indicators in the area of Employee Health and Wellness
Key Performance
Area 4
Indicator
Employee Health
and Wellness and
HIV and AIDS
Employee health and wellness programmes are established, implemented and monitored on •
an annual basis.
HIV and Aids policy and programme is implemented and monitored on an annual basis. •
General overall employee satisfaction with the organisational climate assessed at least •
annually.
Positive responses are expected to all the eight questions that departments are expected •
to address in their Annual Reports regarding the implementation of health and wellness
programmes in the workplace.
Accurate records are kept with regard to sick leave and absenteeism. •
1.5.5 Key HRM Area 5: Employee Relations
The table below contains indicators that have been developed for the area on Labour Relations:
Table 5: Performance indicators in the area of Labour Relations
Key Performance
Area 5
Indicator
Labour Relations Policies and procedures regarding the management of discipline and for imposing sanctions •
are implemented and monitored on an annual basis.
All employees are informed of the disciplinary procedures of the Public Service and all •
supervisors are trained on the management of discipline.
Adherence to grievance procedures by stakeholders is ensured. •
All grievances are resolved within the time frames set in the Disciplinary Code and Procedures •
for the Public Service.
HR component monitors the level of employee satisfaction in the department at least on an •
annual basis.
Key Performance
Area 3
Indicator
7
Collective
Bargaining
Clarity of roles and responsibilities between line managers and labour relation offcers must •
be clearly defned.
Regular meetings with the departmental bargaining chamber must take place. •
The departmental representatives must be well informed of the matters to be addressed in •
the bargaining chamber
Serious challenges remain within the HRM function in many departments. It is for this very reason that the PSC
felt compelled to conduct this research on the Assessment of the State of Human Resource Management in the
Public Service to bring to the attention of Executive Authorities, Heads of Departments and HR managers the
need to improve human resource management. The above indicators were developed from the various reports
used in the assessment of the state of HRM and were also based on the legislative framework which is attached
as Appendix A.
1.6 STRUCTURE OF THE REPORT
The report is structured as follows:
Chapter 1 Provides the background and the indicators developed.
Chapter 2 Provides an analysis of human resource management and the key challenges.
Chapter 3 Provides recommendations and concluding remarks to the assessment.
Key Performance
Area 3
Indicator
8
C
h
a
p
t
e
r

T
w
o
An Analysis of Human
Resource Management and the
Key Challenges
9
2.1 INTRODUCTION
This Chapter looks at the management of human resources within the Public Service as a cornerstone for
the overall success of implementing government priorities. The issues of limited or lack of service delivery
can be traced back to the lack of capacity or requisite skills within the departments responsible for service
delivery. There are more than one million people employed by the different Public Sector institutions in South
Africa. In order to manage these huge numbers of employees it is important for the Public Service to have
streamlined and standardised policies as well as sound policies, systems and processes. These policies outline the
criteria and guidelines that determine how the Public Service recruits, selects, trains, disciplines, promotes and
remunerates its employees. Whilst there has been signifcant progress with regards to the legislative framework
and development of policies, implementation remains a challenge.
This chapter looks at the key human resource functions according to the specifc HRM areas and against key
HR indicators. These indicators have been drawn from the legislative framework, policies and other reports.
This chapter provides an analysis and an account of progress made over the years in the area of HRM and
development within the Public Service and the indicators in Chapter 1 have been used as the basis for the
analysis that follows.
2.2 ANALYSIS OF THE FIVE KEY HRM AREAS
2.2.1 Key HRM Area One: Human Resources Organisational Strategy and Planning
Human resource organisational strategy and planning is about ensuring that proper organisational structures
together with human resource requirements are in place and are aligned to the departmental strategic plan. It
is important to assess this area because the quality of organisational structures and capacity in turn impacts on
service delivery.
Evidence from the Ten Year Review
11
indicates that at a departmental level organisational development skills
are in short supply which is why departments do not have proper structures that are supported by suffcient
human resources. An assessment conducted by the Forum for South African Directors-General (FOSAD), also
identifed poor practices in organisational design within departments
12
. In addition, human resource planning was
seen to be still in its infancy.
HRM also needs to be supported by proper HR Information Management (HRIM) systems. To this end the
importance of a PERSAL clean-up strategy and the introduction of the Integrated Financial Management System
(IFMS) is necessary. Processes are well underway to implement such a strategy as well as IFMS. This should allow
departments to have a credible information base from which to align their organisational structures, forecast
their human resource needs and maintain proper databases for the management of human resources.
Proper organisational structures are, however, not an end in themselves. Among others, they should be a
mechanism for changing the composition of the Public Service. Special provisions contained in the Public Service
Staff Code
13
at the time of democratisation made provision for the introduction of Affrmative Action as an
approach to redress the imbalances that existed. This received further impetus in 1998 with the introduction
of the White Paper on Affrmative Action
14
in the Public Service and the White Paper on the Transformation of
the Public Service
15
.
11 Republic of South Africa. The Presidency. Towards a Ten Year Review. Pretoria. 2003.
12 Republic of South Africa. Department of Public Service and Administration. Guide and Toolkit on Organisational Design. 2007.
13 Republic of South Africa. Public Service Staff Code. 1994. (Replaced by the Public Service Regulations. 1999).
14 Republic of South Africa. White Paper on Affrmative Action of the Public Service. 1995.
15 Republic of South Africa. White Paper on the Transformation of the Public Service. 1995.
10
Collectively, these policies underscore the importance of representivity of race, gender equality and disability.
However, progress to date indicates a gap in the employment of people with disabilities and the integration of
women in the workplace.
This section of the report considers the available evidence regarding the effcacy of human resources organisational
strategy and planning at departmental levels. Furthermore it takes stock of initiatives that are under way to
address the challenges that have been identifed.
2.2.1.1 Organisational Arrangements and Delegations at Departmental Level
The South African Public Sector is important in ensuring sustainable growth and development of the country.
Key amongst its responsibilities is ensuring that all citizens have access to and receive the services they require.
The way in which departments are structured has an impact on how effectively they carry out their functions and
ensure service delivery. Evidence from the Ten Year Review
16
indicates that at a departmental level organisational
development skills are in short supply which is why departments do not have proper structures that are supported
by suffcient human resources.
In an attempt to deal with this issue in 2005 Cabinet instructed FOSAD to conduct an assessment of selected
government departments in order to identify obstacles to service delivery
17
. These assessments indicated that
there were poor practices in organisational design which was seen as an obstacle to effective service delivery.
Further challenges identifed by the FOSAD assessment included the following:
Organisational structure development that focused on the creation of posts and not on job purpose and •
functions.
The span of control (i.e. the number of direct reports per manager) varied substantially between •
departments.
A duplication of roles as a result of poor understanding of responsibilities in the policy making functions. •
Insuffcient consideration of service delivery models when departments were being structured and •
restructured.
Non-core functions such as the supply chain management and monitoring and evaluation not receiving •
the necessary attention.
In response to the FOSAD assessment, following the Cabinet Lekgotla of January 2006, Cabinet decided that
the Public Service Regulations had to be amended to state that an Executive Authority can only approve
an organisational structure (or amendments to it) after consultation with the Minister for Public Service and
Administration
18
. This was clearly intended to ensure good governance and some level of coordination and
coherence in the organisational confguration of departments if the issues that were included in the submissions
of departments were to be considered. In addition, the DPSA issued a “Guide and Toolkit on Organisational
Design” which seeks to guide departments on the development of organisation structures. There is however,
a need, to assess the effciency and effectiveness of organisational arrangements in the Public Service now that
clear guidelines have been provided.
Despite the measure to amend the Public Service Regulations, Executive Authorities still have high levels of
autonomy in creating and abolishing posts and changing their organisational structures. However, they are
naturally constrained by the budget envelopes that their Accounting Offcers have and the degree of fexibility
that exists in effecting personnel changes. While provision has been made for these powers to be delegated to
the Accounting Offcer and other offcials, in practice this is not done.
16 Republic of South Africa. The Presidency. Towards a Ten Year Review. Pretoria. 2003.
17 Republic of South Africa. Department of Public Service and Administration. Guide and Toolkit on Organisational Design. 2007.
18 Republic of South Africa. Ministry of Public Service and Administration, Circular 17/4/1/3/6 dated 27 June 2006.
11
A DPSA survey conducted in June 2008 showed that only 10% of the Executive Authorities made extensive
delegations, while as many as 72% of departments had delegations that did not fully cover the responsibilities
outlined in the Public Service Act and Regulations. One of the recommendations emanating from a PSC report
was that there is a need to develop a standardised framework for delegations
19
. As a result the July 2008 Cabinet
Lekgotla decided that a delegations model needs to be developed. This will go a long way in addressing the problem
of roles and responsibilities and the interface between Ministers/MECs and their Heads of Department. Ongoing
monitoring and evaluation of the effective delegation of powers and functions is nevertheless advisable.
2.2.1.2 Human Resource Planning
A study by the DPSA found that the way in which departments did their “planning” had too much of an
administrative bias thus focusing to a large extent on compliance rather than on strategic issues. The report
highlighted two key principles that should drive HR planning in the future, namely:
HR planning should provide a frequently updated framework of information for decision making. •
HR planning has a fundamental role to play in the attainment of departmental objectives through the •
effective utilisation of human resources.
The DPSA subsequently issued a new HR planning toolkit
20
which replaced the one issued in 2002 as a guideline
to assist departments with HR planning. At the time of writing this report no reviews were available on the
extent of compliance by departments and the challenges that they may be experiencing.
2.2.1.3 HR Information Management
All HR functions are dependent on an effective management information system and on reliable data within
the system. A golden thread running through virtually all the reports published by the PSC on human resource
matters are the concerns raised about the reliability of data available on the PERSAL system. It was, therefore,
encouraging that the Minister for Public Service and Administration announced in 2008 that Cabinet had
endorsed a PERSAL “clean-up” strategy and that the Auditor-General would be approached to assist in auditing
compliance with HR information and organisational structure systems/directives
21
. Another key development
that has been in the pipeline for some time is the Integrated Financial Management System (IFMS).
