Representative bureaucracy : the place of Maori in New Zealand bureaucracy

Abstract

This thesis examines the level of Maori representation and participation in the New Zealand Public Sector in the context of wider government policies towards Maori. At the outset, the thesis points out that there is a strong case for modern bureaucracies being representative of the total population of the country. This means that governments may need to adopt policies that go beyond the avoidance of discrimination on the basis of racial, ethnic or religious origin. The thesis shows that Maori have been under-represented in the overall public sector, over-represented at the bottom and poorly represented at the middle and top echelons of the public sector, where the real responsibility, authority and power lie. Even in departments such as Social Welfare, where Maori comprise the bulk of the clients compared to other New Zealanders, their representation and participation has been very poor. Moreover, state policies over the years have done little to improve the relatively low socio-economic status of Maori. Nor has there been adequate promotion and encouragement of Maori representation and participation in the public sector. The recent major reforms in the bureaucracy were in the name of efficiency and economy, and little was done to promote Maori representation. Even after the introduction of policies such as EEO and Te Urupare Rangapu (1988), Maori are still under-represented in the overall public sector. Factors such as low socio-economic status, institutional racism and lack of educational qualifications have contributed significantly to the poor representation and participation of Maori in the bureaucracy. Government policies such as EEO and Te Urupare Rangapu (1988) have not really been effective in the short term because of factors such as lack of finance and manpower, lack of commitment to these policies by government agencies and poor communication. The thesis indicates that what Maori want is the eradication of monoculturalism and the establishment of a bicultural public sector which reflects Maori cultures and values in parity with those of Pakeha. Moreover, they want the equal representation and participation of Maori in the overall bureaucracy especially at the important decision and policy making levels. This thesis contends that modern New Zealand is founded by two people -- Maori and Pakeha and on this basis, it is imperative that the public sector be bicultural. In this way the Maori and Pakeha will have equal representation and participate together as partners in the decision-making policy implementation and service delivery of government. The concept of "equality" in this context is of course,problematic. To establish and promote biculturalism in the public sector, the thesis suggests that active recruitment and training of Maori through the provision of scholarships, establishment of bilingual positions (in Maori and English) in the public sector, provision of money and resources for those Maori who show willingness to work and study are of paramount importance. Moreover, the State Services Commission (SSC) must ensure that government policies and strategies introduced to promote Maori representation and participation in the public sector are effectively carried out by chief executives and and their departments. Also the SSC should ensure that the persons appointed as chief executives or to the Senior Executive Service (SES) are committed to biculturalism. Finally, the thesis suggests that the overall effectiveness and success of government policies towards the promotion of equal representation and participation of Maori in the public sector hinges on the quality of political and administrative leadership and commitment.