DEPARTMENT OF DEFENCE

EQUAL OPPORTUNITIES AND AFFIRMATIVE ACTION ADVISORY BOARD
ANNUAL REPORT FOR 2003/2004- 2004/2005


SUBMITTED TO THE HON. M. G P. LEKOTA

MINISTER FOR DEFENCE

PREPARED BY THE DOD EO/AA ADVISORY BOARD CHAIRPERSON: DR P. MAKHALE-MAHLANGU


Inquiries: Dr P. Makhale-Mahlangu Chairperson to the Equal Opportunities and Affirmative Action Advisory Board

Tel: (012) 355-523015979



INTRODUCTION

1. The inception of the South African democratic political order in 1994 ushered in a new and unprecedented era in the character, vision and mission of the Department of Defence (DOD), especially the South African National Defence Force (SANDF). In 1994 our state and government inherited politically incompatible, racially orientated and conflict-based defence institutions made up of the South African Defence Force, armed formations of the liberation movements, the TBVC Defence Organisations and the Bantustan administrations.
   
2. All these institutions were locked into a conflict-based logic making the realisation of their respective visions and missions impossible in as far as the support and protection of the majority of South Africans was concerned. This situation necessitated the establishment of the Equal Opportunities Chief Directorate in 1997 and the DOD Equal opportunities Monitoring and Advisory Board in 2001.
   
3. This is the context in which the unprecedented constitutional transformation and integration mandates on one hand, and attempts at implementing such mandates on the other hand should be understood. All role-players and stakeholders in the Department of Defence in general and the South African National Defence Force in particular have an obligation to embody the spirit and principles of these constitutional mandates in their execution of their daily responsibilities as members of the Department of Defence, various institutions and organisations.


PURPOSE

4. This report aims to give a comprehensive description and assessment of the work undertaken by the DOD Equal Opportunities and Affirmative Action Monitoring and Advisory Board (EO/AA), in its primary function as a Strategic Component for the promotion and realisation of the DOD Policies on equity and diversity management during the 2003/2005 Financial Year.
   
5. This report is part of an ongoing process rather than a once off scoreboard. lt is therefore a lantern used to look closely at specific issues identified as challenges in various interactions between the Equal Opportunities and Affirmative Action Board, EOIM Directorate and various stakeholders within the DOD units. This process is intended to result in a proper understanding of challenges and interventions made by relevant managers. The Board strongly believes that in this respect it provides a valuable resource for the Department as it strives to implement its constitutional mandates as articulated in White Paper on Defence and the Defence Review as well as various policy frameworks established for the transformation, integration and development of the South Africa National Defence Force as well as the Department itself.


THE DOD EO/AA MONITORING AND ADVISORY BOARD



6. DOD Equal Opportunities and Affirmative Action Board was established in 2000 to give advice on monitoring the implementation of the policy processes on Affirmative Action and Equal Opportunities in the Department of Defence and to account directly to the Minister of Defence.
   
   The responsibilities and terms of reference of the Board are clearly defined in the Board's Constitution.
   
7. The Board was created to advise on issues of transformation and equity. It functions then, at the pleasure of the Minister, through the Secretary for Defence. The Board's work entails assessment of the work undertaken by the EO/AA Chief Directorate and the provision of advice to the Minister in all issues of equity.
   
8. Board members are voluntary service providers and non-sectorial in their approach and are remunerated according to the departmental scales.
   
9. Their selection is based on area expertise and experience deemed valuable in supporting the work of the Chief Directorate as it strives to implement the high level Strategic Objectives of the
   DOD.


Methodology


10. In preparing this report, the processes pursued were as follows:
    

1. The Board, with participation of DOD role-players as invited from time to time, undertook quarterly meetings and strategic planning and working sessions: The Secretary for Defence through the EO Chief Directorate cleared and provided most data requested by the Boards' secretariat. DOD personnel were available in most cases to make presentations and take questions from Board members.
2. Issues requiring immediate interventions by the Chief Directorate for EO/AA were identified and relevant actions taken.
3. A decision was taken for the preparation of a comprehensive annual report that would highlight achievements and challenges with recommended interventions. To this effect a two-day strategic workshop was held with members DOD invited to give clarity on specific issues identified by the Board as requiring attention.
4. Parliamentary Portfolio Committee presentations from the EO/AA Chief Directorate were also interrogated.
5. A review of SETAI Report and its implementation processes.
6. Research in DOD was also undertaken in areas of specific policy implementation processes.
7. Meetings of the Civic Education Board held Heidelberg Gymnasium and the Air Force Train Centre in Pretoria were also attended to apprise EO/AA Advisory Board of key issues addressed by Civic Education Board.

