PRESENTATION TO THE PORTFOLIO COMMITTEE ON PUBLIC
SERVICE AND ADMINISTRATION ON GENDER MAIN STREAMING INITIATIVES IN THE PUBLIC SERVICE:
SUMMARY
OUTLINE OF THE SUMMARY
Objectives of the Audit
Key Findings
Demographic reflections
Recommendations
OBJECTIVES: The objectives of the study are to-
provide a baseline for future research as well as to
provoke debate about a number of key issues around gender mainstreaming;
develop a gender representivity profile describing
progress and status of departments on representativeness according to targets
that have been set in the Public Service;
examine the extent to which empowerment of women has
occurred in terms of their role as part of the executive structures of
departments and their involvement in decision- making;
establish whether there are family-friendly polices,
which take into account the social benefits of families, such as flexi - time
for men and women and childcare arrangements, which support equal family
responsibility;
examine the impact that gender mainstreaming has on
management responses to both male and female staff members;
examine the extent to which recruitment and promotion
practices are utilised to enhance gender equality in employment;
examine how sensitive issues associated with gender relations (including sexual
harassment cases) are handled in departments;
propose interventions to implement gender
mainstreaming in departments; and
examine the role that Office on the Status of Women
plays in supporting and encouraging gender mainstreaming in Public Service departments
and what role they may have in implementing the results of this investigation.
KEY FINDINGS INTRODUCTION
Women's access to executive power and decision-making has improved since
the 1994 elections. There is strong representation of women in the national and
provincial departments. The challenge to institutions in the Public Service is
to change their culture in order to be more responsive to the needs of women
civil servants.
Knowledge and understanding of gender mainstreaming:
There is a lack of knowledge about gender mainstreaming in most departments and
across all levels. Senior management does not know how to move from vision
(policy) to strategy and action. The main reason for this is because of a lack
of knowledge and understanding of what it is that needs to be changed, why it
needs to be changed, how to go about the change process and what results should
be produced. For implementing gender mainstreaming you need to build up a good
base of gender knowledge to build gender competence which is absolutely
necessary in order to do proper strategic planning.
Provincial overview of Women in Senior Positions (levels 13-16) in the
Public Service:
The average percentage of women in senior positions in provincial departments
is 29, 8% which is only 0,2% below the target that was set. In terms of the
provincial analysis, North West (33,4%) and Limpopo (32, 5%) have the most
women in senior positions followed by Gauteng and Mpumalanga, reflecting 30, 6%
respectively. The Western Cape has the lowest percentage of female managers
(23%). Across all the provinces there is a 10.4% difference between the
province with the highest number of women in senior positions (North West at
33.4%) and the province with the lowest number of women in senior positions (Western
Cape at 23%).
National Departmental Review of Women in Senior Positions (levels 13-16) in
the Public Service:
The average percentage of women in senior positions in national departments is
31, 2%, which exceeds the target of 30%. A similar trend in national
departments is observed to that of provincial departments, where the highest
percentage of women in senior positions is in departments such as Health and
Social Development.
Women with Disabilities in Senior Positions (levels 13-16) in the Public
Service:
More disabled men then women are employed at senior management level in the
Public Service. In seven Provinces no female managers with disabilities are
employed.
Empowerment of women:
In general the empowerment of women is not happening in any significant or
meaningful way in departments. Apart from general policies and practices that
affect all staff, there are no specific programmes that recognise women as a
separate interest group with specific interests and needs. This includes issues
related to recruitment, training and addressing the practical needs of women.
Participants at senior management level argued that the predominantly male
culture has made it difficult for their voices to be heard.
Structures:
There is a lack of a clearly defined institutional framework that is necessary
to facilitate the attainment of the vision of gender mainstreaming. Roles and
responsibilities within the National Gender Machinery (NGM) need to be
clarified and then implemented and institutions held accountable for its
success or lack thereof, within the Public Service. The national structures
established to promote women's empowerment and gender equality; specifically
the Office on the Status of Women (OSW) and the Commission on Gender Equality
(CGE) will need to be strengthened to be able to provide the support and
services required by government departments in implementing and monitoring
gender mainstreaming.
