PAS 700 UNIT 1: Theoretical overview of public sector human resource management: theories and legislation

What is Human Resource Management (HRM)?

HRM is the strategic process of managing an organisation's employees to help the company achieve its goals.

What does HRM involve?

It involves a range of activities, including recruiting,training, compensating employees, promotion, as well as developing and overseeing policies related to their work environment, compensation, and benefits.

What is the primary aim of HRM?

The primary aim of HRM is to maximize employee performance and productivity while ensuring alignment with the company's strategic objectives.

What is Public Sector Human Resource Management (PSHRM)?

• PHRM is the practice of recruiting, developing, and managing public sector employees to achieve organisational and public objectives,

• emphasising public service, merit-based hiring, accountability, and policy alignment within government institutions.

What does PSHRM apply?

It applies general human resource management principles to the unique context of the public sector, focusing on

• community needs,

• Transparency,

• equal opportunities,

• navigating complex regulations to serve the public interest effectively.

What does PSHRM entail?

It entails all practices and decisions aimed at continuously achieving an optimal fit between

• work,

• the human resources required to execute the work of public sector institutions

• the environment in which these institutions operate.

What is the key idea of PSHRM?

• The key idea of PSHRM is managing people in the public interest, not for profit.

• It aligns employees’ skills and motivation with government objectives and citizen needs.

What does PSHRM comprise of?

PSHRM comprises the policies, processes and decisions intended to secure and maintain an optimal match between

• (a) the tasks and public services required by the state,

• (b) the people who perform those tasks,

• (c) the political, social and institutional environment in which public organisations operate.

Public HRM

• The goal is public value, sevice delivery and accountability

• The values are equity, fairness, transparency and ethics

• The environment are political, bureacratic and legal constraints

• Their stakeholders are citizens, government, unions and oversight bodies

Private HRM

• The goal is profit maximisation

• The values are efficiency and competitiveness

• The environment is market-driven

• Their stakeholders are customers and shareholders

An example of an oversight body under Public HRM

In SA, the Public Service Commission (PSC) 2024 review reported ongoing issues in fairness and transparency in recruitment, reflecting challenges unique to PHRM

Who governs the PSHRM in SA?

In SA, PSHRM is governed by the Department of Public Service and Administration.

Importance of PSHRM

• PSHRM is core to South African government functionality.

• Transforms human capital into improved governance and public service delivery.

• Context (Developmental State): Essential for social transformation and accountability.

• Impact: HRM efficiency and ethics directly determine public trust and institutional legitimacy.

Importance of PSHRM Factors

• Enhancing service delivery

• Optimised Resource Allocation

• Accountability and Transparency

• Fostering Public Service Values

• Managing Change and Adapting to New Challenges

• Driving Organisational Performance

1. Enhancing Service Delivery

PSHRM builds a capable, motivated, and trained workforce to ensure equitable service delivery, as shown by Home Affairs reskilling and redeploying staff for e-services

2. Optimised Resource Allocation

PSHRM ensures that human capital is allocated strategically according to service demands while reducing inefficiencies and duplication of functions.HRM integrates with financial and strategic planning to ensure that scarce skills and competencies are deployed where they are most impactful.

3. Accountability and Transparency

Effective HRM systems enhance ethical governance, accountability, and public trust. HRM frameworks guided by Public Service Regulations, ensure that all appointments and promotions are conducted through fair, competitive processes. The PSC’s 2023 Integrity and Ethics Report exposed cases of irregular appointments and recommended HR-led interventions to strengthen pre-employment vetting and ethical training

4. Fostering Public Service Values

HRM is essential in promoting and institutionalising the core values of the South African public service being: Fairness and EquityProfessionalism and IntegrityCommitment to Public Service

5. Managing Change and Adapting to New Challenges

HRM provides the adaptive capacity through reskilling, organisational restructuring, and change management such as responding to societal needs(The Expanded Public Works Programme (EPWP).), embracing technology (The e-Recruitment System, launched in 2023 by the DPSA ) and managing workforce diversity (The Public Service Diversity and Inclusion Framework)

6. Driving Organisational Performance

HRM aligns individual and institutional goals, creating a motivated workforce that drives public sector excellence (a) Strategic Alignment: HRM integrates workforce strategies with institutional plans such as the Medium-Term Strategic Framework (MTSF) and the National Development Plan (NDP) 2030.(b) Innovation and Creativity: HRM encourages creativity through training, recognition, and collaboration across departments as seen with the Innovation Hub in Gauteng collaboration with the DPSA in 2022 to pilot HR innovation projects(c) Employee Engagement: HRM fosters engagement through effective communication, fair treatment, recognition, and supportive work environments.For example the The Public Service Employee Engagement Survey found that departments with transparent promotion pathways (like SARS and NSG) reported higher job satisfaction.