The IFMS project is a multi-stakeholder programme of National Treasury, DPSA and the State Information
Technology Agency (SITA), to consolidate and renew government’s “back offce” applications. These include
fnancial management, human resources management, supply chain management, asset management and business
intelligence across both national and provincial departments and as such constitute the biggest integrated business
solution undertaking in the country.
The new integrated transversal applications are expected to improve government’s administrative effciency by
providing systems to support legal compliance, strategic planning processes, data and information security and
management information
22
. These positive developments should not be regarded as short-term solutions. They
are likely to take several years to complete and, particularly the IFMS and its HRMS module will have major
change management implications. Hence these will have to be carefully managed and monitored in order to
ensure that they deliver the intended results.
19 Republic of South Africa. Public Service Commission. Role Clarifcation and Relationships at the Executive Interface. Pretoria. 2007.
20 Republic of South Africa. Department of Public Service and Administration. Strategic Human Resources Planning Guideline and Toolkit.
Pretoria, 2007.
21 Republic of South Africa. Governance and Administration (G&A) cluster Post-Lekgotla media briefng by Minister of Public Service and
Administration GJ Fraser-Moleketi. Union Buildings, Pretoria. 5 August 2008.
22 Republic of South Africa. Media release by SITA: “IFMS Human Resource Module Awarded”. 18 January 2009.
12
2.2.1.4 Change Management
Change management in the Public Service was introduced as a measure to manage the changing workforce
post 1994. Special provisions contained in the Public Service Staff Code
23
at the time of democratisation made
provision for the introduction of Affrmative Action as an approach to redress the imbalances that existed. This
received further impetus in 1998 with the introduction of the White Paper on Affrmative Action
24
in the Public
Service and the White Paper on the Transformation of the Public Service
25
. The legislative framework was a way
of entrenching the ninth constitutional principle of representivity, which requires that employment and personnel
management practices must be based on ability, objectivity, fairness and the need to redress the imbalances of
the past so that public administration could become broadly representative of the SA people
26
.
Collectively, these policies underscore the importance of representivity of race, gender equality and disability.
The targets set from the onset were as follows:
All departments were supposed to employ at least 50% black individuals at management level by 1999. •
At least 30% of the new recruits within the middle and senior management echelons had to be women •
by the year 2000.
At least 2% of the total workforce had to be people with disabilities by 2005. •
The PSC completed its frst assessment in this area in the year 2000
27
. The results showed that:
About 54% of individuals employed at management level were black – already above the target set. •
About 18% of individuals employed in the middle and senior management echelons were women – less •
than the target set for 1999.
Only 0.1% of the total work force comprised of people with disabilities. This showed that signifcant effort •
was still needed to attain the target of 2% set for 2005.
By the time of its second assessment published in 2006
28
, the PSC found that provincial departments performed
much better in terms of compliance with AA target requirements as compared to national departments. Of
the individuals employed at national departments in middle and senior management 56% and 68% were black
respectively. This was signifcantly less than the target of 75% set for April 2005. As regards gender, women
comprised 56% of all employees within the Public Service and only about 30% of middle and senior management.
According to the Fifth Consolidated Monitoring and Evaluation Report
29
meeting the target for disability has been
disappointing and this target has been extended to 2010. The overall assessment in this report indicated that of
all departments evaluated during the 2000 to 2008 the overall trend in performance against this principle was
poor and that departments were not making concerted efforts in ensuring that representivity targets are met.
2.2.1.5 Affrmative Action Measures
One of the compliance elements of the audit report on the Affrmative Action in the Public Service
30

was the extent to which government departments conformed to the prescribed policy and regulatory
requirements. Indicators were developed which were derived from the White Paper on Affrmative Action.
23 Republic of South Africa. Public Service Staff Code. 1994. (Replaced by the Public Service Regulations. 1999).
24 Republic of South Africa. White Paper on Affrmative Action of the Public Service. 1995.
25 Republic of South Africa. White Paper on the Transformation of the Public Service. 1995.
26 Republic of South Africa. Public Service Commission. Fifth Consolidated Public Service Monitoring and Evaluation System Report. Pretoria.
2008.
27 Republic of South Africa. Public Service Commission. The State of Representativeness in the Public Service. Pretoria. 2000.
28 Republic of South Africa. Public Service Commission. An Audit of Affrmative Action in the Public Service. Pretoria. 2006.
29 Republic of South Africa. Public Service Commission. Fifth Consolidated Public Service Monitoring and Evaluation System Report. Pretoria.
2008.
30 Republic of South Africa. Public Service Commission. An Audit of Affrmative Action in the Public Service. Pretoria. 2006.
13
These included amongst others indicators on numeric targets, employee profle, Affrmative Action surveys and
responsibilities (assigned responsibility for implementing AA).
The report fndings showed that improvements were required in the areas of employee profling, conducting
AA surveys and in the allocation of responsibilities. The vast majority (72%) of national departments did not
conduct AA surveys with provincial departments following a similar trend. The integration of AA accountability
into performance management systems was found to be uneven across all departments. Most departments did
not identify barriers to fulfl AA requirements and there was also no consensus among role players regarding
responsibility for the implementation of AA. In addition, departments were compliant in terms of meeting the
legal requirements “on paper”, however, the audit fndings revealed that their performance was poor in meeting
actual targets as per their AA Plans.
Additional fndings indicated that most departments conducted orientation and induction programmes for new
recruits and designated groups, however, more than a third of departments used generic orientation programmes
which were not customised to the needs of the particular recruits. A high level of disparity across provinces on
the mechanisms and approach used to implement personal development plans was also uncovered. Slightly more
than half of all departments had mentoring and coaching interventions in place. These were often administered
on an ad hoc basis. Succession planning was found to be inadequate, particularly with regards to commitment to
promoting the career progression of employees from designated groups. The study also highlighted the absence
of specifc leadership and management development interventions for employees from designated groups at
both national and provincial level.
(a) Race and Gender Equality
The most visible success of our democracy has been the extent to which the Public Service currently refects
the demographic composition of the country. About 87% of all public servants are black this includes African,
Asian and Coloured people. However, the Public Service needs to address the achievement of gender targets
and the integration of women in the workplace
31
. With regards to the employment of women, departments
were supposed to have reached a 30% target by March 2005. As at October 2009 departments had on average
achieved a 36% target. A concern raised in this regard is that it has taken departments a long time to achieve the
gender representativity target of 30% and it may take even longer to achieve the revised target of 50% which
should have been reached by March 2009, as set out by Cabinet in 2007.
Table 6: Race and Gender composition at national level as at October 2009
Race Male Female Total %
African 142 890 78 961 221 851 73.6
Asian 5 051 2 738 7 789 2.6
Coloured 20 150 11 105 31 255 10.4
White 23 337 16 895 40 232 13.4
Total 191 428 109 699 301 127 100
% 63.6 36.4 100
Source: Vulindlela (National Treasury)
Table 6 above provides a breakdown of public servants employed within national departments by race and
gender. From the information above 87% of all public servants are black which indicates that the AA efforts have
yielded positive results. However, the 2005 target for women has only just been achieved, it is therefore clear
that the 50% revised target will take time to be achieved.
31 Republic of South Africa. Public Service Commission. State of the Public Service Report. Pretoria, 2008.
14
Notwithstanding, initiatives have been taken to correct the situation. The Minister for Public Service and
Administration launched the Gender Equality Strategic Framework for the Public Service in 2008. The intent
of the strategic framework is to create an effective enabling environment through the adoption of progressive
policies, establishment of relevant institutional mechanisms and development of key operational processes to
ensure a transformed, non-discriminatory and fully inclusive Public Service
32
.

The strategic framework focuses on empowerment and capacity development for women in order for them
to be prepared for decision making positions. Furthermore; it is intended to ensure that gender issues are
integrated into decision-making, implementation, monitoring and evaluation at national, local and corporate
governance levels. This will assist departments to monitor progress when implementing their Employment Equity
plans. It will also serve as a guide for departments towards improving their performance in managing diversity,
which according the Fifth Consolidated M&E report
33
was found to be poor.
Table 7: Race and Gender composition at Provincial level as at October 2009
Race Male Female Total %
African 247 268 453 723 700 991 80.6
Asian 8 991 14 817 23 808 2.74
Coloured 26 181 48 218 74 399 8.55
White 20 279 50 288 70 567 8.11
Total 302 719 567 046 869 765 100
% 34.8 65.2 100
Source: Vulindlela (National Treasury)
Table 7 above provides a breakdown of public servants employed within provincial departments by race and
gender. It shows the reverse of the situation at national level. About 92% of all employees at provincial level are
black, which is considerably more than at the national level. Further, women comprise 65% of all employees, this
far exceeds the 30% set target.
(b) Disability
PSC research in terms of disability equity
34
shows that the Public Service is actually stagnant instead of improving.
Persons with disabilities constituted only 0.2% of the total workforce in October 2007. In October 2009
data shows that only 0.3% of all employees at national level have a physical disability. The comparable fgure
at provincial level is 0.22%. This suggests that 0.24% of all employees in the Public Service are individuals with
disabilities – same as was reported in 2006
35
. This raises real concerns as to whether the target of 2% for March
2010 as set by Cabinet will be achieved. The data in Table 8 below shows that a concerted effort will be
required to meet the target of 2% initially set for 2005, which has been extended to 2010.
32 Republic of South Africa. Speech by Ms Geraldine Fraser- Moleketi. Minister for Public Service and Administration. At the Inaugural Public Service
Gender Indaba on the role of women in the development of the Public Service, with the theme: “Engendering Public Service Policy”. 18 August
2008.
33 Republic of South Africa. Public Service Commission. Fifth Consolidated Public Service Monitoring and Evaluation System Report. Pretoria.
2008.
34 Republic of South Africa. Public Service Commission. Assessment of Disability Equity in the Public Service. Pretoria. 2008.
35 Republic of South Africa. Public Service Commission. An Audit of Affrmative Action in the Public Service. Pretoria. 2006.
