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105
S.D. Govender & S Vyas-Doorgapersad
Journal of Public Administration
THE IMPLEMENTATION OF GENDER EQUALITY POLICIES
IN ACHIEVING MILLENNIUM DEVELOPMENT GOAL THREE
IN THE SEDIBENG DISTRICT MUNICIPALITY*
SD Govender
S. Vyas-Doorgapersad
University of North-West
ABSTRACT
Globally, the achievement of Millennium Development goal1 3 is slow,
as is evidenced by surveys conducted by some of the reputable inter-
national organisations, such as the Global Employment Trends, (2009)
and the Global Employment Trends for Women, (2009) (both conducted by the
International Labour Organisation), the Mastercard Worldwide Index on Wom-
en’s Advancement, (2009), and the Organisation for Economic Co-operation and
Development, (2011). The surveys explore the reality that gender equality in the
labour market is still low and remain unchanged due to the fact that women
are not receiving the required employment opportunities, are under-represented
in the working place and are not considered for strategic portfolios. The out-
comes of these surveys are supported by academic such scholars, as Meintjies
(2005); Parker (2009); Tsuari (2010); Penceliah (2011); Zukang (2012); and
KiMoon (2012) whose studies emphasise the discrimination of women in the
labour market. The paper aims to focus on the Millennium Development Goal
3 due to the fact that gender equality and the empowerment of women is at the
heart of this initiative, as stated in the Millennium Development Goals Report of
2010, in which it is reported that this objective is not yet fully realised. There is a
need to investigate the essence of gender equality (in favour of the female aspect
of gender) demanding appropriate recognition and opportunities for empower-
emphasising that the municipal employment practices are not done in favour of
women in the society as there are still some municipalities that do not invest in
offering training programmes for gender balancing their working environment;
while and the professional and managerial roles are not extended to women.
The paper examines the role South Africa is playing in achieving the Millennium
Declaration, by focusing on Goal 3 that encourages gender equality and women
-
trict Municipality as its focus area.
106 107
S.D. Govender & S Vyas-Doorgapersad
Volume 48 number 1 | March 2013
Journal of Public Administration Journal of Public Administration
iour identity. Gender equality “refers to a situation where women and men enjoy
the same rights, resources, opportunities and protections” (Molebati, 2009: 11).
This view-point is supported by academics (Kgasi, 2004:8; Reddy, 2006: 28) who
emphasise that both women and men deserve equal respect, opportunities and
appreciation in the society. There are various feminist theories that explore aspects
of “changing social relations” (Luis, 2012); “economic development” (Ferber &
Nelson, 1993); “welfare, equity and anti-poverty approaches” (Buvinic, 1983);
and “empowerment approaches” (Moser, 1989). The opinions and view-points of
academics and researchers, “raise the need to engage with critical issues hamper-
ing the social, economic and empowerment of women” (Kithatu-Kiwekete, 2011:
empowerment that is the transformation of gender relations into gender planning”
(Wieringa, 1994:830).
The concern is “to what extent does local government support women’s empow-
erment and gender equity?” (Todes et al., 2007: 1). Researchers (Mathye, 2002;
Tsuari, 2010; Penceliah, 2011; Sithole, Todes & Williamson, 2012) have explored
are still some municipalities that do not invest in offering training programmes for
gender analysis; and the professional roles are not extended to women. “One can
immediately deduce that gender equality policies are not correctly implemented
and that women are not empowered to acquire the requisite skills to hold manage-
ment positions. It merely shows that the inclusion of women in local government
is a matter of policy” (Parker, 2009: 3). South Africa’s experience of democratic
reform has demonstrated that local government poses immense and particular
challenges for advancing gender equality and increasing women’s representation
in politics (Beall, 2004: 1). The debate on gender equality resulted into the South-
ern African Development Community (SADC) making commitments in the spirit of
global3 and African Declarations4 regarding women participation.
In South Africa, the essence of women participation and empowerment is
stipulated in the South African Women’s Charter 1994, emphasizing that “women
participate in, and shape, the nature and form of our democracy” (cited in Maha-
raj, 2007). The initiative was supported by the establishment of the Commission
on Gender Equality that is a fundamental segment of the National Machinery for
Gender Equality responsible to debate and generate suggestions regarding the
advancement of gender equality.