Functions of HRM in the Public Sector (Smart Recruits Train Properly, Creating Excellent Habits.)

Stategic planningRecruitment & Selection Training & DevelopmentPerformance ManagementCompensation & Benefits Employee Relations Health, Safety & Wellbeing

1. Strategic Planning

Forecasting human resource needs and aligning them with government goals Example: DPSA Workforce Planning Framework 2022

2. Recruitment and selections

Merit-based hiring for fairness and competence Example: PSC 2023 Audit found nepotism declining in national departments

3.Training & Development

Building capacity through learning and continuous skills improvement Example: NSG programs on ethics and leadership

4.Performance Management

Setting clear objectives, appraisals, and feedback Example: PMDS (Performance Management and Development System) integrated into annual departmental reviews

5. Compensation and benefits

Fair remuneration, job evaluation, and benefits Example: Public sector wage negotiations with unions (Public Service Co-ordinating Bargaining Council (PSCBC) 2023)

6. Employee Relations

Managing unions, grievances, and labour disputes Example: NEHAWU (National Education, Health and Allied Workers' Union) strikes (2023) reflected need for stronger HR–union relations

7.Health, Safety and Wellbeing

Ensuring safe and conducive work environments Example:Occupational Health and Safety policy reforms (DPSA 2024)

The three strategies that comprise HRM (On hos street)

Operational/ Functional strategy HR Development strategy Strategic HRM

1. Operational/ Functional strategy

This is the administrative and operational level. The functional strategy focuses on the day-to-day operational and administrative activities that ensure human resource processes are executed effectively. It involves implementing rules, policies, and procedures for managing employees, such as recruitment, selection, placement, payroll, benefits, and discipline. The focus is on compliance with employment laws and regulations, administrative efficiency and consistency and fairness in personnel practices.

1. Operational/ Functional strategy key activities

Advertising and filling vacancies Managing employee records and remuneration Handling leave, benefits, and pensions Ensuring compliance with Public Service Regulations 2016, the Public Service Act and Labour Relations Act

1. Operational/ Functional strategy example

In SA, the DPSA ensures all departments comply with uniform recruitment and promotion procedures.

2. HR Development strategy

This is the learning, training, and capacity-building level. The Human Resource Development strategy focuses on building the skills, knowledge, and competencies of public servants. It is about developing human potential to meet both current and future organisational and national development needs. It focuses on continuous learning and professional growth, skills development and career management and leadership and capacity-building for a developmental state.

2. HR Development strategy Key activities

Training and education (formal and on-the-job) Career and succession planningPerformance appraisal and feedback for development Implementing the Skills Development Act

2. HR Development strategy example

The National School of Government provides continuous professional education for public servants, such as Ethics in the Public Service, Digital Governance, and Leadership Development for Women.

3. Strategic HRM

This is the organisational and policy level for long-term and integrative.The Strategic HRM strategy integrates HRM into the strategic planning of the organisation. It ensures that the management of people is directly aligned with the mission, vision, and goals of the public institution and the national development agenda. In other words, SHRM links HR policies and practices to the long-term strategic direction of the organisation and the state. It aligns HR planning with organisational strategy. Focuses on workforce planning and forecasting, change management and transformation and building an ethical, capable, and developmental public service.

3. Strategic HRM Key activities

Developing HR strategies aligned with the NDPConducting environmental scans to anticipate future HR needsSuccession planning for leadership continuityTransforming organisational culture and ethics

3. Strategic HRM example

The DPSA’s Professionalisation Framework for the Public Service is a key SHRM initiative that aligns recruitment, promotion, and training systems with the goal of creating a “professional, ethical, and developmental state.