15
Table 8: Disability statistics in the Public Service as at October 2009*
Departments/Provinces Total no. of staff No. of persons
with disabilities
employed
Percentage of persons with
disabilities
National Departments 301 127 881 0.3
Eastern Cape 142 274 337 0.2
Free State 56 052 133 0.2
Gauteng 138 615 161 0.1
KwaZulu-Natal 186 915 267 0.1
Limpopo 116 109 286 0.2
Mpumalanga 73 402 193 0.3
Northern Cape 22 265 46 0.2
North West 57 762 201 0.3
Western Cape 76 371 255 0.3
TOTAL 1 170 892 2 760 0.2
Source: Vulindlela (National Treasury)
2.2.2 Key HRM Area Two: Human Resources Practices
The purpose of this area is to provide sound and effcient human resource administration services. This function
includes the management of recruitment and selection, the management of compensation and conditions of
service as well as the management of human resource personnel records.
2.2.2.1 Recruitment, Selection and Employee Lifecycle Management
The ability of the Public Service to effectively deliver on its mandate depends to a large extent on its ability
to attract and select individuals of the desired quality and to retain them. Central to staff retention is effective
career management and development. The Public Service is experiencing challenges in this regard not only in the
lower levels but at the highest administrative levels as well.
(a) Application of Recruitment and Selection Procedures
The recruitment and selection norms and standards applicable to the Public Service are determined by the
Minister for Public Service and Administration through the Public Service Act (PSA), the Public Service Regulations
(PSR) and other directives that are issued from time to time. The PSA & PSR are supplemented by departmental
policies on recruitment and selection. Despite these, the PSC has found that departments continue to be faced
with signifcant challenges in the application of recruitment processes and procedures
36
. In particular the PSC
found that:
The majority of departments did not have job descriptions for posts that had been advertised. •
Job evaluations were not in all instances conducted prior to the advertisement of posts as required by •
the PSR.
Advertisements for posts were rarely approved prior to their publication. •
Short-listing criteria were in many instances not documented. There also appeared to be no consistency •
in the application of scoring systems for short-listing.
Potential conficts of interest of selection committee members in their relationship with candidates were •
rarely identifed.
36 Republic of South Africa. Public Service Commission. Audit of Selection Processes in Selected Departments. Pretoria. 2008.
16
Selection Committee recommendations of appointments were sometimes approved by offcials who did •
not have the requisite delegations to do so.
There was little evidence of proper record keeping by departments of the entire selection process. This •
is in clear violation of the PSR.
Together these fndings led the PSC to conclude that the recruitment processes in the Public Service leave much
to be desired
37
. The defciencies are of a serious nature and impact negatively on the credibility of the process
and its outcome. The DPSA, PSC and PALAMA have all taken steps to improve the quality of recruitment in the
Public Service. The most important of these are highlighted below:
The PSC developed a “toolkit” on recruitment and selection •
38
. The main aim of this toolkit was to assist
departments in managing generic activities with regard to recruitment and selection in order for them to
avoid errors and costs resultant from not implementing recruitment processes properly.
The DPSA commissioned research into recruitment and selection best practices during 2000 •
39
. One of the
recommendations was that competency-based recruitment and selection should be adopted.
The DPSA introduced the Senior Management Service in January 2001, its key objective was to improve •
the quality of recruitment and selection decisions, including modern recruitment and selection processes,
based on a competency framework
40
.
The DPSA issued a Middle Management Competency Framework, with the aim of promoting competency- •
based recruitment, selection and training at middle management level
41
.
The DPSA and PALAMA introduced accelerated development programmes for middle managers, inclusive •
of competency assessments to guide the development process.
Further an audit conducted by the PSC on an Audit of Selection Processes in Selected Departments
42
revealed
that despite initiatives to ensure seamless recruitment through the provision of the necessary frameworks,
guidelines, norms and standards and by ensuring that HR practitioners are trained, many departments are unable
to effectively implement selection processes and procedures.
The major implications in this regard are that:
The Public Service fails to place people with the right skills and competencies in the right places. •
The Public Service is at risk of not delivering on its mandate due to failure to attract/source suitable •
skills.
There are areas where there is little or no accountability for ensuring effcient and effective recruitment •
and selection processes. This could result in work overload of certain employees due to vacancies that are
either not flled or flled with the wrong candidates. In addition, some capable employees may end up
de-motivated by the lack of accountability in their departments. Such employees might resign to fnd work
environments with a culture of high performance.
Failure to adhere to the recruitment and selection processes may expose the Public Service to potential •
litigation, where employees who know and understand their rights well, may challenge the outcome of the
recruitment process.
Whereas there is a clear legislative framework, clear policies supported by guidelines and tools in the area of
recruitment and selection, it is concerning that departments are still struggling to implement basic processes
according to set procedures. This is a high risk area for government given the link between good quality
37 Republic of South Africa. Public Service Commission. State of the Public Service Report. Pretoria, 2008.
38 Republic of South Africa. Public Service Commission. A Toolkit for Recruitment and Selection. Pretoria. 2006.
39 Republic of South Africa. Department of Public Service and Administration. Report on Recruitment and Selection Best Practices. 2000.
40 Republic of South Africa. Department of Public Service and Administration. Senior Management Service Handbook. 2001.
41 Republic of South Africa. Department of Public Service and Administration, Middle Management Competency Framework. Pretoria. 2006.
42 Republic of South Africa. Public Service Commission. Audit of Selection Processes within Selected Departments. Pretoria. 2008.
recruitment and service delivery.
17
(b) Scarce skills
The PSC has found that departments face a number of challenges when it comes to the flling of vacancies
43
. The
most important factors that inhibit the flling of positions are; scarce skills, unavailability of selection committee
members, salaries that are not market related and inadequate delegations. The skills that were identifed as
scarce are listed below:
Engineering and planning. •
Artisan and technical skills. •
Health professionals. •
Veterinary and agriculture. •
Economic sciences. •
Information technology. •
Environmental management. •
Social Work. •
It should be noted that a framework for the recruitment of scarce skills is in place
44
. However, most departments
do not approach the recruitment of employees with scarce skills according to this framework. The development
and retention of priority skills in the Public Service requires urgent attention.
45
(c) Verifcation of Qualifcations
The verifcation of the candidates’ qualifcations constitutes an important activity during the recruitment process.
The Minister for Public Service and Administration announced in 2000 that the qualifcations of all public servants
would be verifed. The PSC has initiated three studies since then to assess the qualifcations of employees at
different levels. The frst study was completed in 2001 and focused on the verifcation of the qualifcations of the
SMS
46
. The study found that of the 2 376 offcials whose qualifcations were verifed (about 80% of the SMS) at
the time of the study, only two were found to have misrepresented themselves. While senior managers were
found to be well qualifed in that they held on average two tertiary qualifcations, the study suggested that they
lacked specifc management training.
The second, study focused on the verifcation of qualifcations of middle managers, and was completed in 2005
47
.
The study found that the 8 123 middle managers submitted 24 604 qualifcations for verifcation about 2.7
qualifcations per manager. Of these 22 021 (89%) were verifed at the time of the study. Of the verifed
qualifcations, 21 973 qualifcations from a pool of 7 541 managers were positively verifed. The results suggested
that middle managers at the time were qualifed from a technical skills perspective and that they were operating
in functional roles.
The third focused on the verifcation of the qualifcations of employees who are below level 11. This was
completed in 2007
48
. The study found that departments were at various stages of the verifcation process.
Most departments were still in the planning stages of the verifcation process. The main constraints cited were
staff resistance to the verifcation process and that staff took too long to provide proof of qualifcations when
43 Republic of South Africa. Public Service Commission. Report on the Audit on Vacancy Rates in National and Provincial Departments. Pretoria.
2007.
44 Republic of South Africa. Department of Public Service and Administration. Framework for the Determination and Compensation for Scarce
Skills in the Public Service. Pretoria. 2004.
45 Republic of South Africa. Public Service Commission. State of the Public Service Report. Pretoria. 2008.
46 Republic of South Africa. Public Service Commission. Verifcation of Qualifcations of Senior Managers in the Public Service. Pretoria. 2001.
47 Republic of South Africa, Public Service Commission. The Verifcation of Qualifcations of Middle Managers on Levels 11 and 12 in the Public
Service. Pretoria. 2005.
48 Republic of South Africa. Public Service Commission. Oversight Report on the Verifcation of Qualifcations in the Public Service. Pretoria.
2007.
18
requested to do so. In those departments where the verifcation process was completed 16 employees were
found to have fraudulent qualifcations.
The fact that only a very small number of employees were found to have inauthentic qualifcations is encouraging.
However, it is clearly not the ideal situation to verify the qualifcations of employees after they have been
appointed. This should be done prior to the appointment process. This applies equally to reference checking and
security vetting.
(d) Retention
A report
49
by the PSC found that a high level of staff turn-over is among the most persistent challenges that the
Public Service faces. It would however be a mistake to consider staff turn-over in isolation from retention and
the associated vacancy rates. These are also related to the skills-shortages referred to in the preceding paragraph.
This report also indicated that high staff turn-over and vacancy rates clearly show that the Public Service fnds it
diffcult to attract and retain staff.
The cost of losing staff that have been trained is not only limited to a loss of skills but also loss of institutional
memory and funds invested in the whole process of recruiting them and time invested in developing them. The
Public Service, as any employer, invests signifcantly in its staff by way of formal training that is provided, on-the-
job training, and skills transfer from fellow colleagues and managers. In addition, it is generally accepted that it
takes at least a year before a new staff member is fully settled in her/his new job after appointment. Much of this
investment is lost to departments when such an individual leaves within a short period
50
. Furthermore, it may
take some time before the department is able to fll the vacant position. All of these have a signifcant impact on
the Public Service’s ability to deliver on its mandate.
Concerns about the high level of staff turnover in the SMS and amongst professional staff informed a decision to
conduct an investigation into the causes and effects of mobility in the Public Service amongst individuals that fll
these positions, especially since it was recognised that a high staff turnover at these levels impacts negatively on
a department’s ability to deliver quality services. The results of this study
51
highlighted the following:
The greatest mobility at national level took place at the managerial level (68%) and a 4% mobility rate •
was recorded at the professional level. The comparable fgures for provincial departments were 13% and
49%, respectively.