The Ofice on the Status of Women [now known as the Ministry of Women,
Children and Persons with Disabilities] is instituted for implementing gender poli-
cies and programmes in South Africa, emphasizing the establishment of a local
government machinery to promote gender equality and women empowerment.
The Women’s Caucus of the South African Local Government Association (SALGA)
in association with the Department of Provincial Affairs and Local Government
(DPLG, now known as Department of Cooperative Governance and Traditional
INTRODUCTION
To bring social reform, women in Afghanistan (see Povey, 2012), Burundi,
Nepal (Falch, 2010), the Democratic Republic of Congo (Vyas-Doorgapersad and
Lukamba, 2011); Bosnia, Rwanda, Sudan (Anderlini & El-Bushra, 2012), and India
(Pujari, 2012),2 are raising their voices demanding women upliftment. There is a
need to “strengthen associations of women leaders and representatives at global,
regional, national and local levels; and to develop mechanisms to facilitate the
of the reason is that women may be more successful in acquiring strategic portfo-
lios at municipal level due to the fact that municipal government: “being easier,
employment; reserved seats for women on local municipalities (in some countries);
and more acceptance of women in city and community government as it is seen
as an extension of women’s involvement in their communities” (Drage, 2001: 3).
Local government is closest to its people – for which reason women in leadership
and senior management would send a positive message to women entering the
employment arena (Penciliah, 2011: 868). “[G]ender activists have argued that
effective delivery of services, which is likely to have a positive impact on the demo-
cratic system as a whole. Women’s understanding of the needs of households can
be translated into knowledge for local planners and delivery agencies, leading to a
virtuous circle of gender-sensitive policies and increased and better valued partici-
pation of women” (The Local Government Transformer, 2007: 2) leading towards
improved municipal governance.
Given this scenario, the importance of the participation of women in local
government cannot be over-emphasised. Through such participation, women can
gender sensitive and able to support the empowerment of women. In this regard
local government becomes a crucial stage for the woman to develop a career in
both administration and politics (Gender Links, 2007). Against this background,
the paper aims to examine the role of South Africa in achieving the Millennium
Declaration, by focusing on Goal 3 that encourages gender equality and women
empowerment.
CONCEPTUAL FRAMEWORK
1997:97, Mackinnon, 1989:113; Nobelius, 2004:1; Alcoff, 2006:148; Dhoj,
2009:1) as a range of characteristics of feminity and masculinity. Depending on
the context, it may refer to concepts such as (male or female), social roles or behav-
108 109
S.D. Govender & S Vyas-Doorgapersad
Volume 48 number 1 | March 2013
Journal of Public Administration Journal of Public Administration
under representation of women in decision making structures in municipalities
Unequal gender relations further complicate these disadvantages (Gender Equality
in Local Government, 2010). The advancement of women into top and senior man-
agement levels in public sectors therefore remain a serious challenge facing organ-
isations (Bezuidenhout et al., 2008; Booysens, 2008, Zanoni et al., 2010). This
Local Government Departments and South African Local Government Association
-
can National Congress member Mr Maserumule expressed his dissatisfaction stat-
ing that “so much time [is] spent discussing, debating and eventually legislating but
implementation [is] lacking. Provincial governments [are] not taking gender issues
seriously. A strong message should be sent through the Speaker of the National
Assembly to Premiers as well as senior municipality managers to change”.
Sedibeng District Municipality: A Case-Study
The council of the Sedibeng District5 Municipality has acknowledged, in its
Annual Report (2007-2008: 39), that “in terms of the Employment Equity Act 55 of
1998, the Sedibeng District Municipality Council is compliant6 but fails to appoint
more women in top and senior management positions to achieve equity”. It is
against this background that the paper proposes to investigate the implementation
of gender equality policies in achieving Millennium Development Goal 3 in the
Sedibeng District Municipality.
