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2021-01-22 21:05
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2021年1月22日发(作者:外壳英语)
Benchmarking of human resource management in the
Pu
b
lic

sector:
P
rospects, pro
b
lems and challenges

DavidM Akinnusi
Organisational/Industrial Psychology and Human Resources
Management

North West University

South Africa

Correspondence to: David M Akinnusi
e-mail: si@
ABSTRACT

This
paper
reviews
the
role
of
human
resource
management
(HRM)
which,
today,
plays
a
strategic
partnership
role
in
management.
The
focus
of
the
paper is on HRM in the public sector, where much hope rests on HRM as a
means
of
transforming
the
public
service
and
achieving
much
needed
service
delivery. However, a critical evaluation of HRM practices in the public
sector reveals that these services leave much to be desired. The paper
suggests the adoption of benchmarking as a process to revamp HRM in the
public
sector
so
that
it
is
able
to
deliver
on
its
promises.
It
describes
the
nature
and
process
of
benchmarking
and
highlights
the
inherent
difficulties in applying benchmarking in HRM. It concludes with some
sugg
estions for a plan of action. The process of identifying “best”
practices
in
HRM
requires
the
best
collaborative
efforts
of
HRM
practitioners
and
academicians.
If
used
creatively,
benchmarking
has
the
potential
to
bring
about
radical
and
positive
changes
in
HRM
in
the
public
sector.
The
adoption of
the
benchmarking
process
is,
in
itself,
a
litmus
test
of
the
extent
to
which
HRM
in
the
public
sector
has
grown
professionally.
Keywords:

benchmarking,
benchmarking
process,
human
resource
management, public sector, public sector management
In
any
organised
human
activity,
human
beings
naturally
take
precedence over other resources, as it is they and they alone who are
capable
of
directing
and
utilising
other
resources.
Effective
human
resource
management
(HRM)
has,
therefore,
become
crucial
and
critical
to
the achievement of individual, organisational, community, national and
international
goals
and
objectives.
Ironically,
even
though
human
beings
are widely considered as the most important assets of any organisation
or
nation,
their
development,
motivation
and
utilisation
have
not
always
occupied
the
central place
in
management
(Bendix,
1996,
p.
4-10).
In
the
history
of
management
thought,
the
neglect
of
the
human
side
of
enterprise
brought the scientific school of management to its knees and led to the
rise
of
the
human
relations
and
the
behavioural
schools
of
thought
which
firmly
succeeded
in
putting
human
beings
as
the
core
of
management
(Carrell,
Elbert
&
Hartfield,
1995).
In
the
practical
world,
the
commodification
or
de- personalisation
of
human
beings
during
the
industrial revolution was also associated with the rise of trade union
movements, leading to government interventions and regulations and the
emergence of labour relations and personnel administration as fields of
study
(Bendix,
1995,
p.
7).
In
the
1990s,
personnel
management
metamorphosed
into
human
resource
management
in
clear
recognition
of
its
strategic
role
in
the
overall
performance
of
organisations
(Authur,
1994;
Cascio, 1995; Huselid, 1995; Gerber, Nel & van Dyk, 1998).

THE STATE OF HRM IN SOUTH AFRICA

The history of South Africa, rising from the ashes of the apartheid
regime, is replete with cases of poor HRM, to the point of constricting
its
development
more
than
a
decade
after
its
independence
(Deputy
President, Phumzile Mlambo-Ngcuka, 2006). The Deputy President while
launching the Joint Initiative for Priority Skills Acquisition (JIPSA)
remarked
that:Nothing
short
of
a
skills
revolution
by
a
nation
united
will
extricate us from the
crises we face.
We
are addressing logjams, some of
which
are
systemic
and
therefore
in
some
cases
entrenched
even
in
post- apartheid
South
Africa.
The
systemic
nature
of
some
of
our
challenges
undermine our excellent new policies, at least in the short term, hence
the
need
for
interventions
such
as
JIPSAto
enhance
implementation
of
our
policies (/speeches/2006/)
Historically,
South
Africa
has
performed
very
poorly
in
practically
all the criteria on the liability side of human resources balance sheet
as measured by the World Competitiveness Ratings (1998, 1999). Some of
these
include
equal
opportunity,
skilled
labour,
Aids,
worker
motivation,
brain
drain,
unemployment,
alcohol
and
drug
abuse,
values
of
the
society,
illiteracy,
dependency
ratio,
human
development
index
and
competent
managers. The field of labour relations (LR), like its human resources
counterpart, reflects the country’s socio
-political history which was
characterised
by
deep
divisions
along
racial
and
political
lines,
discrimination, unfair labour practices and gross distortions in the
labour market systems, resulting in serious confrontations between the
social
partners
and
perennial
industrial
unrest
(Bendix,
1996,
p.
71-104).
These stark realities have prompted the democratic government to
enact a series of laws designed to bring radical changes in the areas of
HRM and labour relations. Some of these include:

Occupational Health and Safety Act No 85 of 1993

Labour
Relations
Act
66
of
1995
and
Labour
Relations
Amendment
Act
No 127 of 1998