The greatest mobility during the period under review was as a result of the internal movement of both •
SMS managers and professionals.
Better and higher positions were cited as the main causes for mobility. •
Limited development of retention strategies and policies suggest that the importance of effective retention •
tools and strategies for addressing mobility has not been fully realised. The implementation of retention
strategies was inhibited by an absence of guidelines and budgetary constraints that allowed for little
fexibility.
The retention tools that were most frequently utilised were the awarding of cash bonuses, external •
conferences and seminars, awarding of bursaries, managerial training and on-the-job training.
Poor monitoring and an absence of management information in the area of mobility were found to pose •
signifcant challenges to effective management of this aspect of human resources.
49 Republic of South Africa. Public Service Commission. Report on Causes and Effects of Mobility amongst Senior Management Service and
Professional Staff in the Public Service. Pretoria. 2003.
50 Republic of South Africa. Public Service Commission. Report on Causes and Effects of Mobility amongst Senior Management Service and
Professional Staff in the Public Service. Pretoria. 2003.
51 Republic of South Africa. Public Service Commission. Report on Causes and Effects of Mobility amongst Senior Management Service and
Professional Staff in the Public Service. Pretoria. 2003.
19
An aspect closely related to staff mobility is the vacant positions in the Public Service. The results of a PSC’s
study
52
into the vacancy rates in national and provincial departments found that:
The vacancy rate as at 1 August 2007 in the Public Service showed that the total number of funded posts •
according to PERSAL was 23%. National departments had the lowest vacancy rate of 16%.
The vacancy rate according to information reported by departments was about 6%. This suggested a •
variance of about 18% as compared to information on PERSAL.
The PSC concluded that it is safe to assume that due to the inaccuracies in information on PERSAL, the •
actual vacancy rate is well below the rate of 23% as suggested by PERSAL.
The highest number of vacancies was at salary level 6 to 8 followed by salary levels 1 to 5. •
About 46% of the funded vacant posts had been advertised by departments and the selection process •
had commenced in respect of 28% of the posts. In addition, selection committees had made recommendations
to the Executive Authority on the appointment of a suitable candidate.
As regards the turnaround time in flling posts, the majority of departments indicated that the average •
turnaround time was 2 to 3 months.
The most signifcant factors that impact negatively on the flling of posts were scarce skills and the •
unavailability of selection committee members.
About three in four departments (72%) indicated that they had strategies in place to fll vacancies. •
Departments in some provinces were the least likely to have strategies in place to fll their vacancies.
There is a direct relationship between the retention of staff and job-hopping where employees move •
between departments to higher posts and negotiate higher salaries on the basis of offers made by other
departments.
Table 9 refects the number of posts in the Public Service as at October 2009. About 29% of all posts are
located at national level with about 13% thereof being vacant. The total number of vacant posts in the Public
Service comes to about 314 210 which constitute about one in fve of all posts, as indicated below.
Table 9: Number of posts flled and vacant in Public Service as at October 2009
National
Departments
Provincial
Departments
Total %
Posts flled 300 673 869 371 1 170 044 79.0
Posts vacant 45 328 261 037 306 365 21.0
Total 346 001 1 130 408 1 476 409
% 23.4 76.6 100 100
Source: Vulindlela (National Treasury)
Such a high vacancy rate is a cause for concern because the performance and success of government is dependent
on the availability of the required capacity to deliver services to the citizenry.

The PSC conducted another study
53
to assess the extent and impact of the turn-over rate among HoDs in the
Public Service. The study was informed by the recognition of the importance for the Public Service to recruit,
develop and retain competent managers. The results suggest that the turn-over is caused by a number of factors
which include contracts coming to an end, transfers between departments, HoDs leaving the Public Service
before the expiry of their contracts because of push and pull factors, and higher than normal turn-over rates
during times of political change.
52 Republic of South Africa, Public Service Commission, Report on the Audit on Vacancy Rates in National and Provincial Departments, Pretoria,
2007.
53 Republic of South Africa. Public Service Commission. The Turn-Over Rate of Heads of Departments and its Implications for the Public Service.
Pretoria. 2008.
20
Furthermore, the incidence of turn-over across national and provincial departments for the period 2003/04
to 2006/07 fnancial years was 92 due to termination of service, 48 due to transfers and 19 due to splitting of
functions. The termination of contracts thus accounted for 59% of turn-over recorded on PERSAL, and transfers
and the splitting of functions 30% and 11% respectively. As regards the perceived reasons for HoDs leaving, most
centre around the relationships between HoDs and their EAs. EA-HoD relationships have been found to often
contribute to stress, a central reason for turn-over. HoD turn-over is also often associated with changes to
organisational structures and strategies. Needless to say, a high turn-over rate among HoDs may have a negative
impact on service delivery given the time it takes for a new HoD to settle in.
2.2.2.6 Compensation Management and Conditions of Service
(a) National Initiatives
Remuneration and conditions of service play a very important part in recruiting and retaining employees with
the required skills. Over the last 14 years there have been signifcant efforts at national level to ensure that the
Public Service remains competitive in the specialised benefts that it offers.
Since the Public Service is highly unionised and has a progressive labour rights legal framework, remuneration
and conditions of service are subject to negotiation, which means the State cannot unilaterally impose its policy
positions. Despite differences that have arisen from time to time, the State as an employer and the unions have
mostly been able to resolve their differences amicably. Multi-year salary agreements and agreements on changes
to the Public Service’s macro benefts have provided the basis for stability on the labour relations front.
In line with good practices nationally and internationally, the DPSA has introduced “total cost to employer”
packages for the Senior and Middle Management Services. The MMS and SMS dispensations allow for the
remuneration of high-level professionals at packages equivalent to their managerial counter-parts, thereby creating
conducive conditions for departments to recruit and retain scarce skills. In addition, the DPSA has introduced
“Occupation-Specifc Dispensations”, which is a revised remuneration structure for identifed occupations within
the Public Service. It is intended to address the principles as listed in clause 4 of the PSCBC Resolution 1 of 2007
54
.
Amongst others it creates career paths and salary progression possibilities for various occupational catergories.
As indicated in Table 10 professionals at the SMS and MMS levels constitute 0,1% and 0,6% of total Public Service
employment presently, which is a very small percentage. As mentioned in the Fifteen Year Review
55
, the Public
Service will have to accelerate its efforts to employ professionals and specialists in order to execute the mandate
of a developmental State.
The Public Service offers very attractive pension and medical benefts to its employees, a fact that is perhaps
not very widely acknowledged. The introduction of the Government Employees Medical Scheme (GEMS) on
1 July 2006 can be regarded as a signifcant milestone in providing affordable medical cover to State employees.
This medical aid is cost effective when compared to the private sector medical aid schemes, therefore, more
government employees can afford medical aid. Further, lower paid government employees for example levels 1-3
now have access to medical aid because they are 100% subsidised by government. A new sick leave dispensation
was implemented from 1 July 2000 which, among others, reduced sick leave credits from 210 days to 36 days
per three year cycle. A further positive development is the newly developed Policy and Procedure on Incapacity
Leave and Ill-Health Retirement (PILIR), piloted in 2003 and implemented in 2006. It provides for the appointment
of Health Risk Managers to process applications for incapacity leave, it also provides stricter processes and
procedures for assessing incapacity leave as well as for granting ill health retirement. In this regard, it is hoped
that with proper implementation this will curb the abuse of sick leave.
54 Republic of South Africa. PSCBC Resolution 1 of 2007.
55 Republic of South Africa. The Presidency. Towards a Fifteen Year Review. Pretoria. 2008.
21
(b) Departmental Initiatives
Conditions of service in respect of which Executive Authorities have authority to develop policies under the PSR
of 1999 include remunerated overtime and the awarding of salaries above the minimum notches of salary ranges
on appointment and promotion. This authority may be delegated further to Heads of Department. The PSC
initiated a study in 2003 to monitor and evaluate how departments deal with this devolved power to Executive
Authorities. The report was released in early 2004
56
.
The results of this study revealed the following:
Few departments at both national and provincial level have implemented overtime policies. The protracted •
negotiation process at departmental level and the additional strain it placed on departmental capacity
were found to be the main reasons for departments’ failure to develop such policies.
As regards the awarding of salaries above the minimum notches, the results suggested that •
most national departments (74%) and about one in three (34%) of provincial departments indicated
that salaries above the minimum have been awarded since the implementation of the PSR. The reasons
were to present counter offers to recruit and retain suitably qualifed persons in scarce felds/disciplines,
to recruit affrmative action candidates with the required experience, skills and qualifcations, and to
compensate for additional responsibilities attached to a particular post.
Job evaluations were conducted in only 36% out of the 122 posts that were awarded higher salaries as •
required by Part V.C.3 (a) of the PSR.
The results also suggest that there was a lack of understanding among departments regarding the •
importance of putting the required procedures in place to ensure accountability especially given the
implications for labour relations and its fnancial implications.
The PSC expressed the opinion at the time that many departments were not ready to effectively deal with •
the authority that has been devolved through the PSR.
The results of this study confrmed those reported in earlier studies by the PSC into human resource practices
such as leave, overtime, career management, probation and performance agreements, which indicated that
departments are not in all instances coping with the demands placed on them by the PSR. There is a need to
conduct follow up studies in this area to determine whether these areas still remain a challenge or whether
departments have made progress.
2.2.3 Key HRM Area Three: Human Resource Utilisation and Development
Human resource utilisation and development deals with the proper deployment of employees as well as their
development, through training, learnerships, bursaries, mentorships and the Performance Management and
Development System (PMDS). One of the critical tools for the effective utilisation and development of employees
is a Human Resource Development Plan. The PSC has found that in 2008, only 16 out of 144 departments
submitted their HRD plans, this translated to an 11.1% compliance rate
57
. This suggests that some departments
may not even have these plans in the frst place.
Furthermore, the PSC has found that Personal Development Plans (PDPs) are often completed for the sake of
ensuring compliance instead of genuinely identifying training needs that are aligned to actual job performance.
56 Republic of South Africa. Public Service Commission. Report on the abilities of Departments to deal with Devolved Authority regarding
Remuneration and Conditions of Service. Pretoria. 2004.