The Sedibeng District Municipality is facing a challenge regarding implement-
ing gender equality policies required for achieving Millennium Development Goal
-
tive Council raising concern during the commencement of Integrated Development
Plan for 2008-2009 (Sedibeng District Municipality Integrated Development Plan
Report, 2010: 5), “that a lack of an Employment Equity Plan inhibits the Sedibeng
District Municipality’s ability to address gender equality”. The Sedibeng District
Municipality’s Integrated Development Plan (2010: 5) maintains the view-point
and upholds that “there is a lack of women representation in senior managers’
Authorities [CoGTA]) accepted the Benoni Declaration 2005 that highlights the
need to implement appropriate strategies promoting women representation and
participation at local governance. As a result of these initiatives the local govern-
ment legislations are enforced to accommodate the demands of women participa-
tion in local governance. The Local Government White Paper 1998; the Local Gov-
ernment: Municipal Structures Act 1998; and the Local Government: Municipal
Systems Act 2000, emphasize that women participation in ward committees, and
women’s needs during community participation must be considered.
There are major gaps in the implementation of gender equality in municipali-
ties. South Africa may have universally acknowledged theories and policies regard-
ing gender equality and skills development, but the lack of resources and integrated
co-ordinating framework with clear lines of communication and accountability is
likely to render the implementation of gender equality ineffective. Few or the
absence of support programmes to capacitate women is a serious hindrance in
achieving Millennium Development Goal 3 at municipal level in South Africa.
GENDER EQUALITY AND MUNICIPALITIES
Before 1994 women in South Africa were not provided with opportunities
(equal to those of their male counterparts) to express their managerial abilities
and expertise, particularly in public service management positions (Mello and
Phago, 2007: 145). Democratic dispensation followed by decentralized govern-
ment system has evolved the municipal governance for being responsible to the
needs of community members; improving the communication channels between
the government and governed; and creating opportunities for citizen participation
(including women) to participate in the affairs of municipal governance.
Since South Africa’s transition to a liberal democracy, its government’s efforts to
advance gender equality have been held up as a beacon of good practice across
the world. However, the reality of women’s experience in South Africa, especially
at local government level, have been much more complex and casts doubt on the
country’s celebrated gender achievements (Gasela, 2007: 1). The situation can be
corroborated with the admonition addressed in the Policy Paper on Women in
Local Government (International Union of Local Authorities, 1998: 1) that “until
the interests of women have been represented at the local level, the system is not
fully democratic”.
The research works reported by Human Sciences Research Council (Bruns,
2007: 1)) reveal the fact that “gender is [still] seen as a marginal issue within most
municipalities, and that women’s voices struggle to be heard”. While there is cer-
tain degree of female representation in some municipalities, they feel constrained
from taking up gender issues within existing structures. Although gender desks,
with the contributions from NGO’s and CBO’s, have been established at munici-
110 111
S.D. Govender & S Vyas-Doorgapersad
Volume 48 number 1 | March 2013
Journal of Public Administration Journal of Public Administration
DIBENG DISTRICT
MUNICIPALITY
WORKFORCE
DEMOGRAPHICS
2011-2012
MALES FEMALES
A C I W A C I W
Top management 19 3 1 2 5 - - -
Senior Management 35 - 1 11 13 1 2 4
Total number of employees 393 9 6 37 345 7 8 32
Total number of male vs females 445 392
Source: Compiled from Sedibeng District Municipality Annual Reports 2008, 2009, 2010,
2011, 2012.
FA: African; C; Coloured; I: Indian; W: White
The information stated in table 1 explores that the problems exist at the following
three levels:
* Total number of employees (male vs female): table 1 reveals the fact that males
are holding more positions than females. The average number of employees
between 2007 and 2012 employed in Sedibeng District Municipality is 53 % male
as compared to 47% female respectively.
* Top/senior management positions (male vs femle): table 2 (through the break-
down of table 1) details the statistics in the form of average and total percentage of
male vs female at the top/senior management positions.
Table 2: Percentage of male vs female at top/senior management positions
RACE 2007-2008 2008-2009 2009-2010 2010-2011 2011-2012
Male 73% 68% 71% 80% 74%
Female 27% 32% 29% 20% 26%
Number of top/senior
positions
64 113 130 130 97
Source: Compiled from Sedibeng District Municipality Annual Reports 2008, 2009, 2010,
2011, 2012.
