"This transformation charter will be much broader, addressing issues of gender, equality, access, and all of that," said Mbalula.
"Quotas became counter-productive. Where quotas have said that there must be three black people, some federations have actually ensured that exactly three people play - even if there are more than three black players in the squad, only three will play."
SARU President, Oregan Hoskins attributed the lack of transformation in rugby on "bottlenecks", saying that the clubs where not selecting enough black players.
"I can give you an endless list of why we have not got to where we are supposed to be," he said. "A fundamental reason why we haven't transformed in rugby is the schooling system."
"People talk about conditioning, dietary issues, discrimination in selection at senior level, clubs not being as open as they should be to black youngsters . these and many other issues are the challenges for rugby.We are committed to transformation, no matter what anybody thinks or feels to the contrary."
Hoskins said SA Rugby is talking to provincial rugby bosses to correct the problem.
"The problem has been at provincial level and that is really the bottleneck. We continue to urge to the provinces to embrace transformation so that the national coach can at least pick players knowing that he is not under pressure to meet national imperatives."
