PMG3A Public HRM Guide 2024 PDF

COLLEGE OF BUSINESS AND ECONOMICS Department of Public Management and Governance School of Public Management, Governance and Public Policy 11. PMG 3B – UJ Internal Handbook Semester 2 (APK) Degree: BA Public Management and Governance (APK) Programme: Public Management and Governance 3B (APK) SEMESTER 2: PUBLIC HUMAN RESOURCE MANAGEMENT PROGRAMME CODE: PMG3B21 Second Semester 2024 AUTHORS: V Jarbandhan & C J Auriacombe i TABLE OF CONTENTS PURPOSE...................................................................................................... ix OUTCOMES AND ASSESSMENT CRITERIA.................................................... x CONCEPTUAL FRAMEWORK AND MENTAL MAP OF THE MODULE.............. xii UJ INTERNAL HANDBOOK..........................................................................xiii THEME 1 INTRODUCTION TO THE MANAGEMENT OF PEOPLE: INTERNATIONAL TRENDS 1.1 INTRODUCTION................................................................................... 1 1.2 INTERNATIONAL TRENDS AND IMPLICATIONS FOR HUMAN RESOURCE MANAGEMENT...................................................................................... 2 1.2.1 The Reinventing Government Movement..................................................3 1.2.2 Whole-of-Government Movement............................................................4 1.2.3 LEAN Government Movement..................................................................5 1.2.4 Developmental State Movement..............................................................5 1.2.5 Outcomes- and Results-based Governance Movement..............................6 1.2.6 Good Governance Movement...................................................................7 1.2.7 Digital-era and SMART Governance..........................................................9 1.2.8 The role of the Fourth Industrial Revolution (4IR) technologies in Human Resource Management........................................................................10 1.3 HRM: CONTEXTUAL AND CONCEPTUAL PERSPECTIVES................. 11 1.3.1 Main characteristics of HRM in the public sector..................................... 12 1.3.2 Managing human resources effectively................................................... 19 1.3.3 Key HRM functions and practices........................................................... 21 ii 1.3.4 Human resource management tasks...................................................... 22 1.3.5 Human resource management skills....................................................... 23 1.3.6 Human resource outcomes.................................................................... 23 1.4 PUBLIC SECTOR HUMAN RESOURCE MANAGEMENT: STATUTORY AND REGULATORY FRAMEWORK............................................................... 26 1.4.1 Statutory framework............................................................................. 26 1.4.2 Regulatory framework........................................................................... 29 1.5 THE HUMAN RESOURCE SYSTEM....................................................... 31 1.6 CONCLUSION..................................................................................... 37 FEEDBACK ON SELF-EVALUATION QUESTIONS......................................... 38 THEME 1: SUPPLEMENTARY READING....................................................... 39 THEME 2 HUMAN RESOURCE PLANNING AND JOB ANALYSIS 2.1 INTRODUCTION................................................................................. 41 2.2 STRATEGIC HUMAN RESOURCE PLANNING...................................... 42 2.2.1 Steps in strategic human resource planning........................................... 43 2.2.2 Workforce planning: Critical success factors........................................... 45 2.2.2.1 Comprehensive work analysis............................................................. 45 2.2.2.2 Thorough job analyses....................................................................... 47 2.2.2.3 Availability of required staff in the labour market................................. 52 2.2.2.4 Adequate financial resources and budget allocations............................ 53 2.3 CONCLUSION..................................................................................... 53 FEEDBACK ON SELF-ASSESSMENT QUESTIONS......................................... 54 iii THEME 2: SUPPLEMENTARY READING....................................................... 54 THEME 3 STAFF RECRUITMENT, SELECTION, PROBATION, ORIENTATION AND PLACEMENT 3.1 INTRODUCTION................................................................................. 56 3.2 STAFFING IN CONTEXT...................................................................... 57 3.3 RECRUITMENT................................................................................... 58 3.3.1 Labour market conditions...................................................................... 59 3.3.2 Government policy and legislation.......................................................... 59 3.3.3 Trade unions........................................................................................ 60 3.4 SELECTION......................................................................................... 61 3.4.1 Screen and short-list applications........................................................... 64 3.4.2 Contact candidates on the shortlist........................................................ 65 3.4.3 Preparing for and conducting interviews................................................. 66 3.4.4 Making the final decision....................................................................... 71 3.4.5 Making a job offer................................................................................ 73 3.4.6 Appointment........................................................................................ 75 3.5 PROBATION....................................................................................... 76 3.6 ORIENTATION AND INDUCTION....................................................... 77 3.6.1 Approaches to orientation..................................................................... 79 3.7 PLACEMENT........................................................................................ 80 3.8 GRIEVANCE AND DISCIPLINARY PROCEDURES............................... 81 3.8.1 Grievance procedures........................................................................... 81 3.8.2 Disciplinary procedures......................................................................... 83 3.9 CONCLUSION..................................................................................... 85 iv SELF-ASSESSMENT QUESTIONS................................................................. 85 FEEDBACK ON SELF-EVALUATION QUESTIONS......................................... 86 THEME 3: SUPPLEMENTARY READING....................................................... 87 THEME 4 TRAINING, CAPACITY BUILDING AND SKILLS DEVELOPMENT: MANAGERS’ ROLE IN DEVELOPING HUMAN RESOURCES THROUGH MENTORING AND COACHING 4.1 INTRODUCTION................................................................................. 88 4.2 PUBLIC SECTOR TRAINING FRAMEWORK......................................... 89 4.3 HR TRAINING IN CONTEXT............................................................... 91 4.3.1 Types of training.................................................................................. 95 4.3.2 Designing training programmes............................................................. 97 4.4 EMPLOYEE DEVELOPMENT................................................................. 99 4.5 MANAGERS’ ROLE IN DEVELOPING HUMAN RESOURCES THROUGH MENTORING AND COACHING.......................................................... 101 4.6 CONCLUSION................................................................................... 105 FEEDBACK ON SELF-ASSESSMENT QUESTIONS....................................... 106 THEME 4: SUPPLEMENTARY READING..................................................... 106 v THEME 5 MANAGING EMPLOYEE PERFORMANCE: PERFORMANCE MANAGEMENT SYSTEMS FOR STAFF APPRAISALS AND REWARDS 5.1 INTRODUCTION............................................................................... 108 5.2 EMPLOYEE PERFORMANCE.............................................................. 109 5.2.1 Determinants of performance.............................................................. 111 5.2.2 Human resource management and performance management link........ 114 5.2.3 Benefits of performance management.................................................. 116 5.3 PERFORMANCE MANAGEMENT SYSTEMS........................................ 118 5.3.1 Performance management system models........................................... 123 5.4 PERFORMANCE MANAGEMENT PROCESS........................................ 125 5.4.1 Setting institutional objectives............................................................. 125 5.4.2 Agreeing on the individual employee’s objectives.................................. 125 5.4.3 Assessing the performance of individual employees.............................. 126 5.4.4 Review performance........................................................................... 128 5.4.5 Performance counselling..................................................................... 129 5.4.6 Career counselling.............................................................................. 131 5.5 MANAGING EMPLOYEE PERFORMANCE PROBLEMS........................ 132 5.5.1 Problem analysis................................................................................. 135 5.5.2 Decision analysis................................................................................ 136 5.5.3 Potential problem analysis................................................................... 136 5.5.4 Role of training and development........................................................ 137 5.6 MEASURING PERFORMANCE: PERFORMANCE APPRAISALS........... 139 5.6.1 Determinants of performance appraisals.............................................. 140 5.6.2 The role of the supervisor................................................................... 141 5.7 REWARDING PERFORMANCE EXCELLENCE................................. 142 vi 5.8 HUMAN PERFORMANCE MANAGEMENT IN THE SOUTH AFRICAN PUBLIC SERVICE........................................................................................... 145 5.8.1 Public Service Act 103 of 1994................................................................. 145 5.8.2 The Labour Relations Act 66 of 1995........................................................ 146 5.8.3 The Constitution of the South African Republic, 1996................................ 146 5.8.4 Skills Development Act 97 of 1998........................................................... 146 5.8.5 White Paper on the Transformation of the Public Service, 1995.................. 