Table 2 explores that from 2007 to 2012, the average of male occupying the
* Top/senior management positions (male vs female-per race): table 3 (through
top/senior positions per race group.
of the Sedibeng District Municipality support the concern, explored in table 1.
Table 1: Gender equality at Sedibeng District Municipality
SEDIBENG DISTRICT
MUNICIPALITY
WORKFORCE
DEMOGRAPHICS
2007-2008
MALES FEMALES
AFC I W A C I W
Top management 7 2 2 2 2 - - 1
Senior Management 19 1 1 15 6 - - 6
Total number of employees 324 8 7 53 317 6 4 37
Total number of male vs females 392 364
SEDIBENG DISTRICT
MUNICIPALITY
WORKFORCE
DEMOGRAPHICS
2008-2009
MALES FEMALES
A C I W A C I W
Top management 27 2 3 8 7 - - 2
Senior Management 26 - 2 9 18 1 2 6
Total number of employees 381 10 9 41 332 5 5 32
Total number of male vs females 441 374
SEDIBENG DISTRICT
MUNICIPALITY
WORKFORCE
DEMOGRAPHICS
2009-2010
MALES FEMALES
A C I W A C I W
Top management 27 3 2 8 7 - - 2
Senior Management 41 - 2 9 20 1 2 6
Total number of employees 408 11 8 42 351 6 8 32
Total number of male vs females 469 397
SEDIBENG DISTRICT
MUNICIPALITY
WORKFORCE
DEMOGRAPHICS
2010-2011
MALES FEMALES
A C I W A C I W
Top management 19 3 1 2 5 - - -
Senior Management 36 - 2 11 14 1 2 4
Total number of employees 409 11 8 40 357 7 8 32
Total number of male vs females 468 404
112 113
S.D. Govender & S Vyas-Doorgapersad
Volume 48 number 1 | March 2013
Journal of Public Administration Journal of Public Administration
implementation and determine the impact of policies and programmes designed
departments should be introduced”.
CONCLUSION
The paper deduces that the lack of training programmes and opportunities can be
-
ing the implementation of Millennium Development Goal 3 in [any] municipality.
It has a negative impact on women facing restrictions to explore their capacities to
attain the strategic portfolios. The capacitation is imperative for women empower-
ment and reducing the gender disparities/inequalities at work. In order to achieve
the Millennium Development Goal 3 in any municipality, the paper supports and
induce the empowerment approach that is vital for:
enhanced women capacities for improved women participation in deci-
sion-making status quo;
combat gender disparities evolving women to leadership positions;
enabling women to confront the strategic positions;
equip women to confront executive challenges; and
empower women with progressive outlook.
The reason regarding inadequate implementation of Millennium Development
Goal 3 at municipal level is also attributed to the lack of awareness at the political
bearers enabling them to strategize gender-sensitive policies. The policies must
incorporate the elements, viz. identifying women needs, abilities and skills; incor-
porating women issues in gender planning documents; planning the appropriate
The paper concludes that every municipality is required to conduct a gender-
sensitive assessment identifying the appropriate strategies for gender mainstream-
ing; evaluating the gender-based training opportunities; reviewing the implementa-
tion of gender equality frame-work(s); and proposing the empowerment approaches
in order to improve the challenges related to gender equality.
END NOTES
(Endnotes)
1 The Millennium Development Goals (MDGs) were adopted by 189 nations and
signed by 147 heads of state and governments during the United Nations Millennium
Summit in September 2000. The aim of the establishment of millennium development goals
relates to providing development to poor nations. There are eight millennium development
goals aiming to eradicate extreme poverty; achieve universal primary education; promote
gender equality and empower women; reduce child mortality; improve maternal health;
Table 3: Percentage of male vs female at top/senior management positions according to race
RACE
MALES FEMALES
A C I W A C I W
Average (in
%)
2007-2012
47.5 14.2 3.36 16.3 18.01 0.69 1.38 5.6
Source: Compiled from Sedibeng District Municipality Annual Reports 2008, 2009, 2010,
2011, 2012.