South African Qualifications Act No 58 of 1995

Basic Conditions of Employment Act No 104 of 1997

Employment Equity Act No. 55 of 1998

Skills Development Act No 97 of 1998

Skills Development Levies Act No. 9 of 1999

Promotion
of
Equality
and
the
Prevention
of
Unfair Discrimination
Act 4 of 2000

White Paper on Human Resource Management in the Public Service,
2000
The intention of these Acts was to create a healthy, humane, just
and
equitable
workplace
or
society,
free
from
discrimination
and
oppression
and
in
which
people
and
workers
are
educated
and
continuously
trained to meet the challenges of nationaldevelopment and globalisation
in
a
peaceful
industrial
climate.
In
2006,
the
nation
launched the
Joint
Initiative
on
Priority
Skills
Acquisition
(JIPSA)
to
develop
skills
that
are most urgently needed as part of the Accelerated and Shared Growth
Initiative for South Africa (AsgiSA), which was to propel South Africa
at
a
development
trajectory
of
6%
GDP
by
2010.
The
implementation
and
the
realisation of these Acts and initiatives require, among other things,
managers
and,
especially,
human
resource
professionals,
whose
responsibility it is to effectively manage the human resources of their
organisations. For its own part, the South African Board of Personnel
Practice
has
proposed
a
bill,
the
Human
Resource
Profession
Bill
(2005),
which intends to professionalise the practice of HRM in South Africa.
The focus of this paper is on HRM in the public sector, where the
challenges are most acutely felt. The Government White Paper on Human
Resource Management in the Public Service (2000) notes that national
departments
and
provincial
administrations
employ
approximately
1,2
million
people,
who
account
for
more
than
50%
of
all
public
expenditure.
It
declares
that
“people
are
therefore
the
Public
Service’s
most
valuable
asset,
and
managing
human
resources
effectively
and
strategically
must
be
the
cornerstone
of
the
wider
transformation
of
the
Public Service”. Appropriately,
Government has embraced the shift of
focus from personnel administration to HRM. Therefore, Government’s
vision
of
HRM
in
the
Public
Service
is
that
it
will
“result
in
a
diverse,
competent
and
well-managed
workforce,
capable
of,
and
committed
to,
deliveri
ng high quality services to the people of South Africa”. It
further stressed that the practice of HRM would be underpinned by the
following
values
which
derive
from
the
Constitution:
fairness,
accessibility,
transparency,
accountability,
participation
and
professionalism.
However, the White Paper on Human Resource Management in the Public
Service (2000) was quick to point out the inadequacies and out-dated
practices of HRM in the public sector, describing various aspects of it
in
the
following
ways:
(It
is)
over- centralised,
excessively
bureaucratic
and
rule-bound.
It
is
focused
on
form
rather
than
substance
and
results.
Human resource planning is weak; post-filling and promotion criteria
over-emphasize
educational
qualifications
and
seniority
and
little
or
no
emphasis
is
placed
on
the
requirements
of
the
job
to
be
done.
Performance
management is also underdeveloped.
All these inadequacies and the racial imbalance simply mean that
Government’s
avowed
desire
to
transform
public
service
delivery
by
putting
peop
le
first
(via
the
“Batho
Pele
principles”)
would
be
greatly
frustrated
by
an
inefficient
and
ineffective
management,
in
general,
and
lacklustre state of human resource management, in particular.
More than a decade after independence, the state of HRM in South
Africa has not changed
as drastically as
expected at either
the macro or
micro level. This is due to a number of factors including the following
(Gerber,
Nel
and
van
Dyk,
1998;
Bowmaker-Falconer,
Horwitz,
Jain
&
Taggar,
1998;
White
Paper
on
HRM,
2000;
Horwilt,
Browning,
Jain
&
Steenkamp,
2002;
/ipp/guardian/2008/05/27/):
ance by corporations to embrace transformation and major
changes implied or required by the various legislations.
ance on the part of trade unions to buy into the perceived
capitalist
agenda
of
the
new
government,
leading
to
a
shaky
alliance
between
government
and
its
alliance
partners,
the
Congress
of
South
African Trade Unions (Cosatu) and South African Communist Party
(SACP).

of
reverse
discrimination
by
whites,
sparking
off emigration
in large numbers and leading to only modest gains in the area of
employment equity and diversity management.
In
short,
although
South
Africa
is
armed
with
formidable
legislative
armoury
to
create
a
humane
society
and
organisational
environments
conducive to HRM, the fact remains that it will take many more years to
undo
the
legacy
of
apartheid
in
“creating
structural
inequalities
in
the
acquisition
of
education,
work
skills
and
access
to
managerial,
professional and occupational positions” (Horwitz, Browning, Jain &
Steenkamp,
2002).
This
situation,
therefore,
calls
for
innovative
practices such as benchmarking, the focus of this study
AIMS AND STRUCTURE OF THE PAPER

The
role
of
benchmarking
will
be
discussed
in
the
context
of
the
above
concerns.
The
aim
of
this
paper
is
to
advocate
the
adoption
of
benchmarking
as
a
tool
to
revamp, in
order
for
Government
to
be
able
to
deliver
on
its
promises.
The
objectives
are
to
describe
the
nature
and
process
of
benchmarking,
to
highlight
the
inherent
difficulties
in
applying
benchmarking
in
HRM
and
to
suggest
a
plan
of
action.
Accordingly,
the
rest

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