147 5.8.6 White Paper on Transforming Public Service Delivery (Batho Pele), 1997.... 147 5.8.7 White Paper on Human Resource Management in the Public Service, 1997. 148 5.8.8 The White Paper on Public Service Training and Education, 1997............... 148 5.8.9 Public Service Regulation of 1999 and 2001.............................................. 149 5.8.10 The Baseline Implementation Guide for Performance Management, 1999... 149 5.8.11 Treasury Regulations, 2000..................................................................... 150 5.8.12 Public Service Coordinated Collective Bargaining Council Resolutions: Collective agreements............................................................................................ 150 5.8.13 Senior Management Handbook, 2003....................................................... 151 5.8.14 Employee Performance Management and Development System (EPMDS)... 151 5.8.15 Job evaluation: EQUATE.......................................................................... 151 5.8.16 Code of Remuneration (CORE)................................................................. 152 5.9 CONCLUSION................................................................................... 153 FEEDBACK ON SELF-EVALUATION QUESTIONS....................................... 154 THEME 5: SUPPLEMENTARY READING..................................................... 154 THEME 6 TALENT MANAGEMENT AND EMPLOYEE RETENTION THROUGH CAREER AND SUCCESSION PLANNING 6.1 INTRODUCTION............................................................................... 156 6.2 TALENT MANAGEMENT: AN ORIENTATION..................................... 157 6.2.1 Talent management as HRM function.......................................................... 160 vii 6.3 EMPLOYEE RETENTION.................................................................... 162 6.4 CAREER PATHING AND PLANNING................................................. 168 6.5 SUCCESSION PLANNING................................................................. 171 6.6 CONCLUSION................................................................................... 172 FEEDBACK ON SELF-EVALUATION QUESTIONS....................................... 172 THEME 6: SUPPLEMENTARY READING..................................................... 173 REFERENCES............................................................................................. 175 viii OVERVIEW OF THE MODULE The changing global governance landscape has revealed the significance of a competent, capable and motivated workforce. Good governance principles such as transparency, responsiveness and accountability can only be adhered to if public officials have the required attitude to serve the interest of citizens of the country. Consequently, the scholarly discourse regarding the management of people at work points to the fact that public human resource management (HRM) should focus on its strategic intent, given the fact that the success of the human component in any organisation would determine how successfully other resources (for example, money, buildings, information and people), would be applied or utilised. The discipline Public Administration/Public Management/Public Governance consists of various subdomains, including HRM. The HRM subdomain is not intended to train human resource managers per se but rather to orientate public managers in their responsibility regarding the management of public employees. The subdomain within the discipline has the purpose of generating knowledge, as well as making public sector institutions more effective and efficient, with the ultimate aim of improving service delivery. This internal handbook will focus on areas that consider the theoretical aspects of public HRM inclusive of issues such as strategic HRM, human resource (HR) planning and staffing, selection and recruitment, performance management, training and development and the retention of employees. PURPOSE ix The purpose of this module is to orientate students in the principles and theories of public HRM so that the human resources base can be effectively utilised to optimise service delivery objectives. OUTCOMES AND ASSESSMENT CRITERIA The module outcomes are aimed at acquiring knowledge and insight regarding public human resource management. Learners should comprehend and be able to - demonstrate an understanding of human resources management and planning in public management and administrative functions identify typical local and international trends and developments in human resources management in both commercial and public sector organisations in order to consider appropriate human resources management tools within public sector environment identify typical labour and employment legislation that affects human resources planning and management determine job functions and roles in relation to overall goals of government apply recruitment and selection procedures in provincial and national government analyse processes used in the public sector to improve present work performance and develop skills for future work activities identify and determine appropriate performance management systems, including procedures for handling grievances and disciplinary issues design and implement appropriate training, mentoring, coaching and overall development strategies to ensure ongoing skills and upliftment within public sector environment determine resources allocation of human resources in accordance with overall budget constraints x develop appropriate talent management programmes and reward systems for the purposes of succession planning design and implement appropriate appraisal management systems that are linked to service delivery objectives and clearly equate performance to reward and remuneration capacitate managers and leaders in their roles in managing and developing human resources. xi CONCEPTUAL FRAMEWORK AND MENTAL MAP OF THE MODULE HRM statutory and regulatory framework (Theme 1b) Role of managers in developing HR through mentoring and coaching (Theme 4b) The aspects listed on the left, namely the statutory and regulatory framework as well as the role of managers in developing HR through mentoring and coaching, are cross-cutting issues, meaning that they have a bearing on the content of all the themes. Refer to this mental map as you progress through the guide. xii UJ INTERNAL HANDBOOK You will notice that this UJ Internal Handbook (hereafter referred to as study guide) is all-inclusive and complete for this module. Additional study material for practical sessions will be provided to you in class, if necessary. How to use this study guide/UJ Internal Handbook: Briefly read through the entire study guide to obtain an overview of what the module entails and its content. Learn and study the content of the guide by means of the study guidance you will receive in class. Always keep the outcomes in mind, as they pertain to this module and every study theme. Review the outcomes upon completion of a study theme and make sure that you reached them all. Ask the lecturer if there is something you do not understand. He or she is there to assist and support you. xiii ICONS The following icons are utilised in this module to facilitate learning and further robust scientific engagement with the content. Theme outcomes Critical points to consider (take special cognisance) Try this! (Self-evaluation exercises) xiv THEME 1 INTRODUCTION TO THE MANAGEMENT OF PEOPLE: INTERNATIONAL TRENDS THEME OUTCOMES After studying this theme, you should be able to: Outline the major international trends and movements influencing HRM Reveal the potential implications of international trends on HRM in the public sector Define the concept ‘human resource management’ Confirm the main characteristics of HRM in the public sector Identify and assess key HRM functions and practices Briefly list the main outcomes of human resources Outline the statutory and regulatory framework for HRM in the South African public sector Analyse the public sector HRM system Evaluate the role of the Fourth Industrial Revolution (4IR) technologies in HRM 1.1 INTRODUCTION There is a direct correlation between the quality of human resource management (HRM) and economic prosperity in countries. The pool of talent, skills, knowledge, capacity and competencies available in the economy significantly influences the growth and prosperity trajectory of a country. In the arena of global 1 competitiveness, there is clearly a shift towards a knowledge-based economy. As a result, the human dimension of competitiveness has become a key success factor in modern economies, implying that the public sector must be staffed by qualified, competent, experienced and knowledgeable officials. The fact that South Africa's global competitiveness is extremely low (currently ranked 62 out of 64 countries, according to the 2022 World Competitiveness Yearbook), illustrates that HRM as management domain demands special attention. The title of this module suggests that it will provide an overview of public sector human resource management. Attention will be given to matters such as the international context and statutory and regulatory framework within which it takes place as well as the system, processes and functions pertaining to public sector human resource management. As such, this theme serves as overarching contextual background to the other themes. 1.2 INTERNATIONAL TRENDS AND IMPLICATIONS FOR HUMAN RESOURCE MANAGEMENT No country is an island and cannot be completely isolated from international trends and events. HRM in the South African Public Service is thus directly and indirectly subject to influences from global trends and accepted practices. Examples of this include trends such as – Remote working. a recent Gartner Analysis report (2022) shows that approximately 48% of employees globally are likely to continue working remotely post-pandemic. A shift towards employee-centric management practices to promote the general well-being and wellness of employees. This trends came about as issues such as the mental health, interpersonal relationships and the overall productivity and performance of employees are increasingly receiving attention. 