Mcebisi Ndletyana
The Department of Transport is unusual in several ways. Although it was late to establish transformation structures, it has made more progress than other departments.
Acting to transform the public service, the government has established institutional mechanisms for this purpose. Among these are transformation units (TUs).
Although directors general are responsible for transformation in their departments, TUs are directly responsible for monitoring, co-ordinating and evaluating transformation.
The rationale for departmental TUs is the assumption that managers would not be eager to transform. While this is changing, upper and middle echelons of the civil service are still dominated by white males (or the “old guard”) who tend to feel threatened by transformation.
Given this, TUs were meant to act as transformation watchdogs. But, judging from the transport department, structures such as these do not necessarily lead to the desired outcome.
Transformation is a contentious issue: individuals or interest groups define it in a way that will further their interests. Therefore, although the government has committed itself to a participative decision-making process, transformation will frequently necessitate a top-down approach.
Since TUs represent all the views within a given department, they may delay rather than fast-track transformation, as representatives fail to achieve consensus on prioritisation.
The Department of Transport did not have a TU; preparations to form one began late in 1998. It also has a strong “old guard”. However, despite this, it has made significant progress towards transformation.
The department sees its new role as that of policy-maker and facilitator, as opposed to that of providing services. The provision of services and related activities has been outsourced. The department has had to be restructured to meet its new objectives.
Transformation has been divided into two phases. The first – from 1995 to December 1998 – focused on rationalisation. The second – begun in late 1998 – has been aimed at achieving greater representivity.
Efficiency and fiscal discipline have been prioritised. While regarded as important, other aspects of transformation have been seen as potential impediments to the implementation of the first phase.
Restructuring has entailed creating four new agencies: the South African Civil Aviation Authority, the South African Maritime Safety Authority, the Cross- Border Roads Transport Agency and the National Road Agency.
While the ministry has focused on policy- making and regulatory activities, its agents have assumed the role of administrator and provider. Consequently, rationalisation has been followed by right-sizing. The department’s number of employees declined from 1 400 in 1994 to 250 in October 1998. Most transferred to the new agencies, while others opted for severance or retirement packages.
The results have been substantial. Firstly, the ministry is able to focus solely on policy-making. As a result, it has succeeded in formulating major policies and launching initiatives which have yielded benefits for the industry and economy.
Secondly, by creating partially self- sufficient agencies, the department has cut costs and, as these agencies become self- sufficient, it will be able to utilise more of its budget for its core activities.
It is already strengthening its policy- making capacity. Together with tertiary institutions, it has launched a postgraduate diploma in transport management for staff members.
Thirdly, transformation is likely to improve the services rendered. Following the creation of separate agencies to cater for each area, clients will have their concerns addressed expeditiously.
In the department, the co-operation with and commitment to transformation shown by white managers has stemmed from their sense of job security; this due to the department’s reliance on activities requiring specialist skills that are not readily available in the black community.
According to a senior manager: “This makes it difficult to reach the representivity levels we aim for, and this situation is exacerbated by our inability to compete with private sector salaries.”
The same cannot be said of many other departments. The fear among white managers that transformation may result in job losses is likely to pit them against it. Without management support, transformation is thus unlikely to unfold. Having said that, however, there are lessons that can be applied across departments.
Given a TU, black staff members in the department would, understandably, have raised representivity as a priority for transformation. Throughout the first phase this issue was never tackled.
In the absence of a TU, management was able to execute its plans without concerted interventions. Indeed, it was only in December 1998 that the ministry began to discuss the formation of a TU with staff.
Transformation is a multifaceted process. It involves a range of factors, some of which may require more urgent attention than others. Management must decide which issues ought to take precedence. Prioritisation is thus a key to effectiveness.