57 Republic of South Africa. Public Service Commission. State of the Public Service Report. Pretoria. 2006.
22
2.2.3.1 Human Resource Development
While the National Human Resource Development Strategy
58
addresses the supply of human capital to meet the
country’s needs at large, the Public Service HRD Strategic Framework Vision 2015
59
was developed to address
the particular needs of the Public Service. The main objective of the Framework is to enhance the capacity of
the Public Service to deliver the required services to all South Africans. Because of the reasons highlighted in the
Fifteen Year Review
60
, accelerated service delivery is high on the public policy agenda at present.
Despite the prominence of capacity building issues, departments seem to be progressing at a slow pace in putting
their HRD plans in place. From a report on the government’s Programme of Action, as at 15 December 2008
only 16 out of 144 departmental HRD plans (11.1%) were signed off by HoDs and submitted to the DPSA
61
. This
clearly suggests that there are problems with the implementation of the HRD Strategic Framework.
The importance of capacity to maximise human potential through sound HRM and career development practices
with a view to enhancing service delivery, cannot be over-emphasised. Signifcant progress has been made in
putting in place the necessary legislative, normative and regulatory framework for capacity building. Despite this,
“limited capacity continues to impact on government’s performance and its ability to realise its developmental
objectives”
62
.
With a view to address this concern the PSC initiated a study in 2007 to determine the extent to which training
needs of senior managers, including induction, mentoring and coaching have been met
63
. It was recognised that
the SMS forms the backbone of government’s ability to deliver on its mandate, especially since they should
provide strategic direction to government’s service delivery objectives. The results suggest the following:
Self-refection was identifed as the main driver for identifying training needs or gaps. •
The organisationally aligned developmental component of the performance management process only •
elicited 15% of the training needs identifed. This suggests that performance appraisals do not yet adequately
inform training needs. This refects poorly on the joint manager-report evaluation that should underpin
what should be an integrated Performance and Development process.
There is poor prioritisation and misalignment in the identifcation of training needs; and •
Most managers’ actual performance ratings remained unchanged despite them having gone for additional •
training.
2.2.3.2 Career Management
According to Erasmus et al
64
, career management is the process that plans and shapes the progression of employees
within an organisation in accordance with organisational needs and objectives, employees’ performance, potential
and their preferences. The concepts of career planning, career pathing and career development are central to this
process.
58 Republic of South Africa. Department of Public Service and Administration. Human Resource Development Strategy for South Africa 2009-
2030. Pretoria. 2008.
59 Republic of South Africa. Department of Public Service and Administration. Public Service HRD Strategic Framework Vision 2015. Pretoria.
2008.
60 Republic of South Africa. The Presidency. Towards a Fifteen Year Review. Pretoria. 2008.
61 Republic of South Africa. Government’s Programme of Action 2008: Governance and Administration Cluster. Pretoria.
62 Republic of South Africa. Public Service Commission. State of the Public Service Report. Pretoria. 2006.
63 Republic of South Africa. Public Service Commission. Report on the Evaluation of the Training Needs of Senior Managers in the Public Service.
Pretoria. 2008.
64 Barney Erasmus et al. South African Human Resource Management for the Public Sector. 2005.
23
The PSC reported on its frst assessment of career management in the Public Service in 2000
65
. The results of
this study pointed to the following:
There was limited implementation of career management programmes; and •
The absence of career management programmes at the time were ascribed to among others, outdated •
organisational structures, decentralisation, absence of time-frames in national policy, and the implementation
of the new Public Service Regulations was awaited.
Subsequently the Public Service Regulations took effect and the Codes of Remuneration (CORE) replaced
the Personnel Administration Standards (PAS). In a nutshell these required of departments to develop their
own career paths and career development programmes within the framework of the PSR and CORE. These
developments also replaced the system of rank and leg progression (employees received a set annual increment
and received a notch increase depending on their performance outcome for the year) which was a key feature
of the centrally prescribed PAS.
Although there has not been any focused study of the impact of these changes and the extent to which departments
have used their autonomy in developing their own career management systems, it has been observed that
the autonomy that departments have in grading positions and in awarding higher salaries has created internal
competition in the Public Service for scarce human resources. This in turn is being seen as a major factor that
drives high staff turn-over
66
. The implementation of Occupation Specifc Dispensations (OSDs) by the DPSA,
which re-introduces common career paths and salary scales for cross-cutting job families in the Public Service
must be seen as an attempt to correct this problem.
2.2.3.3 Performance Management
(a) SMS Performance Management and Development System (PMDS)
The PSC has since 2004 been monitoring and evaluating the performance management practices in the Public
Service. Studies were conducted in the Eastern Cape
67
, North West
68
, Northern Cape
69
provincial administrations
and within national departments
70
. The main objective of these studies was to assess compliance by SMS members
with the requirements of the PMDS including the management of PAs.
In all the reports
71
mentioned above it was found that the overall implementation of the PMDS by SMS
members was unsatisfactory. Some SMS members did not submit the PAs requested from them. This was an
indication that those SMS members might not have concluded their PAs. Challenges identifed included non-
compliance with the basic format that is supposed to be used when preparing a PA. There were also gaps
identifed with regards to the content for example information on dates for review was missing. PAs were
concluded long after the due date of 30 April this being indicative of non-compliance with the PMDS provisions.
65 Republic of South Africa. Public Service Commission. Report on Career Management in the Public Service. Pretoria. 2000.
66 Republic of South Africa. Public Service Commission. Report on the Audit on Vacancy Rates in National and Provincial Departments. October
2007.
67 Republic of South Africa. Public Service Commission. Report on Senior Management Service Compliance with Performance Agreements in the
Eastern Cape Provincial Administration. Pretoria. May 2007.
68 Republic of South Africa. Public Service Commission. Report on the Implementation of the Performance Management and Development
System for Senior Managers in the North West Province. Pretoria. January 2008.
69 Republic of South Africa. Public Service Commission. Report on the Implementation of the Performance Management and Development
System for Senior Managers in the Northern Cape Province. Pretoria. November. 2008.
70 Republic of South Africa. Public Service Commission. Report on the Analysis of Performance Agreements as an Effective Performance
Management Tool. Pretoria. December. 2008.
71 Ibid.
24
Even though managers indicated that it was important to enter into PAs, they cited lack of support
from HR components as one of the challenges they face which sometimes resulted in non-compliance.
Non-compliance by SMS is a cause for concern because the PMDS is critical in ensuring that the Public Service
is focused on its strategic priorities to ensure effcient performance and accountability.
The PSC also facilitates the process for the evaluation of Heads of Department
72
. In this regard the PSC monitors
compliance with the signing and fling of Performance Agreements (PAs) and compliance with the evaluation of
Heads of Department. Compliance with the signing and fling of PAs for HoDs is not much different. The PSC
found that as at 1 October 2007 there was a 65% compliance rate overall
73
. As at 30 September 2008 there
was a 63% compliance rate. This is a cause for concern because HoDs are supposed to fle their PAs with the
PSC by 30 June of each year. PAs serve as a common reference for the HoD and EA in terms of performance
expectations, monitoring performance and accounting purposes. If there is no PA in place there is no basis for
performance or for holding the HoD accountable.
The PSC has been raising concerns with the declining compliance rates in terms of HoD evaluations conducted.
The PSC found that for the 2005/06 fnancial year only 56% of all the HoDs who qualifed to be evaluated were
actually evaluated and there was a decline during the 2006/07 fnacial year where only 53% of all qualifying
HoDs were evaluated both nationally and provincially. Non-compliance at the highest Administrative Leadership
echelon is a cause for concern because this tends to flter down into all levels within the department.
Seeing the abovementioned trends the PSC was concerned about corporate governance and as a result a
study was conducted to assess the extent to which the payment of performance incentives is preceded by a
performance appraisal process as provided for in the PMDS
74
. The study highlighted some instances where HoDs
received performance incentives without performance evaluations being conducted. However, this practice did
not appear to be prevalent throughout the Public Service. This study confrmed the observations mentioned
above that the Framework for the Evaluation of HoDs, which provides a structured process for assessing the
performance of HoDs, is not being widely used by HoDs and EAs. In fact the results showed that HoDs were
evaluated in less than half of the cases in successive fnancial years. This demonstrated very low compliance rates
in the evaluation of HoDs.
The performance of senior managers in the Public Service has a direct bearing on the extent to which departments
can deliver on their service delivery mandates and is directly related to the governance challenges. This should
receive special focus, since pressure is mounting to improve the delivery of public services and for departments
to be more citizen-centric in their orientation. This can be achieved only if performance standards are raised
resulting in the improvement of performance in the Public Service.
(b) Management of Poor Performance
Much effort has gone into improving performance levels, but criticism about poor service delivery and inadequate
responsiveness to the needs of the people remains. In its report
75
on the management of poor performance the
PSC concluded that the management of poor performance remains a key challenge in the Public Service. Factors
that contribute to this include work culture issues, person-to-person mismatch, lack of skills, lack of performance
standards, and a failure to implement the PMDS properly.
72 Republic of South Africa. Public Service Commission. Factsheet for the Evaluation of Heads of Department for the 2005/2006 Financial Year.
Pretoria. November 2007.
73 Republic of South Africa. Public Service Commission. Factsheet on the Evaluation of Heads of Department for the 2006/07 Financial Year.
Pretoria. September 2007.
74 Republic of South Africa. Public Service Commission. The Payment of Performance Incentives to Heads of Departments without Annual
Performance Evaluations Conducted. Pretoria. 2008.
75 Republic of South Africa. Public Service Commission. Report on the Management of Poor Performance in the Public Service. Pretoria. 2007.
25
Managers are generally unwilling to execute this responsibility despite the fact that they understand the rationale
for managing poor performance. Furthermore, HoDs were found to be too lenient on their managers by not
holding them fully accountable for managing poor performance. In addition, HR divisions often fail line managers
in that they do not take ownership for facilitating and monitoring the performance management process.
2.2.4 Key HRM Area Four: Employee Health and Wellness
Employee Health and Wellness (EHW) is about the development and implementation of effective programmes
that are aimed at enhancing the quality of work-life within departments. These include among others, initiatives
to manage HIV/AIDS and Occupational, Health and Safety programmes.