2 Accommodating technological infrastructure and platforms, inclusive of Artificial Intelligence (AI) and cloud-based HR tools. This facilitates service delivery through information sharing and by utilising Big Data and virtual reality functionality. Adjustments to employee benefits and working conditions to promote progressive benefits such as family time, paternity leave and innovative work modalities. Improvements in career development and employee empowerment through continuous training and development opportunities. The globalisation of a talent pool, implying that people can be included in projects irrespective of their country, race or language. The inclusion of contract or part-time workers in organisational functions and projects. The use of people analytics to generate and utilise HRM-related statistics. The human-automation combination of processes and functions. These trends should be viewed at the backdrop of paradigmatic shifts in the way governments regard its role and perform its functions in society. For example, in various parts of the globe, movements aimed at public sector reform and transformation have driven endeavours to make governments more effective, efficient, responsive, transparent, and accountable. It is necessary to gain insight into some of the most influential movements, since it has a significant influence on the way in which the HRM function is operationalised in governance. Furthermore, comprehension of these international trends in governance is important since it reveals the unique contribution of HRM in making the South African Public Service more capable and efficient. 1.2.1 The Reinventing Government Movement Critique raised against the “overly bureaucratic, slow to respond, inefficient and unimaginative” public sector, led to the rise of the reinventing government movement (Denhardt and Denhardt 2000:550). The main intention of this 3 movement, popularised by Osborne and Gaebler’s publication in 1992, is to establish less-complicated and more-flexible service delivery modalities and thereby making governments “leaner and meaner”. The intention furthermore is to decentralise decision-making for public institutions to become more responsive and client- focused. The movement furthermore propagates innovative and creative engagements and partnerships with the private sector and community-based organisations for the delivery of public service and goods. It is thus essential that public officials obtain the necessary skills to engage multiple stakeholders in a networked form of governance. 1.2.2 Whole-of-Government Movement The early 1990s saw the rise of the whole-of-government movement as a response to the knowledge that single-purpose and single-focused approaches do not yield the desired results in government. Also termed “one-stop government”, “joined-up government”, “whole-of-government” refers to an approach away from isolated silo approaches towards multidimensional and integrated approaches to service delivery. The complex nature and vast scope of societal challenges such as chronic poverty, climate change, and pandemics call for a far more coordinated, integrated and collaborative responses. Such responses should align the involvement of various actors and sectors such as health, education, transport, and energy. The whole-of- government movement thus demand close cooperation between government, civil society, and business on all levels. This movement seemingly influenced the National Development Plan (2011:70) that proposes that “some of the coordination problems facing the complex nature of governance can be resolved through engagement between branches, chief directorates and directorates of departments as opposed to the current escalation of administrative and interdepartmental matters to clusters”. Also, Koma and Tshiyoyo (2015:36) argue that signs of the influence of this movement is visible in the “clustering in the South African Public Service by grouping together departments with similar, related or shared objectives, or departments that are physically 4 proximate to each other, to ensure a closer cooperation and coordination with the purpose of achieving an integrated system of governance. The clustering of government departments in South Africa is necessitated by the intergovernmental relations framework underpinned by the principle of cooperative governance as prescribed in the Constitution of the Republic of South Africa, 1996”. Koma and Tshiyoyo (2015:36) continue to argue that “the main objective is to ensure proper coordination of all government programmes in the national and provincial spheres of government”. The success implementation of the principles of this movement is dependent on inter-ministerial coordination as well as interoperability as far as information and communication technology (ICT) platforms, software and communication systems are concerned. 1.2.3 LEAN Government Movement According to Carpenter (2016:2), the LEAN Government Movement found its origins in the reinventing government movement during the late 1990s. It was (and still is) mainly based on the premise that government policy programmes should be made more effective and efficient by the modification of administrative systems and processes. LEAN initiatives are founded in the Japanese Kaizen philosophy of continuous improvement and quality assurance. LEAN aims to “streamline processes, reduce wait-times, and empower employees to identify innovative solutions to problems” (Davis 2010, in Carpenter 2016:3). LEAN reform initiatives may also focus on smaller-scale changes such as sector- specific or domain-specific aspects. These may include adjusting regulations in health service administration, improving the morale of public officials, or promoting a culture of innovation in service delivery. Ultimately, LEAN intends to make the public sector more efficient, less-bureaucratic, and more responsive to customer-needs. 1.2.4 Developmental State Movement 5 According to Edigheji (2009:60) and Mkandawire (2001:56), a developmental state aims to deploy both administrative and political policies, structures and resources to develop the economy. Any state that develops the capacity to initiate economic growth can thus be regarded as “developmental”. Turok (2010:499) holds that there are three generic characteristics of developmental states, namely: “They are capable of planning and making long-term strategic decisions beyond pragmatic responses to political pressures and problems as they emerge; They have the analytical capacity to separate the causes of problems from their symptoms and their consequences; and They have organisational capacity to focus on the underlying issues for more tangible outcomes”. South Africa also aims to become more developmental by protecting or cushioning the potential negative effects of global economic turmoil and financial crises. 1.2.5 Outcomes- and Results-based Governance Movement The increasing societal demand for value for money, leaner governance and government efficiency led to emergence of outcomes- and results-based governance. Advocates of the outcomes-based approach in governance maintain that government institutions should achieve certain effects and results based on the input received (i.e., tax-payers’ money). Ultimately, the outcome for society should be prosperity and the general well-being of all citizens. To facilitate better outcomes and longer-term results in government, emphasis is being placed on the utilisation of performance management systems (PMSs) and the adoption of monitoring and evaluation (M&E) mechanisms to oversee the quality, productivity, efficiency, effectiveness and economy of government operations (Matheson 2001:13). To further support this movement, Talbot (2001:268) argues that an outcomes- and results-based approach demand a comprehensive framework to: 6 “Utilise resources effectively and efficiently for the economical relationship between inputs and outputs; Institutionalise performance management (PM) in government to ensure that all officials know exactly what to do and how to do it; Monitor and evaluate the successes of government services and products (output) as well as the results (outcomes) thereof; and Ensure that collectively, PM and M&E leads to the overall goodness of governance”. From an HR perspective, a results-orientated public sector emphasises the need for improved accountability, effective consequence management, regular performance appraisals, and continuous training and development. It also demands that public officials are responsive to the needs of customers and that services are provided impartially, fairly, equitably and without bias (Van der Waldt 2004:40). 1.2.6 Good Governance Movement Closely related to the outcomes- and results-based orientation, the good governance movement emphasises new modalities of engagement between government and civil society. Hyden and Braton (1993:7) identify the following four criteria that can be used to gauge these modalities: “The degree of trust in government; The degree of responsiveness in the relationship between government and civil society; The government’s degree of accountability to its voters; and The nature of the authority that the government exercises over its society”. According to the World Bank Institute (2009), there are a number of core characteristics of good governance. In a service delivery context, these characteristics include the following: 7 “Rule of law: Good governance is dependent on fair legal frameworks that are enforced impartially. Citizens should receive equal treatment. Effective protection and security services are required for full protection of human rights, particularly those of minorities. Participation: Citizens should be encouraged to participate in decision-making as this would enable them to voice their problems openly, and government would be able to seek a way to address it. Participation should be supported through appropriate mechanisms such as regular elections, open media, transparency and the freedom of association and expression. Transparency: Citizens should be informed about how departments are run on issues related to how funds have been utilised, and who is in charge. It means that information should be freely available to the public at large, and that they should be able obtain clarity about government policies, rules, and regulations. This requires accessibility of information. Responsiveness: The public or civil service need to have an effective supply chain management system in place to enable prompt responses to societal needs. Payments for procurement, for example, should be processed within 30 days. Responsiveness also requires rapid decision-making and good relationships with the community to understand their needs, priorities and aspirations. Consensus-oriented: Good governance needs to facilitate different opinions voiced by a diverse community, and mediate potential conflict amongst different interest groups. It should strive to gain consensus about the most appropriate priorities, strategies and interventions to address societal needs. Equity and inclusiveness: A key responsibility of government is to ensure that economic growth and wealth creation of the country is possible for all citizens. Everybody should have equal access to services and the opportunity to pursue their own wellbeing. Effectiveness and efficiency: Effectiveness refers to the way government achieves its policy objectives and efficiency generally refers to the ability of government to do more with less. 8 Sustainability: Good local governance must ensure the sustainable use of natural resources and the protection of the environment. In other words, natural resources should be utilised effectively and efficiently for the benefit of society. Accountability: Accountability is viewed as the most important requirement of good governance, which is applicable in government departments as well as private sector and civil society at large. For example, heads of department are accountable for the development of staff, the implementation of policies, and to ensure that departmental goals are achieved within specified timeframes and budgets”. Contemplate the potential implications of these principles on human resources. Summarise and substantiate your observations. 