11. For the period under review the Board highlights the following achievements:

1. Assessment of the impact of national policy framework on the DOD and its alignment with the EOCD mandate, objectives and achievements.
2. Conducted the Board's strategic planning and working sessions to assess the Board's objectiveness and effectiveness.
3. Monitoring of the attainment of the transformational and Equity goals in relation to Gender and Disability policy imperatives.
4. The Board participated and contributed development, review and promulgation of the EOCD Policies and programmes:

1. Sexual Orientation Policy.
2. Sexual Harassment Policy.
3. DOD Shared Values.
4. The institutionalisation of Barrier Free Access.
5. The establishment of the Sexual Harassment Hotline and Training.

12. The Board raised critical concerns on the perceptions and consistency on the application of the Fraternisation Policy as this has critical considerations on Gender based on the Equal opportunities in the DOD.
    
13. These matters broadened the understanding of the Boar on EO Policy implementation in the DOD and how the Board will be strengthened and make effective and meaningful contributions in the DOD in the future.


Civil military authority spheres

14. The SANDF enjoys legitimacy in the eyes of the public and as such the admixture of institutional mechanisms for civil military authority modalities are not being challenged and receive support within the DOD.
    
15. However, the specific roles and responsibilities of the Secretary for Defence Offices and Chief of the SANDF require further refinement and clarification. In the absence of this, the current pattern of misalignment and poor integration in the implementation of policies and plans on equity will continue.


Strengthened and consolidated EO/AA Chief Directorate


16. The EO/AA Chief Directorate has a strategic mandate, policies, plans and programmes for operationalising the constitutional mandates and government policies on transformation and equity. The Board has noted that these have received varying degrees of support from the DOD.
    
17. The Board has noted the impact of the DOD restructuring process on the future of EOCD as follows:
    

1. Accountability of Services and Divions through: Equity Compliance Visits and submission of Equity Plans to the Chiefs of Services and Divisions.
2. Assisted EOCD on the enforcement of attainment of representivity targets.
3. Assisted in the Interface between EOCD and the DOD Services and Divisions and other relevant role-players on transformation and Equity.

18. Challenge: The Board has noted that alignment between Human Resource Plans Review guidelines in the area of skill empowerment programmes in the DOD.
    
19. Recommendation: It is recommended that the DOD conduct a skill audit so as to identify the gap in skills requirement for the Department. This is important because the general perception is that Blacks are less skilled than their white counterparts as the latter are able to access skills development programmes at a higher rate.
    
    Gender
    Attainment of Gender targets.
    
20. Challenge: There is a critical shortfall on the Gender representivity targets:
    

1. Absence of Gender SMS and Decision making level 30% for both the Military and the Public Service Act Personnel.
   

21. Recommendation: Greater effort is required to increase gender representivity at both SMS and middle management levels. Increased gender representivity will create a positive affirming environment. The White Paper on transformation of the public service gives clear guidelines in this regard. Evaluation, Research and Development reports must focus on identifying blockages.


Disability

22. The Board notes positive strides taken by the DOD in the implementation of Barrier Free Access, but however raises concerns on the negative perceptions and attitudes towards People with Disabilities especially around the issue of Discharge on Medical Grounds: Physical/l Mental
    
    Fast Tracking, Development Training and Promotion
    
    23. Challenge: These processes and programmes as well as their management require urgent review in order to ascertain compliance as prescribed by the White Paper on Affirmative Action in the Public Service and the White Paper on the Transformation of the Public Service.
    
    24. Currently EO is working on the implementation plan for the Fast Tracking Programme based on the strategic objectives. Fast tracking and mentoring mechanisms are critical tools in the realisation of the recent targets intended to correct the 1999 targets, which are intended to correct the imbalances at middle management levels.
    