2.2.4.1 Employee Health and Wellness and HIV/AIDS
One of the key aspects of human resource management in any organisation revolves around employee health
and wellness. Since the payroll costs of most organisations, and especially the Public Service, are signifcant, the
pro-active management of employee health and wellness is important. Ineffective management of this aspect
not only has signifcant fnancial implications but also has a detrimental effect on service delivery. Mindful of this,
the PSC undertook a comprehensive inquiry during 1999 into the information requirements for the effective
management of absence due to sickness.
As a result of this study the PSC recommended several amendments to PERSAL with a view to improve sick
leave administration and management. This study was followed by a second study in 2002 which reported on
sick leave trends in the Public Service
76
. The most signifcant fndings of this study were:
Out of the total staff complement of 959 950 public servants, 366 092 took sick leave during the 12 month •
period 1 October 1999 to 30 September 2000.
The results suggested that employees at national level were more inclined (63%) to take sick leave than •
those at provincial level. About 63% of public servants at national level took sick leave during the period
under investigation while the comparable number for provincial members of staff came to 31%.
The average days taken per person came to 11,86 with individuals at lower levels taking more sick leave •
than those in the SMS.
The cost of sick leave measured in terms of salary expenditure came to R631 633 660. •
The rate of absenteeism for males and females was proportionate to the number employed. •
The results suggested that employees were most likely to commence sick leave on Mondays as well as •
before and after public holidays. This was explained as a possible attempt by some to extend weekends.
PERSAL records on sick leave were found to be inadequate for effective management of this aspect. Key •
recommendations were made at the time to improve record keeping as well as monitoring and reporting
as it pertains to sick leave.
It is a well known fact that HIV and Aids represents one of the most important health related risks to Sub-
Saharan Africa with South Africa having the highest recorded infection rate. The PSC identifed HIV and Aids as
the single most challenging threat to the Public Service and its ability to sustain continuous and effective service
delivery. With a view to better manage HIV and Aids the PSC undertook a study in 2006 to assess the extent
to which the framework for managing HIV and Aids and the requirement for associated employee assistance
programmes were being implemented
77
.
76 Republic of South Africa. Public Service Commission. Sick Leave Trends in the Public Service. Pretoria. 2002.
77 Republic of South Africa, Public Service Commission, Report on the Evaluation of the Policy Framework on Managing HIV and AIDS in the Public
Service. Pretoria. 2006.
26
The results suggest that:
Many public servants fell into the high risk category for HIV and Aids. •
There was signifcant unevenness regarding the implementation of all aspects of the framework across •
departments. HIV and Aids committees were most widely implemented with voluntary counselling
and testing, infection control, and monitoring and evaluation of programme success the least. Lack of SMS
commitment and inadequate skills were identifed as the most important factors that explained this
situation.
Programmes specifcally targeting HIV and Aids in the workplace were found to be inadequate. •
All aspects of voluntary counselling and testing as provided for in the framework still needed to be •
introduced.
Employee assistance programmes were found to improve the capacity to deal with HIV and Aids but were •
still insuffciently integrated into programmes designed to deal with HIV and Aids.
There was a need to strengthen HIV and Aids policies. •
The effcacy of HIV and Aids programmes required further improvements. •
Effective management of employee health and welfare will not only contribute to employee wellbeing but
will also reduce the signifcant cost to the Public Service that results from high absenteeism due to ill-health.
Furthermore, absenteeism due to “ill-health” is often a symptom of other workplace problems. This calls for an
approach to absenteeism management in a much broader context.
2.2.5 Employee Relations
The purpose of this area is to promote optimal employee relations through effective management of labour
relations. Creating social partnerships with labour unions has put government under the spotlight, because
of the growing wage gap and demands for wage increases. This requires government to ensure constructive
relationship with the Labour Unions in order to meet the needs of a developmental State. This area is about the
development and implementation of labour relations policies and practices, the handling of grievances, disputes
and disciplinary matters and the provision of labour relations support and capacity building programmes in the
feld of labour relations within a department as well as the management of collective bargaining process.
2.2.5.1 Labour Relations
South African labour legislation is widely viewed as amongst the most progressive in the world. Since the advent
of democracy the Public Service has moved swiftly to democratise the workplace. Whereas the pre-1994 Public
Services were excluded from labour legislation, this changed rapidly after 1994, frst with the adoption of Public
Service specifc labour legislation, and quickly thereafter with the granting of full-blown labour rights as provided
for in the Labour Relations Act, No 66 of 1995.
Labour legislation and the collective agreements that fow from them, are intended to protect worker rights
and to promote sound employer-employee relations. Disputes are nevertheless inevitable. These may present
themselves at an individual level in the form of a dispute or grievance between a manager and a single employee
or collective disputes between groups of employees and the employer. The latter often revolves around “matters
of mutual interest” such as remuneration and conditions of service.
An investigation by the PSC during 2003 on dispute resolution in departments
78
, suggests that departments
made use of the prescribed grievance procedures or the dispute resolution mechanism. Disputes were more
likely to be referred to the sectoral councils than grievances were referred to the PSC. The reason for this was
that the PSC could only make recommendations and not fnal and binding pronouncements, a fact that was
78 Republic of South Africa. Public Service Commission. Report on the Dispute Resolution Mechanisms in the Public Service. Pretoria. 2003.
27
raised as a concern. Questions with regard to the expertise and knowledge of the arbitrators in relation to the
prevailing prescripts in the Public Service were also raised.
The Disciplinary Code and Procedures for the Public Service which came into effect on 1 July 1999 was designed
to provide for the management of discipline in a prompt, fair, consistent and progressive manner. The PSC
conducted an investigation into the management of discipline in the Public Service during 2003
79
. The key fndings
in the report are as follows:
Compared to the 1999 PSC Report on its investigation into dismissals due to misconduct, the 2003 study •
suggests that there was an overall reduction of about 9% in disciplinary cases at national level.
The number of individuals charged with misconduct in national departments during the period 2000-2001 •
came to 985 with 2 566 being charged at provincial level during the same period.
Much of the cases were related to fraud, misappropriation of funds, acceptance of commission as well as •
theft.
Absenteeism as a disciplinary problem appears to have dropped signifcantly since the 1999 Report. •
The largest number of disciplinary cases was encountered at the lower salary levels with few cases at SMS •
level.
A signifcant number (91%) of disciplinary cases at national level and 82% at provincial level were investigated. •
Sanctions were imposed in 82% of the cases at national level and 70% of the cases at provincial level.
Managers were taking responsibility for the management of discipline. This function was found to be spelt •
out as a requirement in performance agreements and job descriptions.
Lack of adequate training and designated investigation offcers were found to pose the most signifcant •
challenge to the management of discipline.
The extent to which discipline is managed and whether sanctions are imposed in a fair manner are important
tenets of sound labour relations. The PSC completed a study on the extent to which sanctions are being imposed
in a consistent manner within and across the Public Service
80
. The report dealt with conduct such as inappropriate
or unacceptable behaviour, dereliction of duty, fraud, assault, unauthorised absence, and contravention of policies
or prescripts, misuse of state property, fnancial misconduct, and corruption. The results suggest that sanctions
are being imposed inconsistently, a fact which may result in challenges by disgruntled employees. The fndings
highlighted the need to improve the manner in which discipline is managed and sanctions are imposed.
In another report published in 2007
81
the PSC highlighted that departments do not apply the disciplinary framework
consistently and do not treat discipline management with the required seriousness. The report noted that:
The number of grievances registered by employees in the Public Service increased signifcantly in national •
departments and the PSC but decreased in provincial departments during the period of the study.
The total number of grievances registered during the period January 2005 to June 2006 came to 5 632 of •
which 1 156 were referred to the PSC.
The fnalisation rate (47%) of grievances decreased during the period of the study. This was found to be, •
at least in part, related to the increased number of grievances which put additional strain on capacity.
Reasons for this include a lack of necessary time and skills by line managers to deal with grievances,
inadequate advisory and facilitation support to line managers from HR and labour relations practitioners.
A consequence of the slow fnalisation rate is that resentment among employees may increase. •
The results of the study also showed that there were many instances of non-adherence to the grievance •
procedures by stakeholders.
79 Republic of South Africa. Public Service Commission. Report on the Investigation into the Management of Discipline in the Public Service.
Pretoria. 2003.
80 Republic of South Africa. Public Service Commission. Evaluation of the Consistency of Sanctions Imposed for Misconduct in the Public Service.
Pretoria. 2008.
81 Republic of South Africa. Public Service Commission. Report on Grievance Trends in the Public Service. Pretoria. 2007.
28
Table 10: Number of grievances lodged for the period 2007/08 and 2008/09
Nature of grievances lodged Number of grievances
2007/08 2008/09
Filling of posts 112 105
Undermining of authority 5 2
Salary problems (adjustments/increase/
payment, etc)
195 210
Performance assessment 146 158
Unfair treatment (other than what is listed) 96 131
Application approval/Refusal to approve
application
10 21
Disciplinary matter 28 24
Unknown/Not listed in the list of keywords 5 3
TOTAL 597 654
Source: PSC Annual Reports
Table 10 above shows the number of grievances in the Public Service for the period 2007/08 and 2008/09.
It is evident that even though the legislative framework is very clear in its provisions on HR issues, challenges
of implementation still persist. Furthermore, there are clear policies, guidelines and toolkits that have been
developed that spell out clear procedures on how any of these issues must be handled. Clear and decisive steps
should be taken to hold departments accountable when they disregard the prescripts.
In its report on complaints lodged during the 2006/2007 fnancial year
82
, the PSC found that unethical behaviour,
human resource related matters and instances of alleged poor service delivery to the public were the most
important causes for complaints from the public as well as public servants. Complainants made use of both the
National Anti-Corruption Hotline
83
(NACH) and the mechanism of the Complaints Rules. The results suggest
that departments provide inadequate feedback on cases lodged through the NACH which led to the conclusion
that departments do not prioritise the investigation of complaints. Similar trends were reported during the
2007/2008 fnancial year
84
.