1.2.7 Digital-era and SMART Governance As technology advances and society demand constant interaction with government (e.g., services on a 24/7-basis), government institutions have to modernise their operations. More flexible digital infrastructure should thus be created to ensure that service delivery becomes more accessible and responsive to the needs of society. According to Islam and Ahmed (2007:29), digital governance represents “another new paradigm shift in public administration by dramatically revolutionising the structure, processes and operations of government which are almost ubiquitously adopted or tried to be adopted by the governments of both developed and developing countries”. SMART technologies and Big Data are driving fundamental changes in government. Digital or e-Governance generally intends to make government officials more responsive and accessible for citizens to interact with. 9 This concludes a brief overview of the some of the most significant movements as drivers for public sector human resource management. 1.2.8 The role of the Fourth Industrial Revolution (4IR) technologies in Human Resource Management Kayembe and Nel (2019:80), defines the concept ‘Industrial Revolution’ as a development, change, or transformation that has taken place in the past. Thus, the process includes the use of machines, telecommunications, electricity, as well as new developments in the form of technology advancements. Accordingly, Majam and Jarbandhan (2022:5) believe that the 4IR has changed the world as we know it, because, it has had an impact on the way we communicate, live and work. It has changed the relationship between the government, the private sector, labour organisations and communities, and has forced us to adapt to the changing technological environment. Undeniably, strengthening the relationships between the above stakeholders depends on the positive and proactive management of the changing technological environment. Nalubega and Uwizeyimana (2019:1) agree that the innovations and technological advancements of the 4IR are uprooting and changing how societies do business, carry out their daily work and interact with other stakeholders. Public HRM can significantly benefit from the use of artificial intelligence. For example, through big data, it is possible to achieve outcomes such as rational decision-making, analytic metrics for managing turnover rates, human capital risks, training efficiencies, talent and recruitment to determine suitability of candidates to a specific job (Majam and Jarbandhan 2022:5). Ogedengbe et al. (2023:310) point out that “as the world is struggling with ageing workforce, there is need for human resource management in the global south to adopt key technologies of 4IR to ensure efficiency, increase productivity and retention of her workforce”. According to Mkhize and Parumasur (2022:237) “the 4IR presents transformations; if managed properly, 4IR has the potential to lead organisations to a new phase of efficient work, fulfilling careers, and improved quality of life for all. However, if not 10 managed properly, it poses a risk of broadening skills gaps, increasing inequality, and enlarging division”. Reflect on the prevalence of these global movements highlighted above with particular reference to the implications thereof for HRM. Evaluate the significance of the role played by 4IR in HRM. 1.3 HRM: CONTEXTUAL AND CONCEPTUAL PERSPECTIVES Erasmus et al. (2005:4) and Van der Westhuizen (2016:4) regard public human resource management as a “field of study”, a “theory” and a “practice”. The field of study, theory and practice can all be studied and is part of the subdiscipline of Public Human Resource Management. The practice is the practical application of the management of human resources within the institution. The following associated concepts demand clarification: The personnel function: a group of activities for the provision, utilisation and maintenance of adequate personnel for effective service delivery. It includes functions such as recruitment, selection, training, placement, evaluation, and remuneration. Personnel management: the responsibility that supervisors have towards the management of subordinates/public service employees so that they are effectively utilised and will contribute towards the accomplishment of the institution’s constitutional mandate and strategic objectives. Human resource management: a process much broader than the personnel function involving strategic HR planning and the close interface between organisational performance and the way in which employees are managed. It includes responsibilities that must be assumed by all senior, middle and 11 junior managers to manage issues such as organisational culture, public service ethos and values, the establishment of a conducive climate for people-centric performance, as well as the establishment of policies, structures, systems and processes to manage a diverse set of human resource functions within the Public Service. According to Van der Waldt (2023:9-10), the activity of public administration is the “work done by officials (human resources) within the total spectrum of government institutions” to enable them to achieve their objectives. From this remark the deduction could be made that public human resource management as activity refers to the work done by officials in the human resource divisions of institutions. The work done by the human resource directorates, sections or divisions include aspects such as HR planning, recruitment, selection, placement, disciplinary and grievance procedures, career planning, training and development, and PM. In other words, it includes all aspects related to the successful management of people in the workplace as well as the dynamics that flow from it. Read the above-mentioned views about public human resources and provide your own definition for public human resources deduced from the discussion. 1.3.1 Main characteristics of HRM in the public sector The public sector includes the public service, parastatals, public entities and agencies, the South African Police Service, National Intelligence Agency, the National Defence Force and municipalities. The public sector is thus much broader than the public service, which only comprises of national and provincial departments. Public servants or public officials are appointed in the terms of the Public Service Act of 12 1994, as amended by the Public Administration Management Act 11 of 2014 and serve in the South African Public Service. Scholars generally concur that HRM in the public sector comprises certain unique characteristics. These characteristics include: it has a management perspective, i.e., implementation of HR-related policies and functions; it takes place in the public sector, and therefore has a ‘public’ dimension; it makes use of certain resources to manage the HR function optimally (e.g., financial, physical, human, and information); it takes the form of responsibility assigned to certain individuals and groups within public sector institutions to achieve certain objectives (to meet needs, demands of clients); and it forms an integrated process that mainly comprises four activities, namely: functions and practices; management tasks; the exercise of additional management skills; and outcomes. Differentiate between the concepts ‘public sector’ and the ‘public service’ and clarify the typical characteristics of public HRM. A key role-player in facilitating sound human resource practices in the public sector is the Public Service Commission (PSC). One of its core objectives is to support the notion of improving the efficiency, productivity and effectiveness of all its employees (PSC 2018:3). Recent reports from the PSC reveal, however, that there is a general state of inefficiency, low morale and low commitment within the South African Public Service. The root causes of these problems can be traced to inefficiencies in HRM sections within government departments. This situation illustrates the need for sound HRM practices. 13 In May 2010, the National Planning Commission (NPC) was mandated to develop the National Development Plan (NDP), which sets objectives and targets to be achieved by the year 2030. In Chapter 13, the NDP outlines required institutional reforms in the Public Service to make public servants more capable of performing its functions within the context of good governance. In this regard, the Chapter emphasises aspects such as strategic leadership, effective guidelines, skilled supervisors and employees, flawless lines of responsibility, appropriate updated information technology and the constant implementation thereof (NPC 2011:410). The NDP further recommends that the Public Service should be professionalised by upgrading the skills levels of employees and that more effective coordination of projects should take place. The NDP (2011:410-426) requires that HRM practices, such as career progression and talent management, recruitment and selection, PM, employee engagement and the disciplinary matters of the Public Service employees be managed more effectively and professionally than is the case currently. The NDP also highlights the prominence of a skills development programme and a graduate recruitment programme to be put in place in order to attract highly qualified and skilled employees to the Public Service (RSA 2011:423-424). The NDP further recommends that the Public Service should develop its human resource skills from among its own ranks by implementing programmes of career pathing, PM and talent management and mentoring. In this regard, the NDP outlines strategic outcome areas for the Public Service emphasising skills development and talent management. These outcome areas include the following: “establish an efficient, effective and development-orientated public service and employees that are empowered, take responsibility, fair and inclusive in its service delivery philosophy to citizens; develop the skills and capabilities of Public Service employees; to establish an inclusive growth and career path for public officials, which includes talent management; and secure a result-driven efficient PMS” (NPC 2011:416). 