The statistics explore the fact that females in each race group (African, Coloured,
Indian and White) are under-represented at top/senior management positions.
-
-
view7 (06 August 2012). The Director acknowledged that the “current gender
equality implementation is off the mark due to barriers8 experienced”. The Director
-
grammes, but not in the areas of top and senior management” (personal interview,
06 August 2012). It can be deduced that there is gender disparity at the Sedibeng
District Municipality in terms of management positions, male vs female employ-
ment ratios, and appropriate training programmes for women empowerment.
Recommendations
Sedibeng District Municipality needs to review the gender equality policies and
District Municipality to conduct comparative assessment of their policies, identify-
ing the gaps of implementation, and strategizing appropriate policies to improve
the challenges. Referring to Women’s Empowerment and Gender Equality -A Draft
Policy Discussion Document for the City of Cape Town (2004: 13-16), the follow-
ing objectives can be applied as recommendations to improve gender equality
policies in the Sedibeng District Municipality, through: develop and/or realign their
of gender indicators; ensure that opportunities for development and empower-
ment are created and awarded to women candidates; amend and/or adopt new
human resource policies and procedures those will fast track the transformation of
the organisation towards achieving gender equality. The suggestions of the Com-
mission for Gender Equality Dialogue on the Millennium Development Goals
(2010: 2), can furthermore be considered, stating that, it is imperative to execute
“more reliable data capturing to ensure accuracy of statistics indicating gender in”
114 115
S.D. Govender & S Vyas-Doorgapersad
Volume 48 number 1 | March 2013
Journal of Public Administration Journal of Public Administration
Buviniq,M. Lycette and W. McGreevey (eds.), Women and Poverty in the Third World.,
pp. 14-31.Baltimore: Johns Hopkins University Press.
Commission for Gender Equality. 2010. “CGE- dialogue on the millennium develop-
ment goals (MDG): Gender Equality and Women Empowerment”. http://www.info.gov.za.
Accessed on 10 January 2013.
Co-operative Governance and Traditional Affairs (CoGTA). 2008. “State of local gov-
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Gender Development. Bangladesh: Dhaka University.
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combat HIV/AIDS, malaria and other diseases; ensure environmental sustainability; and
the development of a global partnership (refer to the United Nations Development Pro-
gramme [UNDP], 2012).
2 These countries are stated as case-reference due to the fact that these societies are
conservative in development thinking and holds male dominance in decision-making
structures at personal and professional fronts (see researches conducted by United Nations
Economic and Social Council, 2006; International Union of Local Authorities, 2007; and
International Research and Training Institute for the Advancement of Women, 2008).
3 Universal Declaration of the Human Rights (1948); the Convention on the Political
Rights of Women (1952); the Civil and Political Rights International Act (1966); and the
Convention for the Elimination of All Forms of Discrimination Against Women (1979).
4 The African Regional Plan of Action (1975); the Forward-looking Strategies (1985);
the Abuja Declaration on Participatory Development: The Role of Women in Africa in the
1990s (1989); the African Plan of Action (1994); a Decade Review of the Implementation
of the Dakar and Beijing Platforms for Action (2004); and Goals for the Advancement of
Women (2005).
5 According to the CoGTA Report 30 November 2008 (the latest statistics available as
yet), district municipalities have achieved less than 30% representation of women in senior
management. In Women and Leadership Positions: Social and Cultural Barriers to Success
– a situational analysis, Kiamba (2008:3) quotes that despite efforts made to ensure that
female representation is achieved at all levels of governance, women are still underrepre-
sented in many government and non-government organisations particularly in positions of
power and leadership. The Public Service Report (2008) states although strides have been
made and there is reason to celebrate the progress made regarding race representation,
there is a reason for concern about the progress being made with gender equality.
6 Compliant to legislative obligation for implementing equity at the workplace
7 A pilot study was conducted to ensure that there are challenges regarding gender
equality and women empowerment at the Sedibeng District Municipality. The interviews
held during the pilot study assisted the researcher to identify the municipality as a relevant
area of study, and establish a problem statement for exploration.
8 The social, economic, cultural and political barriers.
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