    25. Recommendation: There is a need to:
    
    a. Assess the current status and measure progress made by the Services on Fast Tracking objectives and implementation against the new government representivity targets.
    
    b. Create synergy between DOD Human Resources policies and practises on Equity implementation (particularly the synergy between the Fast Tracking Policy and the Promotion Policy).
    
    c. Prepare plans for formal mentoring and re-skilling mechanisms.
    
    d. Strengthen mechanisms for recruitment of designated groups (Blacks. Women and People with Disabilities) in training courses.
    
    e. Prepare succession plans for addressing the racial imbalance particularly at the Middle Management.
    
    f. Investigate general compliance with PSAP requirements and General Public Service Regulations and the application of Equity in this area.
    
    g. Include in compliance requirements in the Performance Agreements of DOD Managers, Service and Division Chiefs.
    
    Lack of Racial Balance especially at Middle Management and Lower levels
    
    26. Challenge: There is a glaring under representation of white personnel at lower levels from privates to Sgt's and an over representation of Whites in middle management because of the whole upper mobility or promotion of White junior officers to full officer positions after 1998. This is a H.R. (Human Resources) core function, which needs attention. This will inevitably create problems of availability for Blacks in upper layers of management in Defence (this Directorate is prioritising this matter).
    
    27. Recommendation: Blockages to fast tracking through mentorship and training be identified and addressed and review of recruitment and mobility methods in this area.
    
    Dispute Resolution and Grievance Procedures
    
    28. Challenge: The Board has noted the disputes grievances on Equity and Unfairness and related perceptions.
    
    29. Recommendation: The Board is currently reviewing its operations with a view to deciding how to add-value to these matters above (Monitoring and Advisory mandate) Comprehensive analysis, based on monitoring and evaluation, is undertaken in order that intervention policies are kept current.
    
    HIVIAIDS
    
    30. Challenge: Clarity with respect to HIVIAIDS and any other chronic disease policy is required. The non-recruitment of HIV/Aids positive persons into the SANDF should be discussed further, so that people can understand the role played by physical fitness tests as well as the onerous training requirements and conditions.
    
    31. Recommendation: The Board would like to engage the MOD on the policy on HIV with a view to assist the DOD align with the Constitution and international obligations.
    
    32. There is a need to establish a fully-fledged EO/AA/Civic Education Leadership Institute to ensure development and reskilling of personnel in a coherent and a unified system.
    
    Equity Compliance Enforcement in DOD
    
    33. Challenge: Enforcement of the EOIAA and compliance to the DOD Transformational objectives.
    
    34. Recommendation: The Secretary for Defence should be capacitated to ensure that line managers comply with equity and human resource directives. The relationship between the Secretary for Defence and the Service Chiefs with regards to enforcement of equity requirements should be clarified and included in their respective performance agreements.
    
    Inspector General Secretariat
    
    35. Challenge: The role and responsibilities of the Inspector-General DOD are not well defined with respect opportunities and affirmative action issues. There is a need to void duplication between EOCD and IG DOD expertise and effectiveness.
    
    Recommendation:
    36. The Board will engage the MOD on these matters. Any decisions that impact on the EOCD restructuring should be discussed with the Board.
    
    RESTRUCTURING OF EOCD
    
    37. The Board raised concerns over the proposed incorporation of EOCD into HR, because the Board believes that Equal Opportunities is a crosscutting matter that transcends HR matters and is a critical Constitutional imperative.
    
    38. The role of EOCD also includes monitoring HR and to achieve this effectively EOCD must report directly to the DOD accounting Officer.
    
    39. The location of Equal Opportunities and Civic Education, Training, Corporate Values, as well as general establishments related to leadership structures on programmes under the Secretary for Defence need an organisational redesign and consolidation.
    
    40. This will ensure integration and effectiveness in the implementation of the various programmes. The Secretary for Defence's capacity to implement his office's high-level strategic objectives will be enhanced by such an organisational redesign.
    
    41. Furthermore, the centrality of equity contained in the EOIAA plans will be strengthened, as it will be an integral part of an integrated structure under the Secretary for Defence. New directorates under the Secretary for Defence are necessary to drive the processes under a reorganised structure.
    
    Sexual Harassment
    
    42. Challenge: The Board does not have sufficient information on the extent of Sexual Harassment in the DOD.
    
    43. Recommendation: The Board plays a very important monitoring role ito Sexual Harassment. This process should consider the role of other stakeholders i.e the Legal Services.
    
    44. Records of sexual harassment must be kept and feedback must be given to EOCD for review and action plans to combat Sexual Harassment.
    
    White Paper Guidelines
    
    45. Challenge: Government has reviewed its Affirmative Action Targets to include the following: Race Blacks (75%), with emphasis on Women particularly (Africans and Coloureds), Gender (30%) and Disability (2%) representivity and these are not reflected in the H.R. and Equity Plans.
    