14 These strategic outcomes should be translated into specific HR-related policies and programmes at strategic, tactical and operational levels in the Public Service. Since senior public officials are responsible for the operationalisation of these outcomes, effective and efficient HRM functions within the Public Service are essential. Human resources are the most important resource of public sector resource management. If institutions have no HRM component (the human beings employed in the institution), goals cannot be achieved. Even if institutions have an HR component, they can still fail to achieve their goals efficiently. Achieving goals efficiently require that the most appropriate activities – decisions and actions – are performed the first time in the best possible way. How should the efficient, effective and economic achievement of institutional goals in the context of HRM be achieved? It is only possible with the support of a stable, loyal and professional work force implying the following: That the most suitable persons are appointed in the jobs that suit their capabilities the best and perform to the employers’ expectations. Effective job interviews with the aim to select the most suitable persons for the specific jobs. Employees that perform well and are competent in what they do. The retention of the work force. An encouraging and safe working environment. Reasonable and fair labour practices including reasonable salaries and an awards policy rewarding exceptional performance. Irrespective of how well the above-mentioned aspects are managed, stability and the efficient achievement of institutional goals are only possible if labour practices are fair and discriminatory actions prevented in the workplace. 15 HRM should not be regarded as the sole responsibility of the HR department, directorate, section or unit. HRM is part and parcel of all public service functions and operations. It is thus important to integrate HRM with other institutional processes and systems. In this regard, the South African Government instituted the Integrated Human Resource Management System (IHRMS) in 2000, as a framework to align strategic HRM processes and system within government departments. The IHRMS emphasises the fact that HRM is the responsibility of all managers. According to IHRMS human resource functions should be integrated with the following: The business strategy of government departments to ensure that the correct quality and quantity of staff is available to realise strategic objectives; The systems and processes for service delivery improvement, implying that employees need to be multi-skilled; The operational effectiveness of government functions to identify areas of employee weakness that may impact negatively on service delivery; and Continuous performance improvement to align employee performance with organisational performance and evaluation systems. The IHRMS is underpinned by a comprehensive statutory and regulatory framework. The Constitution of the Republic of South Africa, 1996. For example, it outlines the directive of the Public Service in terms of providing public services to all its citizens. The White Paper on a New Employment Policy for the South African Public Service, 1997, elaborates on this directive and has as its vision that HRM practices in the Public Service should be guided by diversity, knowledgeable and well-managed employees, talented and dedicated to delivering a professional and committed public service to the people of South Africa. This vision further accentuates the fact that HRM in the Public Service should become a “model of excellence” in which the management of human resources is applied in a proficient and effective manner. To achieve this, the White Paper further highlights the importance of the growth of a devoted, industrious and people-orientated public service, whose human potential is maximised and fully developed. 16 It is important that public officials are well equipped to assume their daily tasks and to advance in their careers. In doing so, government departments, through their HR functions, must ensure that the correct people are identified, acquired, upskilled and their talent developed so that they will be in the correct position, at the correct time and in the correct place (Finlayson 2002:7). This implies a comprehensive perspective with an overarching HRM framework, inclusive of management support, career planning, talent management, financial and physical assistance and appropriate organisational structures (Armstrong 2012). The HRM function (i.e., HR directorate) is responsible for securing a steady flow of talented, committed, and productive employees in order to secure a team that is focused on their area of specialisation. Typical HRM functions and responsibilities include: workforce planning; recruitment and selection; training and development; career progression; staff retention; employee engagement; coaching and mentoring; performance appraisals; employee wellness; and rewards and employee compensation. This list is not complete and should be supplemented with additional functions and responsibilities. It just illustrates the comprehensive nature of HRM. It is important at this stage to clarify the meaning of a public sector employee. An employee is any individual appointed in the public service in 17 terms of section 8(1)(c) of the Public Service Act 103 of 1994, i.e., a person holding a post in a fixed or temporarily position under contract in a full time (permanent) or part-time capacity. Employees are usually appointed in fixed positions, which have been created for the normal and regular requirements of a department. Employees are also referred to as public ‘servants’ or public ‘officials’. The purpose of all public sector institutions is to provide services that satisfy the end-users of those services. The implication is that the most suitable people must be obtained and retained to ensure that public sector institutions are able to deliver satisfactory service to the consumers/users of services. This is the responsibility of public sector human resource managers. In general terms, HRM is about the management of people as human beings and a variety of actions or functions. Ryazanova, McNamara and Aguinis (2017:215) state that HRM functions “include a variety of activities, and key among them is deciding what staffing needs you have … to fill these needs, recruiting and training the best employees, ensuring that they are high performers, dealing with performance issues, and ensuring your management practices conform to various regulations”. To explain the meaning of public sector HRM, Erasmus et al. (2005:5) suggest that “a good starting point would be to concentrate on certain characteristics inherent to the concept of public sector HRM. according to the authors, HRM: Has a management perspective; Focuses on the public sector (the public dimension of public sector human resource management); Utilises specific resources to guide the human resource function optimally; Is a tripartite division of responsibilities assigned to managers responsible for executive functions, line function employees, and human resource specialists to achieve specific institutional objectives; Is guided by particular professional ethical guidelines designed to ensure professional behaviour; and 18 Is an integrated process mainly comprising four activities that are connected with each other, namely, key functions and practices, management tasks, additional management skills and specific outcomes which have long-term consequences. The above aspects explain how public sector human resource management (PSHRM) is performed within the boundaries of the legislative and policy framework determined by legislation, other policy documents and white papers, as had been alluded to. Human resources are the human component of all organisations, for example, the employees of a government department, a municipality or a business concern. Likert (in Marx 1986:18-19) writes about HRM that dealing with the human component “is the central and most important task” of HRM “because all else depends on how well” human resources are managed. 1.3.2 Managing human resources effectively To manage human resources effectively implies capacitating employees. According to Amos, Ristow and Ristow (2004:5), all officials in managerial positions must be able to manage people with the support of the HRM and personnel systems. The ways in which “effective management of people” is interpreted and applied in government settings differ based on issues such as the culture and ethos of the public administration, the managerial conventions and styles in public institutions, the nature of statutory and regulatory prescripts regarding HRM, as well as the composition and profile of the workforce. Since the early origins of HRM as study domain, various theories and approaches to people management have emerged. Similar to the paradigmatic development of Public Management and Governance as a discipline, HRM is also characterised by dominant theories and approaches. These theories and approaches cannot be viewed in isolation from the dominant paradigms in the Social Sciences such as behaviouralism, functionalism, and postmodernism. It 19 should also be noted that HRM theories reflect the multidimensional nature of the subdomain with a myriad of micro-theories pertaining to aspects of HRM, such as motivational theories, leadership theories, organisational theories, human interaction theories, performance-related theories and many others. These macro- and micro- theories ultimately determine the nature of HRM policies, development strategies, and operational procedures related to public employees. They further explain and inform management practises and how it may influence employee performance and behaviour in favourable or negative ways. In the 1970s, it was realised that “managing people as resources rather than as factors of production, or as human beings who act solely on the basis of emotions, could result in real benefits to both the organisation and the employee” (Carrel et al. 1997:10). The following are principles serving as a basis for effective HRM: Consider employees as investments; The needs of both institutions and employees must be satisfied by policies, programmes and practices; An encouraging working environment in which employees can develop and utilise their skills; and Human resource programmes and practices should aim to balance the needs of employees and to achieve the goals of institution. The principles require that human resources be developed and capacitated to benefit their institutions and themselves to reach their respective goals. Aspects such as a working environment conducive to effective performance, HR programmes and practices also need investigation to determine how to change them to satisfy the needs of both the institutions and employees. The delivery of more effective and efficient services depends on how well public institutions perform. Obviously, poor employee performance results in poor service delivery. To improve performance, public service employees “must have a clear 20 understanding of the way in which their efforts contribute, in an integrated manner, towards the desired service-delivery levels” (Erasmus et al. 2005:12). Public sector HRM as an integrated process comprises different “activities that have numerous connections between them” (Erasmus et al. 2005:12). These activities can be divided as follows: key public sector HRM functions and practices; HRM tasks; HRM skills; and HR outcomes. 