Processes:
Gender mainstreaming is not included in any departmental planning, monitoring
and budgeting processes apart from ensuring that employment equity targets are
met. To achieve gender equality, government must embark on a rigorous gender
mainstreaming strategy. To this end, much of the responsibility for planning
and implementing effective and innovative strategies for the promotion of
women's empowerment and gender equality will rest equally with key structures
of the National Machinery and with individual government departments at the
national, provincial and local levels. Individual departments will obviously
need to tailor their strategies for gender equality to suit the particular
needs and requirements of their departments, but government must provide the
strategic guidelines which might usefully inform the processes of overall
gender mainstreaming and overall planning and implementation.
Family friendly policies:
The only provision allowing for women's practical needs such as attending to a
sick child is by taking Family Responsibility leave provided for in the Basic
Conditions of Employment Act. Apart from this there are no family friendly
policies. The Family Responsibility leave on its own is wholly inadequate in
responding to the practical needs that women face and seems to have been a knee
jerk response to addressing issues such as these. In addition, management still
sees parenting as a woman's responsibility and responds with skepticism when
men request time to attend to parenting duties. A deep and far-reaching
transformation that promotes gender equality is necessary, and, in order for
this to be achieved, gender concerns must be mainstreamed into all operations.
Management responses to gender mainstreaming:
There is a lack of support for gender mainstreaming from senior management
based on a lack of understanding about "how" to do gender
mainstreaming as well as having other departmental priorities. The lack of
knowledge of gender mainstreaming coupled with conservative attitudes from
senior management towards gender equity has in many cases a trickle down
effect. There are no discussions about gender mainstreaming, no information
flowing from senior management to lower levels, no support for those trying to
drive gender mainstreaming, and no zero tolerance for sexual harassment. There
is therefore no need to think about gender issues, apart from meeting targets.
Recruitment and promotion practices:
In most departments recruitment takes place according to the Employment
Equity targets as informed by the Employment equity plans. Women feel
disadvantaged from the onset because they have practical needs that impact on
their ability to apply for certain jobs. While there are no formal restrictions
on the recruitment of women into senior positions, some subtle discrimination
might come into play such as obstacles or perceptions about the work that men
and women should be doing. For example, secretarial work is generally seen as
"women's work".
Gender Relations:
In general, relationships between men and women are described as
satisfactory and largely determined by position. However, many women felt
undermined, not respected or appreciated by male colleagues. On the other hand,
many women preferred having men as managers citing that women bosses are much
harder, less sympathetic and inflexible. What was most significant was that the
majority of women said that when women are in leadership "they do not
support other women; do not encourage mobility of other women and generally
behave more like men and even worse".
Sexual harassment:
Junior and senior staff displayed a lack of knowledge and understanding
about sexual harassment. Often cited was the continued fear of victimisation
from the perpetrator and colleagues who were usually other senior management
staff, as well as pressure from peers and sympathy displayed to the perpetrator
because 'he has a family'. The lack of confidentiality of those staff to whom
sexual harassment matters were being reported was of great concern, almost
replicating secondary victimisation. It was clear from the little evidence
received that sexual harassment is largely ignored in the Public Service.
Victims would rather not take action but choose the safer route of going to the
Employee Assistance Programmes (EAP) for counselling.
The role that the Office on the Status of Women (OSK? plays in supporting
and encouraging gender mainstreaming in Public Service:
It was apparent that the OSW does not have the institutional capacity to
deliver on their mandate. In addition, they are also expected to participate in
intergovernmental partnerships where they act as a support to Government,
stretching their limited resources and capacities. Between the CGE and OSW
tensions exist around mandate and functioning, resulting in the overall lack of
coordination and communication between the OSW, CGE, and DPSA with confusion raised
at all levels about roles and responsibilities. In order for the OSW to fulfill
its mandate effectively there should be a clear definition of what this
office's role in relation to other stakeholders in gender mainstreaming in the
Public Service.
effectively there should be a clear definition of what this office's role is in
relation to other stakeholders in gender mainstreaming in the Public Service.