Characteristics of PHRM in SA (man placed rails)

Management PerspectivePublic dimensionResource Orientation

1. Management Perspective

PHRM in SA adopts a management-oriented perspective that emphasizes doing the right things (effectiveness), in the right way (efficiency), and for the right reasons (ethics).This perspective recognises that effective governance and service delivery depend on the quality of human capital and how it is managed. Public sector managers are thus required not only to comply with administrative procedures but also to understand and apply sound HRM principles.By doing so, they can avoid poor recruitment decisions that lead to unqualified appointments, reduce employee turnover, and minimize legal disputes related to labour relations or discrimination. For instance, the PSC frequently investigates irregular appointments and unfair labour practices, highlighting the importance of managers adhering to ethical and transparent HR processes. This perspective aligns with the constitutional values of fairness, accountability, and transparency, ensuring that public servants act in the public interest.

2. Public Dimension

PHRM operates within a uniquely public environment, which distinguishes it from private-sector HRM. This environment is characterised by bureaucracy, political sensitivity, and a high level of public accountability. Unlike private firms that are primarily profit-driven, the South African public service is mandated to advance constitutional values and improve citizens’ quality of life. Therefore, HRM decisions in the public sector must consider multiple stakeholders, including citizens, elected oCicials, trade unions, and oversight institutions such as the PSC, DPSA, and the Auditor-General. For example, recruitment and promotion processes must comply with the Public Service Act and the Employment Equity Act to ensure fairness and representativity. Additionally, HRM in the public sector operates under constant scrutiny from the media and the public, making transparency and accountability vital components of every HR decision. The political-administrative interface further complicates PHRM, as political leaders set priorities while career officials must implement policies impartially. This makes PHRM both a technical and political activity that balances efficiency with public responsibility

3. Resource Orientation

Another key characteristic of PHRM in South Africa is its resource-oriented approach. PHRM views human resources as one of the four major resources, alongside financial, physical, and informational, required to achieve organisational objectives.Among these, human resources are considered the most strategic because they directly influence how other resources are managed and utilised.In the South African public service, this strategic importance is reflected in initiatives such as the Human Resource Development Strategy for the Public Service which prioritises skills development, digital literacy, and leadership capacity.Effective PHRM ensures that human resources are allocated optimally across national, provincial, and local levels of government, particularly in critical service areas such as health, education, and infrastructure.

Theoretical Foundations and Evolution of HRM definition

The development of HRM theory provides a foundation for understanding how PHRM functions today.Early management theories laid the groundwork for HRM practices and continue to shape how public organisations manage people.

Theoretical Foundations

Scientifc Management Human Relations Approach Behavioural Science Approach Strategic HRM

Scientific Management

Scientific Management by Frederick Taylor focused on efficiency and the standardisation of work processes. Taylor’s emphasis on productivity and measurable performance outcomes remains relevant in the South African public sector, especially in performance management systems like the Performance Management and Development System

Human Relations Approach

Human Relations Approach by Elton Mayo highlighted the social and emotional needs of employees. It introduced the idea that motivation, teamwork, and morale directly affect performance. This philosophy is reflected in South Africa’s emphasis on participatory management and employee wellness programs within the public service.

Behavioural Science Approach

Behavioural Science Approach integrated psychology, leadership, and motivation theories into HRM. It encouraged understanding employee behaviour to improve leadership and organisational culture, a perspective now embedded in the DPSA’s focus on ethical leadership and organisational change.

Strategic HRM(Human Resource Approach)

Strategic HRM, recent one, emerged to link HR practices directly to organisational and national goals. Strategic approach to nurturing and support employees and ensuring a positive work environment In South Africa, this approach gained prominence post-1994, with HRM evolving from mere personnel administration to a strategic enabler of transformation and development

What does PSHRM emphasise?

Public-sector HRM emphasises equity, transparency, and service delivery. In South Africa, this has meant ensuring fair representation of all racial and gender groups, developing human capacity, and enhancing accountability. Post-1994, HRM became a transformative tool to redress apartheid-era inequalities through employment equity, skills development, and public service reform legislation.