1.3.3 Key HRM functions and practices Erasmus et al. (2005:12-14) identify the following: Strategising and planning for public human resources. This is to establish the objectives of the institution and to formulate, integrate and implement ways to achieve the objectives. It also implies strategic planning with regard to future institutional human resources needs. Obtaining suitable human resources. This activity is about ensuring that institutions comply with the requirements of equal employment opportunities and affirmative action policies. Another important aspect of this activity is to ensure that qualified job applicants are recruited and that the selection and the most suitable applicants for the specific jobs are appointed. Utilising and developing public sector employees. The appraisal of personnel, career management, learning, training and development are focuses of the utilisation and development of public sector employees. Remunerating and caring for public sector employees. To satisfy this need, the focus is on the remuneration structures, providing incentives and counselling of employees. 21 Public sector employee relations. Labour relations, dismissals, and redeployment are important matters that must be dealt with by employers (Erasmus et al. 2005:12). What are the main characteristics of public sector HRM? Furthermore, explain what a stable, loyal and professional work force imply. 1.3.4 Human resource management tasks The tasks that management have to execute are the generic management functions. With all resources necessary and available to perform the assigned functions and to execute tasks. Without human resources no institution will be able to produce products or deliver services. Policies: To ensure the availability of suitable personnel, management is responsible for policies in terms of which HR planning, recruitment, selection and placement must take place. An example of a statute is the Public Service Act, 1994 (Proclamation 103 of 1994). Various other acts also apply as indicated earlier. Other human resource policy documents are regulations, white papers and codes of conduct. Organising: It is important that institutions be organised in a structure suitable to execute the tasks they are responsible for and achieve their objectives successfully. To manage human resources successfully, the provisioning and utilisation of employees must also take place in an organised manner. Financing: For institutions to operate and achieve what they are created for, money (a resource) must be available to pay for all the actions that have to be carried out to obtain, train and retain personnel. In this regard, Treasury plays a 22 significant role, as it has to budget for all expenditure related to human resources in the public sector. Controlling: The provisioning and utilisation of personnel must be controlled to ensure that malpractices like nepotism and discrimination do not take place. It is important that the control function be carried out throughout the process. This should start with a policy that should cover all aspects of HRM. Ultimately, exercising control ensures that the goals of the institution are attained by optimising its human resource base. 1.3.5 Human resource management skills Cheminais, Bayat and Van der Waldt (1998:15) differentiate between conceptual, human and technical HRM skills. Conceptual skills refer to mental abilities, for example, to plan and to make decisions. Human skills are, for example, the skills that people (managers) have to communicate successfully with others, or to motivate people. The ability to provide training to employees on, for example, interpreting human resource regulations, and to guide employees on matters regarding human resources, refer to a human resource manager’s technical skill. 1.3.6 Human resource outcomes The ultimate outcome of HRM should be to achieve institutional objectives and the efficient justification of the purposes for which they exist. Achieving objectives and the justification of purposes equal client satisfaction, implying that employees and institutions perform well. Erasmus et al. (2005:16), state that the outcomes of HRM can be viewed as a means of measurement – measuring institutional performance. Quality HRM means that the following outcomes will be reached: Fairness; Equality; Accessibility; 23 Transparency; Accountability; and Professionalism. HRM outcomes such as these listed above should be viewed from two sides. The first is that HRM must be of such a nature that the employees of institutions are treated in ways that reflect quality HRM. Viewed from another angle, the receivers of services must experience service delivery as gratifying. Briefly explain the following: Human resource management tasks Human resource management skills Human resource outcomes Although it may appear as though the discussions above departmentalise public sector HRM, it is an integrated process of diverse but interdependent activities, as illustrated in Figure 1.1. 24 Figure 1.1: PSHRM as an integrated activity Source: (Hoskin 2010 in Van der Westhuizen et al. 2011:13) 25 Consider Figure 1.1 above and by using a practical HRM example explain public sector HRM as an integrated activity. 1.4 PUBLIC SECTOR HUMAN RESOURCE MANAGEMENT: STATUTORY AND REGULATORY FRAMEWORK Public sector HRM practices and functions in South Africa are guided and directed by various pieces of national legislation (i.e., Acts of Parliament constituting the statutory framework) and other policy documents and official guidelines (i.e., regulatory framework). 1.4.1 Statutory framework As far as the statutory framework (i.e., national legislation) is concerned, the following serve as key legal obligations: The Constitution of the Republic of South Africa, 1996 serves as highest authority regarding HRM matters. Section 23(1-4) of the Constitution, 1996 stipulates that “…everyone has the right to fair labour practices; right to form and join a trade union”. The Constitution, 1996 also promotes greater democracy in the workplace by giving staff more say in decision-making. It also promotes sound labour relations to reach institutional goals and objectives. Section 23 outlines the labour rights of employees, inclusive of assembly, demonstration, picket and petition, freedom of association, political rights, and just administrative action. Occupational Health and Safety Act 85 of 1993 is aimed at outlining the conditions that all employers and managing staff must enforce in order to protect the well-being of workers and employees. 26 The Public Service Act 103 of 1994 can be regarded as the most comprehensive piece of legislation regarding public employment. It consists of 8 chapters and 3 schedules, namely:  Chapter I: Context & Conceptualisation  Chapter II: Public Service Commission  Chapter III: Organisation and Staff  Chapter IV: Appointment, Promotion & Transfer  Chapter V: Termination of Service  Chapter VI: Inefficiency and Misconduct  Chapter VII: Obligations, Rights and Privileges  Chapter VIII: Miscellaneous Labour Relations Act 66 of 1995. This Act governs relationships between employer and employees. Its main purpose is to advance economic development, social justice, labour peace and democratisation of the workplace. It further aims to ensure fair labour practices, the formation and joining of employer’s organisations, collective bargaining, strikes and lock outs, the establishment of the Commission for Conciliation, Mediation and Arbitration (CCMA) to resolve workplace disputes as well as the establishment of the Labour Court and Labour Appeal Court. Basic Conditions of Employment Act 75 of 1997. The purpose of the Act is to enhance economic development and social justice by the establishment and enforcement of basic conditions of employment. It excludes the South African Police Service, the National Defence Force, National Intelligence Agency and the Secret Service. It regulates:  working time;  leave;  remuneration;  termination of employment;  prohibition of child and forced labour; 27  employment conditions; and  monitoring, enforcement and legal proceedings. Employment Equity Act 55 of 1998. The main purpose of this Act is to achieve equality in the workplace by promoting equal opportunity and fair treatment through the elimination of unfair discrimination. Skills Development Act 97 of 1998. The purpose of the Act is to:  develop the skills of the SA workforce;  improve and promote the quality of life, prospects of work and labour mobility;  promote the productivity and competitiveness of employers;  promote self-employment;  increase the investment in education and training;  encourage the use of the workplace as an active learning environment; and  provide opportunities for new entrants to gain work experience. Skills Development Levies Act 9 of 1999 provides for the imposition of a skills development levy and for matters connected therewith. The Skills Development Levy is a levy imposed to encourage learning and development in South Africa and is determined by an employer's salary bill. The funds are to be used to develop and improve skills of employees. Promotion of Administrative Justice Act 3 of 2000. This Act intends to promote procedurally fair administrative actions, giving people the right to request reasons for administrative actions and decisions and to have such actions reviewed in court. Administrative action is defined as "any decision taken by an organ of state when exercising a power in terms of the Constitution or other legislation”. This Act gives effect to Section 33 of the Constitution, which stipulates that “(1) Everyone has the right to administrative action that is lawful, reasonable and procedurally fair; and (2) 28 everyone whose rights have been adversely affected by administrative action has the right to be given written reasons”. Promotion of Access to Information Act 2 of 2000. This Act gives effect to the constitutional right of access to any information held by the state and any information that is held by another. Protection of Personal Information Act 4 of 2013. The Act provides for the rights of persons regarding unsolicited electronic communications and automated decision making and to regulate the flow of personal information across the borders of the country. In essence, the Act aims to protect people from harm by protecting their personal information, to stop their money being stolen, to stop their identity being stolen, and generally to protect their privacy. Public Service Management Act 11 of 2014. This Act intends to promote the basic values and principles governing the public administration as outlined in Section 195(1) of the Constitution. It also frames the transfer and secondment of employees in the public administration and regulates capacity development and training. A major contribution of the Act is the establishment of the National School of Government and the use of information and communication technologies in the public administration. A further major impact of the Act is the establishment of the Office of Standards and Compliance to ensure compliance with minimum public administration norms and standards. 