Job-creation was a leading goal of government policy during the first decade of democracy in South Africa. However, little success has been achieved in the struggle to create sufficient jobs in the economy. Using the expanded definition of unemployment (which includes people who have given up looking for work), the unemployment rate was estimated to be 28.6% at the time of the transition to democracy. The most recent estimates (March 2004) find the unemployment rate to be 41.2% using the expanded definition, translating into 8.4 million unemployed people. This is according to a report from the Institute for Democracy in South Africa (Idasa).