The above shows that signifcant progress has been made on both the legislative and policy levels. However, the
same cannot be said when it comes to implementation. This has signifcant implications for the Public Service. For
example, unresolved dissatisfaction among managers and employees will contribute to staff turn-over and will
invariably have negative consequences for service delivery. There is a need for adequate training for investigating
offcers. In addition the expertise and knowledge of managers and labour experts was also identifed as an area
of concern. This and other factors contributed to a relatively low fnalisation rate of grievances which has a
detrimental effect on employee/employer relations. Sanctions are also not imposed in a consistent manner within
and across departments
85
.
82 Republic of South Africa. Public Service Commission. Trend Analysis on Complaints Lodged with the Pubic Service Commission during the
2006/2007 Financial Year. Pretoria. 2007.
83 The NACH was established in 2004 and provides a ‘one-stop’ mechanism for members of the public to report acts of corruption. The NACH
has turned out to be a widely used mechanism to report corruption and the PSC has witnessed an increase in the level of its utilisation.
84 Republic of South Africa. Public Service Commission. Monitoring Fact Sheet on Complaints Lodged with the Public Service Commission during
the 2007/2008 Financial Year. Pretoria. 2008.
85 Republic of South Africa. Public Service Commission. Evaluation of the Consistency of Sanctions Imposed for Misconduct in the Public Service.
Pretoria. 2008.
29
2.2.5.2 Collective Bargaining
The main mechanism for collective bargaining in the Public Service is the Public Service Co-ordinating Bargaining
Council (PSCBC). The PSCBC deals with those labour issues that cut across the Public Service. Over and above
the PSCBC there are four sectoral bargaining councils viz. Health and Welfare, Education, Safety and Security and
General Public Service. Collective bargaining at departmental level involves matters which Executive Authorities
(EA) have the requisite power to ratify departmental policies and any amendments thereof. The EA can then
delegate this power to the HoD. It is in this context that labour relations offcers play an important role.
The developments in the feld of labour relations, which call for workplace democracy, brought about a paradigm
shift in the role played by labour relations offcers. The passing of the Labour Relations Act, 1995 and other
complementary labour legislation brought about signifcant changes to labour law as it previously existed. This
required that labour relations specialists had to become familiar with the latest developments and trends in the
feld. In order to assess the impact and role of labour relations offcers on workplace culture and service delivery,
the PSC reported on its study into this matter in 2005
86
. The study found that labour relations offcers in the
Public Service are involved in functions that are the domain of managers. This was of concern especially since
labour relations offcers should be seen as specialists rendering expert advice.
The results suggested that there was a lack of clarity of roles and responsibilities between line managers and
those of labour relations offcers, and how the interfaces between the two should be managed.
2.3 SUMMARY
This chapter has showed that there has been signifcant progress in the Public Service in the way in which human
resources are managed. Despite this, the available information highlighted a number of concerns that still exist
that must be addressed. The recommendations presented in the next chapter have been designed to bring about
improvements in human resource practices in the Public Service if implemented.
86 Republic of South Africa. Public Service Commission. Assessing the Role of Labour Relations Offcers in the Public Service.
Pretoria. 2005.
30
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Recommendations and
Concluding Remarks
31
3.1 INTRODUCTION
Taking into account the available evidence on the state of HRM across the Public Service that have emerged from
the thematic analysis, in the previous chapter as well as the key challenges that have been highlighted, this chapter
provides recommendations to improve the situation of HRM in the Public Service.
3.2 RECOMMENDATIONS
3.2.1 Key HRM Area One: Human Resources Organisational Strategy and Planning
In order to improve the area of Human Resource Organisational Strategy and Planning it is recommended that:
The DPSA should conduct a follow-up assessment to establish how organisational design practices in •
departments have improved since the introduction of the Guide and Toolkit on Organisational Design.
EAs must ensure that their departments implement the Minister for Public Service and Administration’s •
Directive’s on HR Planning and submit the necessary six-monthly reports in this regard.
Departments should update PERSAL information to ensure proper information systems and proper •
record management. HoDs and HR managers should sign a formal declaration once a year certifying that
their department’s information is valid and reliable.
Meeting disability and gender targets must be cascaded down to each component in departments and •
must receive special focus during the evaluation processes of all SMS members on an annual basis.
3.2.2 Key HRM Area Two: Human Resource Practices
In order to improve the area of Human Resource Practices it is recommended that:
Departments should develop detailed and clear recruitment and selection policies and ensure that those •
policies are approved in order to avoid haphazard recruitment practices. To this end departments should
utilise the PSC’s Recruitment and Selection Toolkit which provides clear guidelines on how to develop
such policies.
Departments should have clearly spelt out delegations to approve the advertising of posts as well as the •
appointment of persons to posts, these should be made available to all managers. Human resource
components should monitor adherence to these delegations at all times.
Departments should prioritise and properly manage record keeping of all recruitment and selection •
processes. These should include job evaluation results, job descriptions, proof of HR delegations, copies of
submissions approving appointments and copies of the appointment letters.
Job hopping should be restricted by utilising regulatory measures where employees have to work a certain •
number of years in one level, before they can apply for promotion to a different position within or in a
different department.
3.2.3 Key HRM Area Three: Human Resource Utilisation and Development
Training courses provided to employees should address training needs of employees and these should be •
relevant to the skills requirements of the departments.
Departments should give special focus to the Core Management Criterion (CMC) relating to People •
Management and Empowerment. There should be clear objectives and measures in the performance
contracts of all managers with employees reporting to them. This should be stringently monitored during
the mid-term and annual reviews.
32
3.2.4 Key HRM Area Four: Employee Health and Wellness (EHW)
In order to improve the area of EHW it is recommended that:
Management and leadership should provide support by appointing authoritative management and staff to •
implement and maintain the programmes as well as provide funding. Further, SMS members and HoDs
should participate in these various programmes to give them their stamp of approval.
Appropriate budgets should be allocated to the EHW units to ensure that they function effectively. SMS •
and HoDs should assume the responsibility for budgets.
Management should be seen and heard relaying strategies and their commitment regarding EHW •
programmes directly to employees, they can use workshops as one of the communication mediums.
3.2.5 Key HRM Area Five: Employee Relations
In order to improve the area of Employee Relations it is recommended that:
All departments must ensure strict adherence to the procedures and timeframes contained in the •
grievance rules.
Departments must also improve the appropriateness and consistency of sanctions given in the cases of •
misconduct.
3.3 CONCLUSION
The Public Service needs to be highly professional and effcient. This entails that the Public Service must be staffed
with highly competent and dedicated professionals. This will require a shift in the way that human resources are
managed.
Whilst, sound legislative and policy frameworks are in place implementation continues to be a challenge. The
focus, moving forward is to ensure that HRM becomes more strategic in its bias, ensuring that the necessary
capacity is built within departments utilising the tools provided and following proper processes and procedures.
Departments should account for missing targets e.g. gender and disability this should be noted against their
performance. Norms and standards should be strictly followed to ensure that recruitment and selection processes
are conducted effectively, this will ensure that the required personnel will be made available timeously and
government is not exposed to unnecessary litigation. Employees should receive the necessary support in terms
of training in order to allow them to grow within their departments. Proper management of service conditions
is also key in ensuring conduce work environment. Overall HRM is a key function in ensuring that departments
have the necessary capacities to deliver on their mandates.
33
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Legislative Framework
34
1. INTRODUCTION
Appendix A presents the legislative framework that underpins HRM within the South African Public Service. As
will be illustrated, HRM is informed by a comprehensive effective policy and legislative framework, which seeks
to drive the practice of HRM in a way that is sound and improves the capacity of the Public Service to deliver.
As highlighted in Chapter one, fve areas of HRM were chosen, and the various reviews were analysed in this
respect. By demarcating the fve areas of HRM, it was possible to identify in a systematic manner the progress
made and challenges still faced within each of these areas to date. To some extent, this assessment may be
considered as a meta-evaluation (evaluation of evaluations), because it is based on previous assessments and
audits that already evaluated key topics in this area.
2. LEGISLATIVE AND REGULATORY FRAMEWORK
Human Resource Management in South Africa occurs within a defnite legislative and policy framework. This
chapter provides an overview of the key pieces of legislation and explains how they impact on HRM in the Public
Service. HRM has been recognised as a priority by policy-makers, and this is illustrated in the comprehensive
legislation that has been enacted.
The feld is evolving and dynamic, which has been recognised by policy-makers. In order to keep the discussion
current, this chapter also presents a key policy initiative that is currently being developed and processed.
Table 11: Legislative and Policy Framework
Legislation/Policies Provisions
The Constitution of the Republic of
South Africa (1996)
87
Chapter 10 of the Constitution provides that public administration must be governed
by the democratic values and principles enshrined in the Constitution. In respect of
the Human Resource Management, Section 23 of the Constitution is of particular
importance which provides for fair labour practices.
White Paper on the Transformation
of the Public Service, 1995
88
The aim of the White Paper was to establish a policy framework to guide the
introduction and implementation of new policies and legislation aimed at transforming
the South African Public Service.
White Paper on Human Resource
Management in the Public Service,
1997
89
The Purpose of the White Paper on the HRM in the Public Service (1997) was to
provide a policy framework that will facilitate the development of human resource
management practices which support an effective and effcient Public Service, geared
for economic and social transformation.
Public Service Act, 1994, as
amended
90
The purpose of the Act is to provide for the organisation and administration of
the Public Service in the Republic, the regulation of the conditions of employment,
the terms of offce for the public servants, discipline, retirement and discharge of
members of the Public Service, and matters connected therewith.
Public Service Regulations, 2001, as
amended
91
The regulations are subordinate to the Public Service Act and they strengthen the
powers conferred upon Executive Authorities in terms of the Public Service Act. The
PSR aims to enable HoDs in managing their departments effectively and effciently
with the support and guidance from the Executive Authority.
