Public Employment Programme in the Care Economy in South Africa
0-1 Original language
English
I-1 Name of the initiative
Public Employment Programme in the Care Economy in South Africa
I-2 Geographical coverage
ZAF
I-2-A Region/country
South Africa
I-2-R Region
Africa
I-2-T Geographical scope
Country
I-3-A Initiative start date
2002
I-4 Leading entity/organization
Government
I-5 Collaborating entities/organizations
Employer and Business Membership Organization
I-5 Collaborating entities/organizations
Workers' organization
I-5 Collaborating entities/organizations
Civil society, including NGOs
I-6 Has the ILO been involved in the initiative?
Yes
I-7 Is there collaboration with other agencies of the United Nations System or other partners?
No
II-1 Justification of the initiative
The EPWP was introduced in South Africa to address the pervasive challenges of high unemployment, poverty, and inequality, particularly in underserved and marginalized communities. A significant part of this challenge lies in the care economy, where there is a substantial reliance on informal, unpaid care work, especially by women, who perform a large portion of the caregiving tasks. The EPWP aims to create jobs in the social services sector and improve care standards and access across the country, while addressing the issue of underpaid and undervalued care work, particularly performed by women. It also aims to address the growing demand for services such as home-based care, early childhood development (ECD), and care for people living with HIV/AIDS, exacerbated by South Africa's high burden of disease and aging population.
II-10 Focus on other branches of economic activity
Construction
II-10 Focus on other branches of economic activity
Education
II-10 Focus on other branches of economic activity
Human health and social work activities
II-11 Focus on certain categories of enterprises or economic units according to their size
Micro enterprises
II-11 Focus on certain categories of enterprises or economic units according to their size
Small enterprises
II-12 Focus on specific status in employment
Employees
II-12 Focus on specific status in employment
Employers
II-12 Focus on specific status in employment
Own-account workers
II-12 Focus on specific status in employment
Workers not classifiable by status
II-13 Focus on other specific categories of workers and employers, not captured elsewhere
Domestic workers
II-13 Focus on other specific categories of workers and employers, not captured elsewhere
Community health and care workers
II-13 Focus on other specific categories of workers and employers, not captured elsewhere
Childcare workers (for children ages 0-start of primary school)
II-13 Focus on other specific categories of workers and employers, not captured elsewhere
Primary and secondary school teachers
II-13 Focus on other specific categories of workers and employers, not captured elsewhere
Personal care and/or assistance workers
II-13 Focus on other specific categories of workers and employers, not captured elsewhere
Nurses
II-13 Focus on other specific categories of workers and employers, not captured elsewhere
Social workers
II-13 Focus on other specific categories of workers and employers, not captured elsewhere
Long-term care / geriatric care workers
II-13 Focus on other specific categories of workers and employers, not captured elsewhere
Personal assistants / disability support workers
II-13 Focus on other specific categories of workers and employers, not captured elsewhere
Other health workers
II-14 Focus on specific groups of population / persons prioritized in the initiative
Women
II-14 Focus on specific groups of population / persons prioritized in the initiative
Men
II-14 Focus on specific groups of population / persons prioritized in the initiative
Mothers
II-14 Focus on specific groups of population / persons prioritized in the initiative
Fathers
II-14 Focus on specific groups of population / persons prioritized in the initiative
Persons with other care responsibilities
II-14 Focus on specific groups of population / persons prioritized in the initiative
Pregnant women
II-14 Focus on specific groups of population / persons prioritized in the initiative
Young people
II-14 Focus on specific groups of population / persons prioritized in the initiative
Indigenous and tribal peoples
II-14 Focus on specific groups of population / persons prioritized in the initiative
Ethnic and racial minorities
II-14 Focus on specific groups of population / persons prioritized in the initiative
People with disabilities
II-14 Focus on specific groups of population / persons prioritized in the initiative
People living with HIV
II-14 Focus on specific groups of population / persons prioritized in the initiative
Older persons
II-15 Has the initiative been developed through effective social dialogue processes and inter-institutional coordination mechanisms?
