Implementing Affirmative Action In Public Services: Comparative Administrative Practice
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Implementing Affirmative Action In Public Services: Comparative Administrative Practice Acronyms
AIR All India Reporter AIS All India Services ANC African National Congress BN Barisan Nasional COSATU Congress of South African Trade Unions DPC Departmental Promotion Committee DPSA Department of Public Service and Administration (SA) HDI Human Development Index (UNDP) IAS Indian Administrative Service IPS Indian Police Service IFS Indian Forest Service INSAP Institute of Applied Policy MADS Malaysian Administrative and Diplomatic Service MAS Malay Administrative Service NEP New Economic Policy NGO Non Governmental Organization NP National Party OBC Other Backward Classes (India) PAWC Provincial Administration of the Western Cape PEP Provincial Executive Programs PPP Purchasing Power Parity PSD Public Services Department PTD Perkhidmatan Tadbir dan Diplomatik RDP Reconstruction and Development Program RSA Republic of South Africa SC Scheduled Caste SSC Staff Selection Commission UNDP United Nations Development Program UNMO United Malay National Organization UNRISD United Nations Research in Social Development UPSC Union Public Service Commission WPTPS White Paper on the Transformation of the Public Service About this report This report is part of an initiative by PREM Network’s Public Sector Group to compile, analyze and present Comparative Administrative Practices in different areas of pubic sector management. It describes how different public services have designed, implemented and monitored affirmative action. Knowing how governments implement affirmative action is useful for understanding pressures to expand public employment. It provides insight into how difficult reform options can be carried through. The analysis draws upon four case studies of the public services of India, Malaysia, Nigeria and South Africa that were prepared for the World Bank’s Governance Knowledge Sharing Program. Pachampet Sundaram, independent consultant, wrote the case studies of India and Malaysia. Professor John Erero of the Department of Public Administration, Obafemi Awolowo University, Ile-Ife, Nigeria and Babatunde Oyedeji, Independent Policy Group, Abuja wrote the case study on Nigeria with the assistance of Ayo Adesopo of Obafemi Awolowo University. The South African case study was written by Professor Robert Cameron of the Department of Political Studies, University of Cape Town. The study was designed by Ranjana Mukherjee and Ladipo Adamolekun who also analyzed the cases and prepared the summary of findings. Contents
I. Introduction 1 II. Summary of findings 5 II.A. Who is preferred, and to what extent? 5 II.B. Implementation 10 II.C. Monitoring 14 II.D. Results 18 III. Affirmative Action in India’s public service: A case study 21 III.A. Background 21 III.B. Implementation Framework 24 III.C. Enforcement of Affirmative Action 29 III.D. Effect of Affirmative Action on Civil Service 32 III.E. Future of Affirmative Action in Public Service 37 III.F. Appendices 39 IV. Affirmative Action in Malaysia’s Public Service: A case study 41 IV.A. Background 41 IV.A. Context, Objectives, and Framework of Affirmative Action in Public Service 44 IV.B. Enforcement of Affirmative Action and its Effect 46 IV.C. Consequences of Affirmative Action for Public Service 50 IV.D. Future of Affirmative Action in Public Service 51 V. Affirmative Action in Nigeria’s Public Service: A case Study 53 V.A. Background 53 V.A. Objectives of Affirmative Action and Relevant Constitutional Provisions, Laws, Rules, and Regulations 56 V.B. Enforcement Record to Date and Impact on the Composition of the Civil Service 58 V.C. Assessment of the Consequences of “Federal Character” for Civil Service Performance 63 V.D. Concluding Observations 64 V.E. Appendix 67 VI. Affirmative Action in the South African Public service: A case Study 72 V.A. Background 72 VI.A. Objectives of Affirmative Action and the Relevant Constitutional Provisions, Laws, Rules, and Regulations 75 VI.B. Enforcement Record to Date and the Impact on the Composition of the Public Service 79 VI.C. Assessment of the Consequences for Public Service Performance 83 VI.D. Conclusions 89 VI.E. Appendix. 90 VII. References, by Chapter 93 List of tables Table II.1. Summary of Groups Preferred in Federal Public Service 8 Table III.2. India: Combined representation of SC and ST in different service groups (as % of federal government employment) 32 Table III.3. India: Combined Representation of SC and ST public sector enterprises of central government, 2000 32 Table III.4. India: Vacancies filled in All Civil Services 33 Table III.5. India: Recruitment of Other Backward Classes 33 Table IV.6. Malaysia: Ethnic composition of population in Malaysia (including North Borneo), 1957–2000 41 Table IV.7. Malaysia: Public Employment in Malaysia (2002) 43 Table IV.8. Malaysia: Ethnic Composition of Public Service 48 Table IV.9. Malaysia: Ethnic representation in top positions in federal ministries, 2000 49 Table IV.10. Malaysia: Women in public service, 1999 50 Table IV.11. Malaysia: Education levels in MCS by ethnic origin, 1971 50 Table V.12. Nigeria: Selected macroeconomic and social indicators 55 Table V.13. Nigeria: Gender representation, March 2003 58 Table V.14. Nigeria: Consolidated Statistics of FCS (Presidency, Federal Ministries, and Extra-Ministerial Departments), 2000 67 Table V.15. Nigeria: Staff distribution summary by state and category, 2003 68 Table V.16. Nigeria: Summary of consolidated statistics of the FCS, selected years 69 Table V.17. Nigeria: Total staff distribution by geopolitical zones, selected years 71 Table V.18. Nigeria: Analysis of the impact of implementing federal character principle (by state) 71 Table VI.19. South Africa: Human Development Index 73 Table VI.20.South Africa: percentage of black managers 1995–2004 82 Table VI.21. South Africa: Gender composition in management, 1995–2004 83
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