Historical and Political Influences on PHRM in South Africa: Apartheid Legacy (Pre-1994)

Before democracy, HRM in the public service was limited to personnel administration, focused on control and compliance rather than development. The system was racially exclusive, favouring white officials and marginalising black South Africans from senior positions. As a result, the public service lacked diversity, innovation, and accountability

Historical and Political Influences on PHRM in South Africa: Transformation Period (1994–1999)

Following the 1994 democratic transition, HRM was restructured to promote representativity, fairness, and development. The White Paper on the Transformation of the Public Service (1995) established the principles of equity, efficiency, and accountability. The Public Service Act (1994) and Skills Development Act (1998) institutionalised fair recruitment, employee assistance programmes, career management and training. These reforms marked a shift from bureaucratic control to developmental HRM, focusing on empowering all citizens through a capable state. The concept of transformation was established as the cornerstone of the public service. The White Paper on the Transformation of the Public Service, 1995, reshaping the Public Service for its role in a democratic South Africa.

Historical and Political Influences on PHRM in South Africa: Institutional Development (1999–2008)

This period saw the establishment of new institutions to strengthen oversight and professional capacity. The PSC, which is a Chapter 9 institution, was empowered to monitor HRM practices and ethics of the public service. The functions of the PSC include: the promotion of the values and principles of public administration. Supporting the eCorts of the Public Service to promote a high standard of professional ethics. The South African Management Development Institute (SAMDI), later transformed into the Public Administration Leadership and Management Academy (PALAMA) in 2008, coordinated public sector training. The mandate was to train public officials and provide improved skills, attitudes required for a developmental state.

Historical and Political Influences on PHRM in South Africa: Developmental State Era (2009–Present)

Since 2009, South Africa has pursued the vision of a professional, ethical, and developmental public service, aligned with the NDP 2030. The NDP focuses on creating jobs and improving livelihoods, expanding infrastructure, improving education and training. The creation of the National School of Government in 2013 marked a new phase of professionalisation, focusing on leadership and competency development. The DPSA’s Professionalisation Framework (2022) aims to integrate all public servants under one professional standard across national, provincial, and local levels. This reflects a shift toward strategic, competency-based HRM designed to support ethical governance and high-quality service delivery

Effective HR Management: HR Managers and Administrators Roles

Creating HR Policies Advising line managers Providing HR services Monitoring amd compliance Employee relations Talent developmentData and reporting

HR Managers and Administrators Roles: Creating HR policies

Developing clear, fair and aligned HR policies and procedures that support organisational goals

HR Managers and Administrators Roles: Advising line managers

Providing expert advice and guidance to line managers on HR matters and people management challenges

HR Managers and Administrators Roles: Providing HR services

Delivering core HR services such as recruitment, selections, training and development compensation and research

HR Managers and Administrators Roles: Monitoring and compliance

Ensuring compliance with employment legislation, HR policies and standards through monitoring, audits and corrective actions

HR Managers and Administrators Roles: Employee Relations

Managing employee relations and resolving workplace issues to promote a positive and productive work environment

HR Managers and Administrators Roles: Talent Development

Designing and implementing learning and development initiatives to build capability and future leadership

HR Managers and Administrators Roles: Data Reporting

Using HR data and analytics to inform decisions and report on HR performance

Integrated process of PSHRM

Key functions and practices: Core HR activities that support the achievement of organisational goalsManagement tasks: Planning, organising, coordinating, leading and controlling HR activities Additonal Management skills: Skills such as communications, decision-making, probloem-solving, negotiation and change managementSpecific outcomes: Measurable results such as employee performance, satisfaction and organisational effectivesness

The Management perspective of PSHRM: Why institutions still fail?

Hiring the wrong peopleNot motivating employees properly which leads to low morale, disengagement and poor performance Not proving enough training opportunities which results in skills gaps, low productivity and poor service deliver

The Tripartite responsibilities of PSHRM

Public sector human resource management (PSHRM) is shared responsibility among political heads, line functions, employees and HR specialists who work together to build a capable, compliant and high-performing public service

The Tripartite responsibilities of PSHRM: Political Heads (Political Managers)

Provide strategic leadership and oversight to ensure that HRM policies are aligned with government priorities and are effectively implemented across the public service. Example: establish HRM policies, co-ordination of policy, and ensuring successful implementation

The Tripartite responsibilities of PSHRM: Line functions employees (Line managers)