Yes, inter-institutional coordination mechanisms
II-2 Objectives and description of the initiative
The EPWP’s objectives in the care economy are aligned with both the creation of decent, skilled jobs as well as the improvement of access to care services:Job creation: One of the primary goals is to create employment for the unemployed by incorporating them into care services such as community-based healthcare, home-based care, and early childhood education.Skills development: The EPWP aims to provide training and skills development to participants, enabling them to either set up their own businesses or secure long-term employment in the care sector.Formalization of care work: By offering paid employment to those previously engaged in informal or volunteer care work, the EPWP aims to formalize and professionalize the care economy, ensuring that care workers are remunerated and recognized for their contributions.Improved access to care: The initiative works to ensure that vulnerable populations, including older persons, children, and people with chronic diseases, have access to better care services, especially in underserved rural areas.
II-3 Type of initiative
Programme
II-4 Which of the Rs in the 5R Framework for Decent Care Work guides this initiative?
Recognition, reduction and redistribution of unpaid care
II-4 Which of the Rs in the 5R Framework for Decent Care Work guides this initiative?
Reward care workers
II-4 Which of the Rs in the 5R Framework for Decent Care Work guides this initiative?
Representation of care workers
II-5 Which is the main policy area of the 5R Framework for Decent Care Work does the practice focus on?
Employment policies
II-6 Which other policy areas of the 5R Framework for Decent Care Work does the practice focus on?
Care policies
II-6 Which other policy areas of the 5R Framework for Decent Care Work does the practice focus on?
Skills policies
II-6 Which other policy areas of the 5R Framework for Decent Care Work does the practice focus on?
Macroeconomic policies
II-6 Which other policy areas of the 5R Framework for Decent Care Work does the practice focus on?
Labour Protection policies
II-7 Which policies or measures to advance decent work in the care economy does the practice focus on?
Design and implement integrated and coherent care policies and systems for decent work and gender equality
II-7 Which policies or measures to advance decent work in the care economy does the practice focus on?
Mainstream care into relevant public policies
II-7 Which policies or measures to advance decent work in the care economy does the practice focus on?
Promote employment and macroeconomic policies that create decent jobs in the care economy
II-7 Which policies or measures to advance decent work in the care economy does the practice focus on?
Formalization of informal care jobs and enterprises
II-7 Which policies or measures to advance decent work in the care economy does the practice focus on?
Promoting active labour market policies, education and training, upskilling and re-skilling, skills recognition and skills certification
II-7 Which policies or measures to advance decent work in the care economy does the practice focus on?
Addressing the undervaluation of care work by raising public awareness
II-7 Which policies or measures to advance decent work in the care economy does the practice focus on?
Invest in and make available high-quality, affordable, adequate and accessible care services, including childcare, health care and long-term care
II-8 Which beneficiaries in the care economy does the practice focus on?
Unpaid carers (workers or persons with care responsibilities, parents, other family members, etc.)
II-8 Which beneficiaries in the care economy does the practice focus on?
Paid care workers (nurses, domestic workers, teachers, childcare workers, personal assistants, etc.)
II-8 Which beneficiaries in the care economy does the practice focus on?
Care recipients (children, older persons, persons with disabilities, etc.)
II-9 Geographical scope
Urban and rural
III-1 In a short paragraph, summarize the main results and impacts obtained
The EPWP has had significant social and economic impacts in South Africa, particularly in the care sector:Employment Creation: From 2014-2018, the EPWP generated 254,000 full-time equivalent (FTE) jobs in the care sector, which represented 72% of the total FTEs in the Social Sector. This included key programmes like the Home Community-Based Care (HCBC), Early Childhood Development (ECD), and the National School Nutrition Programme (NSNP).Wages and conditions: The EPWP has created a new floor for wages and conditions in care work, with workers transitioning from voluntary, unpaid roles to paid positions, helping to formalize the care sector. Women, who predominantly perform care work, have benefited from this remuneration, helping address the long-standing issue of undervalued work.Improved skills and service delivery: The programme has facilitated the upskilling of workers in the ECD sector, providing them with accredited training that has improved the quality of care and early education services.Health impact: The EPWP has played a role in curbing the effects of HIV/AIDS and Tuberculosis by expanding home-based care services and ensuring better access to community health support.