87 Republic of South Africa. Constitution of the Republic of South Africa, 1996.
88 White Paper on the Transformation of the Public Service, 1995.
89 White Paper on Human Resource Management in the Public Service, 1997.
90 Public Service Act, 1994, as amended.
91 Public Service Regulations, 2001, as amended.
35
Public Service Bargaining Council
Resolutions
92
These resolutions are the products of collective bargaining in the formal employer-
employee negotiation structures of the Public Service. They deal with a wide variety
of employee rights, obligations and benefts including issues such as overtime, housing
subsidies and offcial accommodation.
Code of Remuneration, 1999,
(CORE) as amended
93
The CORE replaced the Personnel Administration Standards and provides
considerable fexibility to departments to appoint and promote employees using
the International Labour Organisation (ILO) occupational classifcation framework
and the “job weight” of positions as determined through job evaluation.
The SMS Handbook, 2003, as
amended
94
This Handbook deals with the entire employee lifecycle management process of
SMS members based on a distinct competency framework.
Labour Relations Act (LRA), 66 of
1995
95
The purpose of the Act is to give protection to the labour rights as enshrined
in section 18 & 23 of the Constitution. It aims to promote sound and fair labour
relations within organisation. The promulgation of the LRA ensures that employees
within the workplace have an opportunity and framework to voice their opinion
through organised labour organisations.
Basic Conditions of Employment Act,
75 of 1997
96
The purpose of this Act is to advance economic development and social justice in
South Africa and give effect to sections 23 rights enshrined in the Constitution and
promote and regulate fair labour practices within the workplace.
Employment Equity Act (EEA), 55 of
1998
97
The purpose of the EEA is to achieve equity in the workplace by-
promoting equal opportunity and fair treatment in employment through a)
the elimination of unfair discrimination, and
Implementing affrmative action measures to redress the disadvantages in b)
employment experienced by designated groups, in order to ensure their
equitable representation in all occupational categories and levels in the
workplace.
Skills Development Act, 97 of 1998
98
The purpose of the Act is to provide an institutional framework to devise and
implement national, sector and workplace strategies to develop and improve
the skills of the South African workforce. Furthermore, it aims to integrate those
strategies within the National Qualifcations Framework contemplated in the South
African Qualifcations Authority Act, 1995; and to provide for learnerships that lead
to recognised occupational qualifcations.
Skills Development Levies Act,
1999
99
The Act aims to provide for the imposition of a skills development levy and for
matters connected therewith.
Occupational Health and Safety Act,
1993
100
The Act aims to provide for the health and safety of persons at work and for the
health and safety of persons in connection with the use of plant and machinery and
the protection of persons other than persons at work against hazards to health
and safety arising out of or in connection with the activities of persons at work. It
further aims to establish an advisory council for occupational health and safety; and
to provide for matters connected therewith.
92 Public Service Bargaining Council Resolutions.
93 Code of Remuneration, 1999, (CORE) as amended.
94 The SMS Handbook, 2003, as amended.
95 Labour Relations Act (LRA), 66 of 1995.
96 Basic Conditions of Employment Act, 75 of 1997.
97 Employment Equity Act (EEA), 55 of 1998.
98 Skills Development Act, 97 of 1998.
99 Skills Development Levies Act, 1999.
100 Occupational Health and Safety Act, 1993.
Legislation/Policies Provisions
36
Compensation for Occupational
Injuries and Diseases Act, 130 of
1993
101
The Act aims to provide for compensation for disablement caused by occupational
injuries or diseases sustained or contracted by employees in the course of their
employment, or for death resulting from such injuries or diseases; and to provide for
matters connected therewith.
The Toolkit on Recruitment and
Selection
102
The Toolkit aims to provide a framework on the recruitment and selections
procedures on the Public Service.
Each of the above legislation and documents directs the activities of human resource managers in the various
departments within the South African Public Service in one way or another. This legislative framework also
forms the foundation for the human resource management system for the Public Service. The Constitution of
the Republic of South Africa provides the Executive Authority, human resource managers and practitioners with
a rich store of ethical substance to inform and guide their everyday activities. Some of these values enshrined in
the Constitution are fairness, equity, accessibility, transparency, accountability, participation and professionalism.
These values are also refected by the various legislation and policies mentioned above. In essence the Executive
Authorities, human resource managers and practitioners have at their disposal an extensive legislative framework
to assist and guide them in the management of human resources.
3. CURRENT POLICY INITIATIVES
Arguably one of the most important policy initiative under way is the Public Administration Management Bill.
This Bill will take forward the rationalisation process in that it will harmonise the terms and conditions of service
of public servants at all three spheres of government. This is expected to facilitate the mobility of offcials and
thereby alleviate capacity constraints. It will also establish common norms and standards for public administration,
management and governance.
In the “Single Public Service” the following Human Resource Management Systems and Processes will be
harmonised:
Human resource planning and employment equity. •
Recruitment and selection. •
Conditions of employment. •
Career management and promotions. •
Retention measures. •
Mobility arrangements between spheres, including but not limited to transfers and secondments. •
Performance management. •
Competency frameworks. •
Financial disclosure. •
Senior Management Service. •
The key legislative provisions were used as a basis for the analysis of the state of HRM in the Public Service and
to identify gaps especially in policy implementation within the current practices.
101 Compensation for Occupational Injuries and Diseases Act, 130 of 1993.
102 The Toolkit on Recruitment and Selection.
Legislation/Policies Provisions
37
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Human Resource Self
Assessment Instrument
43
INTRODUCTION
Thank you for taking the time to complete this survey. This will take about 20 minutes.
The goal of this survey is to obtain feedback from internal clients on the quality of services that all the employees
involved in the Human Resources component render. The feedback from this survey will provide important
information about areas of strength as well as areas of development.
Your thoughts and perceptions are the most important input to this survey. Your responses will remain
anonymous; therefore you can answer the questions with complete openness.
Some demographic information is required to analyse the results of the survey. Please see Section 1 in this
regard.
Complete each question either by placing a tick [?] in the relevant box or by writing an answer in the space
provided.
44
SECTION 1: DEMOGRAPHIC PROFILE
Gender
Male O
Female O
Grade
Grade 13 – 16 (SMS) O
Grade 9 – 12 (Assistant Director to Deputy Director) O
Grade 1 – 8 O
Age
25 and under O
26 - 35 O
36 - 45 O
46 - 55 O
Over 56 O
Education
Less than Secondary School (Grade 12) O
Secondary School (Grade 12) O
Diploma O
University degree O
Postgraduate degree O
Race
African O
Indian O
Coloured O
White O
45
SECTION 2: SERVICES
The following questions revolve around the services (or practices) delivered by all employees directly involved in
the Human Resources function. These services form the main practices through which the department seeks to
build a skilled, motivated and committed workforce.
No/
Ineffective
Not
sure
Yes/
Effective
1 2 3
1. Recruitment and Selection
1.1 Does the department have a Recruitment and Selection policy in
place?
If not, why not?
1.2 How effective is the HR Section in implementing the Recruitment &
Selection processes as outlined in the policy?
1.3 How compliant are the Recruitment and Selection processes with
the policy?
Please indicate / expand on areas of concern:
2. Employment Equity
2.1 Does the department have an EE policy in place?
If not, why not?
2.2 Does the department have an EE plan in place?
If not, why not?
2.3 How effective is the HR section in implementing the EE targets
outlined in the EE plan?
2.4 Has the department met its gender and disability targets?
If not, why not?
Please indicate / expand on areas of concern:
3. Human Resource Administration
3.1 How effective do the HR policies and procedures support the
operational needs of the department?
3.2 How effective is the HR section in contributing to strategic planning
and management processes in the department?
3.3 How effective is the HR section in maintaining personnel
expenditure in terms of the MTEF?
3.4 How effective is the HR section in managing leave and
absenteeism?
46
No/
Ineffective
Not
sure
Yes/
Effective
1 2 3
Please indicate / expand on areas of concern:
4. Human Resource Development
4.1 Does the department have an HRD policy and strategy in place?
If not, why not?
4.2 Does the HR section have in place a Work Place Skills Plan?
If not, why not?
4.3 How effective is the HR section in ensuring that the training needs
of the employees are met?
4.4 How effective are they in ensuring that the employees have
personal development plans that align the career goals and
operational requirements of the department?
Please indicate / expand on areas of concern:
5. Human Resource Planning
5.1 Does the department have an HR Plan in place that is aligned with
the Strategic Plan and the Medium Term Strategic Framework?
If not, why not?
5.2 How effective is the HR section in developing human resource
strategies in support of the department’s operational objectives?
5.3 How effective is the HR section in ensuring that a succession
management system is in place to replace key individuals?
5.4 How effective is the HR Plan in ensuring the short term and future
needs of both the organisation and the employees are met?
Please indicate / expand on areas of concern:
6. Performance Management and Development System (PMDS)
6.1 Does the department have a PMDS policy in place?
If not, why not?
6.2 How effective is the HR section in putting in place a performance
management and development system that ensures that the
department’s goals and objectives are achieved?
6.3 How effective are the outcome of performance appraisals used for
other HR processes such as training and development?
47
No/
Ineffective
Not
sure
Yes/
Effective
1 2 3
Please indicate / expand on areas of concern:
7. Labour Relations
7.1 How effectively are the policies and procedures regarding the
management of discipline and grievances being implemented and
monitored?
7.2 How effective is the HR section in ensuring that the grievance
procedures are adhered to?
7.3 How effectively are the employees informed of the disciplinary
procedures in the Public Service?
Please indicate / expand on areas of concern:
8. Employee Wellness and HIV/AIDS
8.1 Has the department established and implemented employee health
and wellness programmes?
If not, why not?
8.2 Does the department have a dedicated unit or a designated
employee/s to promote the health and well-being of the
employees?
If not, why not?
8.3 Has the department introduced measures to protect HIV positive
employees or those perceived to be HIV positive from
discrimination?
If not, why not?
8.4 Does the department encourage employees to undergo Voluntary,
Testing and Counselling (VCT)?
If not, why not?
8.5 Has the department developed measures to monitor and evaluate
the impact of the health and wellness programmes?
If not, why not?
Please indicate / expand on areas of concern:

48
If you have any other comments on the services that the HR section renders, please write these in the space
provided below:
THANK YOU FOR PARTICIPATING
49
NOTES
50
NOTES

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