1.4.2 Regulatory framework As far as the regulatory framework is concerned, a number of white papers, official policy guidelines, and other directives guide HRM practices and functions. These include the following: 29 The White Paper on the Transformation of the Public Service, 1995 The White Paper on Human Resource Management in the Public Service, 1997, which outlines the vision statement for HRM, namely: “Human resource management in the Public Service will result in diverse competent and well- managed workforce; capable of and committed to delivering high-quality services to the people of South Africa”. Its mission statement reads as follows: “HR management in the Public Service should become a model of excellence, in which service to society stems from individual commitment instead of compulsion. The management of people should be regarded as a significant task for those who have been charged with the responsibility and should be conducted in a professional manner”. White Paper on Transforming Public Service Delivery (Batho Pele) Government Gazette 18340 of 1 October 1997. The Green Paper on a Conceptual Framework for Affirmative Action and the Management of Diversity in the Public Service, 1997. White Paper on a New Employment Policy for the Public Service September 1997 The White Paper on Affirmative Action in the Public Service, 1998. Public Service Management Framework (July 1999). Charter for the Public Service in Africa (5 February 2001). Code of Remuneration (CORE). EQUATE Job Evaluation System. The Public Service Regulations, 2001. It comprehensively details policies and procedures related to human resources. It makes provision for total spectrum of HR activities, including:  Delegations;  planning, work organisation;  job evaluation, compensation;  working conditions;  appointment, promotions and termination;  performance management and development;  training and education; and 30  labour relations. The Department of Public Service and Administration’s Senior Management Service (SMS) Handbook Directives of the Public Service Commission A detailed exposition of the main stipulations of these acts and regulatory guidelines falls outside the scope of this study guide. However, you are strongly advised to download these documents and to summarise the main purpose of each – usually obtainable from the preamble of legislation and white papers. 1.5 THE HUMAN RESOURCE SYSTEM The Department of Labour, the Department of Public Service and Administration, the Public Service Commission, national departments and provincial administrations are the major role players in public sector HRM in South Africa (Erasmus et al. 2005:35). These role players and the statutory framework within which HRM takes place are the elements that form the human resource system of HRM. The Department of Labour, the Department of Public Service and Administration, the Public Service Commission, and national departments and provincial administrations have particular responsibilities, while the statutory framework provides directives and guidelines in terms of which PSHRM must be conducted. The Department of Labour acts as the custodian of HRM matters and must ensure that the policy and legal framework of HRM are maintained and aspire to effect the following: sound labour relations; improved performance; 31 elimination of inequality and discrimination in the workplace; and skills development. It is the mandate of the Department of Public Service and Administration (DPSA) to guide HR practices in the public service and has, inter alia the responsibility to: Ensure that HR policies are supported by key stakeholders; Obtain the support of organised labour at national sphere; and Ensure that HRM policies are aligned with other transformation initiatives (Erasmus et al. 2005:35) Consult the South Africa Yearbook and compile a brief synopsis of the main mandate and responsibilities of these two national departments. The Public Service Commission, created in terms of Section 196 of the Constitution, 1996 and established in terms of the Public Service Commission Act 46 of 1997, has the authority to execute a range of powers and functions such as the following: Promoting public administration values and principles set out in Section 195 of the Constitution; Investigating, monitoring and evaluating personnel practices in the public service; and Providing direction aimed at ensuring that personnel procedures relating to recruitment, transfers, promotions and dismissals comply with the values and principles set out in Section 195 of the Constitution. 32 The national departments and provincial administrations are the providers of services to the society. To achieve this, they have to obtain the best possible personnel corps. In terms of the White Paper on Human Resource Management in the Public Service, 1997, these departments and administrations are responsible for the execution of various tasks which include tasks such as the following: adopting new approaches to human resource management; creating or developing infrastructure and systems to support new HRM practices; ensuring that line managers have the required HRM skills; and acquiring and utilising human resources within national legal and policy frameworks in order to render public services to society. What is your view about the statement that the public sector HRM framework is determined by various acts and policy documents? Provide a general definition for the concept of a system after you have studied the section above. 33 FOCUS BOX 1.1 Personnel Administration and the Call for Reform “Personnel administration lies at the very core of administrative management. Its thrust should be positive, not negative and protective, not specialized and procedural as had been the emphasis of the predecessor civil service movements…It should operate primarily as a service to managers up and down the line, not as a watchdog and controller over management…Personnel operations…should be decentralized and delegated to bring them into more immediate relationship with the middle and lower managers whom they [serve]. ” This view of human resource management comes not from the reports of the National Performance Review or the Winter Commission on State and Local Government but rather from Frederick Mosher’s synthesis (1982:82) of the 1937 Brownlow Committee report. In the seven decades that have elapsed since the publication of the Brownlow report, many of its key tenets for reform remain viable and are discussed and debated in academic journals, classrooms, contemporary reform commissions, and city halls and country courthouses across the United States. These consistent and recurring criticisms focus on the traditional model of personnel administration as being more concerned with rules and procedures than with the effective functioning and management of public organisations”. “In a similar vein, Perry and Mesch (1997:21) explicated a new vision and role for public human resource management, stating that “advocates of strategic human resource management…contend that the human resource function can contribute more effectively to mission accomplishment and achievement of organisational goals”. Perry (1993:59-60) calls for a redefinition of the relationship between the Office of Personnel Management (OPM) and federal agencies and among the managers inhabiting both. He states that “one idea associated with strategic human resource management is that the style of human resource management is consistent with the strategy of the organisation and that the human resource practices are adjusted, accepted, and used by line managers and employees as part of their everyday work”. He explains that the strategic delivery of human resource services helps narrow the gap between the competing needs of line managers and human resource managers because its central focus is on the optimal functioning of the organisation, not on two distinct sets of values or priorities. Delivery of Human Resource Management Services: Five Models The purpose here is to explicate four distinct established models and one emerging model for the delivery of human resource management services in public organisations. The intent is to provide an organizing focus for this handbook and also to foster discussion of service delivery models relevant to organisations in the twenty-first century. Although no one model can address the particular needs and concerns of every public organisation, this discussion is intended as a step towards generating introspection in the field, with the ultimate goal of creating and maintaining a viable and relevant home for practising human resource management in public organisations. 