III-2 Explanation of the innovative element of the initiative for advancing decent work in the care economy
Including care work in a Public Employment Programme (PEP) is innovative because PEPs have traditionally focused on hiring workers for infrastructure projects like construction. By incorporating care work, the EPWP challenges the conventional understanding of PEPs as primarily construction/physical works programmes. This shift recognizes the essential role of care work in sustaining society and the economy, while also addressing the gender inequalities that often result in care being undervalued and underpaid. Unlike traditional care models, where women's work is typically unpaid or underpaid and not recognized as part of the formal economy, the EPWP offers wages, job security, and training opportunities for care workers. The initiative also creates opportunities for career progression and skills development, which was previously rare in the informal care sector. This innovative approach not only addresses labour market inequalities but also enhances the overall quality of care services, creating a decent work environment for workers and ensuring that essential services reach the most vulnerable populations. The integration of minimum wage standards, contract renewals, and training programmes represents a shift from the traditional undervaluation of care work.
IV-1 What were the main challenges or difficulties during the design and implementation? How were they faced/ addressed?
While the EPWP has had significant successes, it has also faced challenges in previous phases:Underfunding: The social sector programme was often underfunded, which led to difficulties in ensuring fair wages, adequate working conditions, and comprehensive training. In some cases, this underfunding led to non-compliance with established minimum wage standards.Temporary contracts: The temporary nature of EPWP contracts (often renewed annually) created job insecurity for workers, which limited their ability to build long-term careers in the care sector. This issue was compounded by low pay, which did not reflect workers’ growing experience and skills.Poor administration: Irregularities and administration failures in some instances hindered the full potential of the programme, affecting its ability to maintain service quality and address workers’ needs effectively.These challenges have been progressively addressed in earlier phases. For instance, training programmes aim to ensure that participants gain skills that can help them to transition into permanent employment beyond the temporary PEP employment. The challenges are also being factored into the future planning of the EPWP.
IV-2 Lessons learned and good practices, including room and opportunities for improvement
Key lessons from the EPWP so far include:Comprehensive training: The provision of accredited training and the upskilling of care workers have been essential for improving both service quality and workers' long-term employability. This remains a good practice for enhancing care outcomes and empowering workers.Creating pathways for long-term employment: Temporary contracts need to be supplemented with pathways for permanent employment and career progression to ensure that the programme has long-term social and economic benefits for workers.Gender responsiveness: The programme has provided significant opportunities for women, addressing gender disparities in the care sector. However, there is still much work to be done to ensure gender equity in terms of pay and working conditions, as well as encouraging men to take up work in this area.Addressing funding constraints: A key takeaway is the need for more stable funding models to ensure the sustainability and scalability of the program.
IV-3 Key conditions for success
Key conditions for success include:Strong government support: Ongoing government commitment is necessary to ensure adequate funding, policy alignment, and coordination between various care service providers.Stakeholder engagement: Engaging both local communities and care workers in the design and delivery of services helps ensure that the program meets local needs and fosters community ownership.Comprehensive capacity building: Continuous training and skills development for workers ensure that they remain competitive in the labour market and that care services meet high-quality standards.
IV-4 Key conditions for sustainability
For the EPWP’s care components to be sustainable, key conditions include:Sustained government funding: Ensuring that funding continues at a consistent level to support the wages, conditions, and training needs of care workers.Integration with broader health and social care plans: Aligning the EPWP’s care initiatives with broader national development and care sector plans is crucial for maximizing its long-term impact as PEPs alone cannot fulfil the needs of the care economy.Policy and institutional support: Developing clear policies that integrate care workers into the formal workforce with protections like social security and healthcare coverage.
IV-5 Potential for transferability, expansion and replicability in other countries and contexts
The EPWP model in the care sector has significant potential for transferability to other countries facing high unemployment, gender inequality, and care service gaps. Other countries could adapt South Africa’s public employment model to their own social and care services. However, careful consideration of local contexts (including funding availability, gender dynamics, and care sector needs) is critical for successful implementation and scaling. In the case of replication, care PEPs should not be used to replace public long-term care service provision, and measures need to be in place to ensure standards are adhered to and exit paths, including alternative employment strategies, are available.
V-1 Sources of information and documents used on the characteristics of the initiative, including links to websites, news items, toolkits, policy documents or reports
Public Employment Programmes in the Care Economy: The Case of South AfricaEPWP website
V-2 Contact information of ILO focal point
Eva Majurin, Specialist on Inclusion and Resilience ([email protected])Maikel Lieuw-Kie-Song, Technical Specialist, Employment-Intensive Investments ([email protected])