    46. Poor performance by Service and Divisional Chiefs with regard to targets due to lack of common understanding on actions to be taken. The movement towards the achievement of the White Paper targets is very slow.
    
    47. Recommendation: The Board would like to be enabled to interface with all relevant stakeholders and to review the past performance against the previous targets and to develop strategies to respond to the new targets.
    
    48. There is a need to review performance agreements and the performance management systems to enhance Employment Equity compliance by Services and Divisional chiefs.
    
    Human Resource Development Plans
    
    49. Challenge: There is no strategy in the current Human Resource Development plans to address the poor representation of Blacks (Men and Women) in the middle management structure of the SANDF (Majors and Colonels).
    
    50. Recommendation: It is therefore recommended that those existing mechanisms, recruitment process and redeployment efforts be interlinked into an integrated strategy that addresses this problem.
    
    51. If the 2010 strategy does focus on this problem or is intended to address it, an open discussion is necessary. The model used by the Navy is instructive as a best practice for other divisions especially the SAAF (South African Air Force) in dealing with development of personnel:
    
    Absence of Multi-Skilled Functionaries from units to H.R.
    
    52. Challenge: The lack of clarity about the role and location of MSF (Multi-skilled Facilitators) undermines the original implementation plans of the EOIAA at local level.
    
    53. Recommendation: The location and role of MSF be reviewed in the light of proposals and options for the recommended re-organisation of the Defence Secretariat structure. This impacts on the additional responsibilities given to EOCD.
    
    INTERFACE WITH CEEAB
    
    Equal Opportunities affirmative Action and Civic Education Units, LCAMPS, LOAC, International Humanitarian Law
    
    54. Recommendation: It is recommended that the above responsibilities and specialities be integrated in the EOCD. The Defence Secretariat should discuss an integrated structural redesign that consolidates these scattered units.
    
    55. In effect there is a need to consolidate EO/AA/HR/CE programmes under one structure within EOCD and also allowing EOCD to retain its identity as a specialised vehicle for equity and a transformation agency. Furthermore it is recommended that the DOD consolidate all these programmes under the accountability of the Secretary for Defence.
    
    56. The CEEAB (Civic Education Board) and DOD EO/AA Boards have had a series of meetings to discuss matters of mutual concern. Currently the Boards are individually reviewing their mandates and will further co-operate on these matters.
    
    CONCLUSIONS
    57. The Board has made some progress in discharging its mandate particularly with respect to policy and monitoring. However, its effectiveness has been undermined by the following:
    
    a. Lack of resources.
    
    b. Poor buy-in from DOD top management.
    
    C. Inability to dialogue directly with the MOD, the Sec Def and CSANDF.
    
    d. Weak transitional arrangements upon the departure of the previous chairperson.
    
    58. The Board has applauds the noted visible but slow progress particularly to Gender Balance at SMS level and decision-making structures and Race at middle management and other levels that are not representivity.
    
    59. The Board has noted with concern the need for the DOD to be more responsive on the issue of Disability.
    
    60. Another area where the Board would like to see more balanced representation is wrt Women’s participation in Peacekeeping.
    
    61. The Board advises the MOD that the EOCD has a more meaningful role to play in Peace Support Operations.
    
    62. The Board would like to have a closer relationship with the MOD, Sec Def and CSANDF.
    
    63. As South Africa increasingly plays a leading role in its international obligations as requested by the AU, EU and UN, the demands on the DOD will continue to be critical and our readiness cannot be over emphasised. Burundi, the Great Lakes and Nepad are but a few examples. We cannot fail to meet this challenge.
    
    64. Particular attention and general recognition of the contributions made by the SANDF in U.N. engagements on international peacekeeping activities requires a visible championship for and support of the DOD as a model for others. Central to that process is the issue of transformation and Equity.
    
    65. Finally, it should be emphasised that, the White Paper on Transformation of the Public Service and the White Paper on Affirmative Action in the Public Service and other relevant legislation on unfair discrimination the debate on Affirmative Action continues to be a burning issue from all sectors of our society.
    
    66. This reality requires of the DOD and the Ministry in particular to actively and forcefully engage all its resources in supporting the activities of the Advisory Board as a Ministerial tool in the evaluation and promotion of transformation and EO/AA implementation in the DOD.