34 Traditional Model The traditional model of public human resource management focuses on a central personnel organisation dictating rules and procedures, ostensibly to achieve fairness and equity in public sector organisations. Little thought is given to line functions of the organisation, whether they are paving roads, providing recreational services to citizens, delivering social services to clients, or fostering diplomatic relations with a foreign country. Of course, such a focus was not the original intent. As Van Riper (1958) points out in his study of the U.S. Civil Services, central personnel functions were aimed at professionalizing the workforce and proving equity and fairness in distributing a public good: government jobs. Beginning in the 1800s, the federal government and major US cities began to centralize personnel functions such as hiring, testing, recruiting, and classification. Influenced by the progressive reform movement and theories of scientific management, personnel sought the one best way to hire, classify, appraise, reward, and promote public employees. Furthermore, the Intergovernmental Personnel Act of 1970 and previous federal legislation encouraged local governments to create civil service systems with the promise of ensuing federal revenue sharing dollars. Reform Model The reform model endeavours to decentralize personnel authority and decision making to line managers. Almost a mirror image of the traditional model, the reform model values dispersal of real personnel authority to various organisational units, allowing them to make crucial decisions concerning employee recruitment, selection, classification, and remuneration. In many instances, line managers having little formal knowledge of or training in modern human resource management practices and techniques may make these decisions. The result may be responsive to the immediate needs of the organisation; however, with no central organizing focus, problems of equity and fairness within and among organisational units may appear. For example, effective and consistent management of equal employment opportunity goals may be hampered, pay disparities may become prevalent, and employee assessment inequities may arise. Strategic Model The strategic model suggests merging the two archetypal models just discussed. As Perry (1993) describes it in his discussion of a strategically oriented federal civil service system: the strategic model balances the competing demands of the traditional and reform models, recognizing the benefits of some centralizing efforts but also realizing that human resource management takes place throughout an organisation and should support, not hamper or subvert the organisation’s overall goals. In the strategic model the personnel function functions are shared between personnel authorities and the line departments using human resource services. Activities that can use such cooperative arrangements include devising and administering assessment centres, recruiting key personnel, and restructuring organisational classification system. Here the human resource manager is an organisational consultant, a valued member of the managerial team, not a roadblock to be avoided. Mesch, Perry and 35 Wise (1995:398) note that “the strategic human resource management model emphasizes decentralization and devolution of authority. It does not promote uniformity, but variety in personnel policies and practices. Strategic human resource management attempts to pare down excessive rules and regulations, enabling managers to function more effectively and to focus on achieving their organisational mission within a competitive environment”. Privatization or Outsourcing Model Since publication of the second edition of this handbook in 2005, the privatization, or outsourcing, model of public human resources management has come to exert a greater influence in the field. As government payrolls constricted and political leaders increasingly looked to the private sector for models of organisation, outsourcing and privatization of the public human resource management function increased, reaching its peak with the outsourcing of all significant human resource management functions for the Transportation Security Administration (TSA). Knowledge of or training in modern human resource management practices and techniques became more important. The result may be responsive to the immediate needs of the organisation; however, with no central organizing focus, problems of equity and fairness within and among organisational units may appear. For example, effective and consistent management of equal employment opportunity goals may be hampered; pay disparities may become prevalent; and employee assessment inequities may arise. In this model the public human resource management functions becomes increasingly moot. The challenge for organisations and managers alike is to retain coordinative control over the human resource function when privatization and outsourcing occur. It should not be forgotten that even if various functions are performed by a private entity, the public’s business and welfare are still at stake. Issues of fairness, representative bureaucracy, and equity should not be dismissed. The writing management and oversight of contracts should strive to represent the values of effective and public service. Hybrid Model The excesses of the privatization model first became evident to many through problems experienced in Florida as a result of significant outsourcing of human resource payroll functions. More significantly, employee outsourcing during the wars in Iraq and Afghanistan gave many to pause as to what was and was not the proper role of government versus the private sector in providing what had traditionally been government functions. Although the excesses of private contractors may have drawn the greatest attention, the slow and steady hollowing of the state has posed the largest concern and possible threat to traditional notions of government and governance. The fifth model is a hybrid of the strategic model and the privatization, or outsourcing, model. This model signals a maturing of the field that allows organisation-focused human resource management with feature of both the strategic and privatization models. This hybrid 36 model retains the importance of in-house human resource management expertise, but appreciates that, with proper organisational oversight, increased flexibility as well as privatization is now an established feature of organisational life. Such a recognition and appreciation can ultimately increase the role and influencing of human resource managers in government organisations. A COMPARISON OF FIVE MODELS OF PUBLIC HUMAN RESOURCE MANAGEMENT Factor Traditional Reform Strategic Model Privatization, or Hybrid Model Model Model Outsourcing, model Service Centralized Decentralized Collaborative Contract Mixed delivery Goal Uniform Manager Respect for human Effective contract Mission centred orientation enhancement of centred resource negotiation and rules, policies, management and administration and procedures organisational goals Communicatio Top-down Two-way Multidirectional Through reports and Multidirectional al, n pattern contract monitoring including contract monitoring Feedback type Formal and Muted Continuous Muted Continuous and informal routine complaints Value Merit Immediate Effective Efficiency: private Mission centred orientation responsivenes organisational sector preference s to functioning couple organisational with a respect for mission and effective human goals resource management practices Role of human Enhancer of Diminished Organisational Contract negotiator Key organisational resource merit authority and consultant and administrator player management control Perception of Hindrance to Adjunct Full managerial Diminished Enhanced human effective collection of partner resource organisational skills management functioning Focus of Public personnel Adjunct to Human resource Contract negotiation Human resource education for administration managerial management, and administration management, human skills general skill practical skills, management, contract resource practical skills negotiation and manager administration skills SOURCE: Condrey, S.E. (Ed.). 2010. Handbook of Human Resource Management in Government. San Francisco, CA: John Wiley and Sons. 1.6 CONCLUSION This theme provided a general overview of public sector HRM and briefly examined international trends and movements influencing the public sector HRM framework and system in South Africa. The theme also attended to public sector HRM perspectives and managing human resources effectively. Lastly, attention was given to what is expected from public sector managers namely, to make connections 37 between human resource functions and practices, HRM skills, and HRM outcomes in an integrated manner. The next theme focuses on HR planning, job analysis and staffing, including job descriptions and job specifications. SELF-EVALUATION QUESTIONS 1. Outline the major international trends and movements influencing HRM 2. Reveal the potential implications of international trends on HRM in the public sector 3. Define the concept ‘human resource management’ 4. Confirm the main characteristics of HRM in the public sector 5. Identify and assess key HRM functions and practices 6. Briefly list and explain the main outcomes of human resources 7. Outline the statutory and regulatory framework for HRM in the South African public sector 8. Analyse the public sector HRM system 9. Discuss the role of 4IR technologies in HRM FEEDBACK ON SELF-EVALUATION QUESTIONS To be able to answer these questions, a study has to be made of the sections as indicated opposite the question numbers below: Question1: Section 1.2 38 Question 2: Section 1.2 Question 3: Section 1.3 Question 4: Section 1.3.1 Question 5: Section 1.3.3 Question 6: Section 1.3.6 Question 7: Section 1.4 Question 8: Section 1.5 Question 9: Section 1.2.8 THEME 1: SUPPLEMENTARY READING Boon, C., Den Hartog, D.N. and Lepak, D.P. 2019. A Systematic Review of Human Resource Management Systems and their Measurement. Journal of Management. 45(6):2498-2537. Available at: https://doi.org/10.1177/0149206318818718 Boselie, P., Van Harten, J. and Veld, M. 2019. A human resource management review on public management and public administration research. Public Management Review. 23(4):483-500. Available at: https://doi.org/10.1080/14719037.2019.1695880 Common, R.K. 2022. International trends in HRM in the public sector: Reform attempts in the Republic of Georgia. International Journal of Public Sector Management. 24(5):421-434. Available at: http://doi.org/10.1108/09513551111147150 Knies, E., Borst, R.T., Leisink, P. and Farndale, E. 2022. The distinctiveness of public sector HRM: A four-wave trend analysis. Human Resource Management Journal. 1- XXX (Open access). Available at: https://doi.org/10.1111/1748-8583.12440 Piwowar-Sulej, K., Wawak, S., Tyrańska, M., Zakrzewska, M., Jarosz, S. and Sołtysik, M. 2022. Research trends in human resource management. A text-mining-based 39 literature review. International Journal of Manpower, (ahead-of-print). Available at: https://doi.org/10.1108/IJM-03-2021-0183 40 THEME 2 HUMAN RESOURCE PLANNING AND JOB ANALYSIS THEME LEARNING OUTCOMES After studying this theme, you should be able to: Analyse the rationale, purpose and scope of strategic human resource planning Outline the respective steps in strategic human resource planning Reveal critical success factors in workforce planning Describe the purpose and nature of work and job analyses Differentiate between job descriptions and job specifications 2.1 INTRODUCTION A government has specific goals with regard to matters it considers as priority concerns as far as service delivery, development, and social needs are concerned. In the case of the South African government, these goals are neatly outlined in the Government’s Programme of Action, the National Development Plan: Vision 2030, and the Medium-Term Strategic Framework. These goals are annually revised based on the State of the Nation Address made by the President. To operationalise these goals, strategic, tactical and operational planning is essential. These plans have to outline the responsibilities, obligations, assignments and accountability arrangements of public employees. The focus of this theme is HR planning and staffing. HR planning can be regarded as the process of determining what i

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