RECOMMENDA TIONS
The following recommendations are put forward as interventions to implement
gender main streaming in departments:
Accelerate Empowerment of women:
A specific programme targeting women on accelerated learning for specific roles
and senior positions in departments should be introduced by SAMDI. In order to
qualify for such training and to ensure that the right persons are targeted,
competency testing should be applied to applicants.
Improve Gender representivity profile/Recruitment and promotions:
In order to change the profile of government especially at senior levels, it is
proposed that recruitment should specifically target women for senior positions
within a set period. A tracking system to follow the movement of women into
senior management should be developed to assess after a period of time whether
women are promoted and advanced to senior management.
Effective Gender structures and processes:
Gender should be incorporated into departmental strategic plans with clear
activity plans and indicators:
If departments are to mainstream gender, visible
mechanisms to co-ordinate and monitor the implementation of gender-related
plans of action need to be put into place.
Gender mainstreaming activities and programmes must be
included in budgeting processes.
Family friendly policies:
DPSA must put in place a national framework aimed at creating a more enabling
environment and recognise the importance of providing social benefits to
families. This framework should compel departments to provide for:
breastfeeding facilities;
flexi-time to accommodate child caring considerations;
and
Consideration to be given for child - care facilities.
Management responses to gender mainstreaming:
It should be compulsory for all senior managers to be capacitated to enhance
gender management skills and raise the general level of gender awareness.
Unless the organisational culture changes to ensure the empowerment of both
women and men through equal participation in decision-making on issues which
affect their lives, gender equality will not happen.
Improved Gender relations:
A more supportive environment must be created for sexual harassment to be
reported and addressed outside of normal grievance and disciplinary processes.
Those who are responsible for employee grievances should sign a confidentiality
clause that ensures that matters brought to their attention are dealt with in a
professional manner. There should be a zero-tolerance policy with regard to
sexual harassment for all in the Public Service.
Effective coordination and collaboration for gender mainstreaming in the
Public Service:
If the role and mandate of the OSW is to promote gender mainstreaming in the
Public Service and to monitor its implementation, then it is critical that the
OSW be provided with the skills and resources to implement their mandate, and
be held accountable. Part of the mandate of the OSW should be to enhance the
efficiency of the National Gender Machinery (NGM) at national and provincial
levels, and to develop effective collaborative strategies. A coordinating
structure of the NGM should be introduced and coordinated by the OSW but in
close partnership with other institutions in the NGM.
Institutional roles and accountabilities:
In order for gender mainstreaming to become a success the collective effort of
all role players will be required, to ensure that the policy framework is in
place and that there is compliance towards empowerment and capacitation, and
for mentoring and support. Specific roles to be played by institutions such as
the OSW as well as senior mangers and gender practitioners are therefore
proposed. Please refer to page 54 in the main body of the report for these
proposals. As the situation currently stands there is not a strong enough
commitment within the Public Service, beyond numerical targets, to actually
create the necessary enabling environment for gender mainstreaming and gender
equality. Organisational culture therefore needs to be revisited in this
respect. This requires the development of new skills, working methods and
tools, and the changing of attitudes.
CONCLUSION:
Women's access to political power and decision-making has improved since the
1994 elections. There is strong representation of women in government in the
national, provincial and local legislative branches as well as in some
departments. The challenge to institutions in the Public Service is to change
their culture in order to be more responsive to the needs of women civil servants.
Through this report, the PSC would like to believe that it has finally put to
rest the notion that gender mainstreaming is all about setting and achieving
numerical targets. There is much to be done to ensure the empowerment of women
in the workplace. Putting policies and process in place is but one strategy
that needs to be strengthened. Of more importance is to change attitudes and
thereby create the commitment to operationalise such policies and processes in
practice.