Manage people on a day-to-day basis to ensure that HRM policies are applied fairly and that employees perform at their best.Example: Job analysts and design, recruitng, selecting and orienting and interpreting and executing HR policies

The Tripartite responsibilities of PSHRM: HR specialists (HR professionals)

Provide expert support and professional services to ensure that HRM policies, systems and practices are compliant, effective and aligned with organisational goals.Examples: Draft HR policies, consultation and compliance and provide routine HR services

PSHRM: Essential Management skills

Conceptual skills Human/people/interpersonalTechnical skills

PSHRM: Essential Management skills (Conceptual skills)

The mental ability to see HR as a whole and complex system and to co-ordinate and integrate all interests and activities This involves the ability to work out well-conceived plans in collaboration with subordinate employeesThis involves the ability to take rational and informed decisions about HR issues

PSHRM: Essential Management skills (Human/people/interpersonal skills)

The ability to work with, understand and motivate peopleJudged by how successfully one communicates with others Judged by the extent to which one is involved in motivating employees

PSHRM: Essential Management skills (Technical skills)

The ability to apply professional, functional and specialised knowledge and expertise to ensure that HRM occurs smoothly

PSHRM as an integrated process

The best way to promote better public service delivery in the public sector requires that institutions, teams and individuals adopt an integrated approach. These players must have a clear understanding of the way in which their efforts contribute in an integrated manner towards the desired service-delivery levels. Public sector managers are expected to make key strategic connections between key HR functions and practices, the HR management tasks, additional HR management skills and the outcomes that are at stake.

PSHRM as an integrated process for better service delivery

KEY HR FUNCTIONS AND PRACTICES: Strategising and planning, Obtaining suitable HR, Utliing and developing employees and Employee relationsHR MANAGEMENT TASKS: Planning orgoniing, Directing and leading and Coordinating ADDITIONAL HR MANAGEMENT SKILLS: Conceptual skillls, Human / interpersonal skils and technical skills OUTCOMES AT STAKE: Achieving the desired service delivery levels and public value for all citizens

PSHRM as an integrated process for PSHRM Outcomes

Promoting fairnessFostering transparency Applying equity principles Demonstrating accountabilityEncouraging accessibility Increasing professionalism

PSHRM as an integrated process: Constitutional values and principles

Democratic values and principles which must be upheld include: The promotion and maintenance of a high standard of professional ethicsResponsiveness to people's needs and encouragement of the public to participate in public policymaking Efficient, economic and effective use of resources A developmental orientation Impartial, fair and equitable provision of services Public accountability Transparency Good human resource management Broad representativeness

Major Role Players in SA's Human Resource System

The South African public service HR system is guided by a framework of laws and national policies and implemented through key institutions that play distinct but complementary roles.

Major Role Players in SA's Human Resource System: Department of Labour

Leads the development of national labour policies and legislation that regulate employment relationships.Develops and administers labour lawsPromotes decent work and employment equityOversees occupational health and safety Manages the Compensation Fund Faciitates labour dispute prevention and resolutionKey Mandate: Create fair and equitable labour environment

Major Role Players in SA's Human Resource System: Department of Public Service and Administration (DPSA)

Sets HR policies, norms and standards for the public service and provides leadership in HRM.Develops HR policies and frameworks Issues norms, standards and guidelines Promotes a capable, ethical and developmental stateSupports HR innovation and capacity building Monitors and evaluates HR practicesKey mandate: Build a professional and developmental public service

Major Role Players in SA's Human Resource System: Public Service Comission (PSC)

An independent body that promotes and monitors the effectiveness and integrity of the public serviceMonitors and evaluates the public service Investigates complaints and allegations of misconductPromotes ethical and democratic values Reports to Parliament on the state of the public service Ensures adherence to the Constitution and public service principlesKey Mandate: Uphold accountability, integrity and good governance

Founding guiding principles of HRM

Constitutional values: Upholding democracy, human rights and the rule of lawEquity and fairness: Promoting equal opportunities and non-discriminationMerit and Capability: Attracting, developing and retaining a skilled and ethical workforce Accountability: Ensuring transparency, responsiveness and values for moneyService excellence: Placing citizens at the centre of public service delivery