Decentralization in Post-Apartheid South Africa

Abstract

Decentralization in South Africa was entrenched in the new democratic constitution of 1996 and charged local government with bringing basic and other services to the population. Our in-depth empirical study of 38 municipalities across South Africa indicates that the experiment with decentralization has largely failed to achieve its main aims—democratizing local government and delivering adequate basic services to all communities. In order to provide some answers to the question as to why this failure occurred, we focus attention on the legislative over-burdening of local government and its concurrent lack of institutional capacity to actually turn legal obligation and decentralization principles into practice as two of the main and related causes for this failure. While the South African constitution gave clear mandates to local government, the issue of adequate institutional capacity for municipal government was largely overlooked or ignored altogether.     

The unwinding of South Africa’s foreign policy

South African President Jacob Zuma's corrupt personalisation of foreign policy, systematic government mismanagement and rising xenophobia are marginalising South Africa in continental and international affairs. Restoring South Africa to its leadership standing will be a major priority for his successor and the next government.     

An assessment of reasons behind service delivery protests: A case of Greater Tzaneen Municipality

This article aimed at assessing the underlying factors behind municipal service delivery protests at Greater Tzaneen Local Municipality. South African municipalities also form part of concerned public entities in terms of service delivery backlogs and protests behind service delivery. Over the past few years, South Africa has experienced a large number of protests against poor and insufficient service delivery across most municipalities in various provinces. An increase in service delivery protests in South African municipalities, as regularly seen in various media platforms such as newspapers, television, and social media, makes it necessary for policymakers, government practitioners, and scholars to understand the underlying factors behind service delivery protests. This paper is also intended to assess if whether community members protest due to poor or sufficient service delivery. It is quite evident that some people take advantage of the protests to their best interests rather than protesting for better service delivery. To accomplish the aim of this paper, a desktop research approach was applied to validate the argument and to uncover the underlying factors of service delivery protests. From the literature perspective, it is learnt that poverty, political instability, corruption, nepotism, and lack of public participatory are underlying factors behind service delivery protests. Despite some of the success of the post‐apartheid South African government, the country still faces serious challenges of high unemployment, poverty, inequality, and political instability. These are some of the key factors that culminate in citizens on streets protesting or expressing their dissatisfaction over the problem of poor service delivery.     

US state government privatization: Implications for social equity and inequality?

Privatization of state government services is commonplace, but our understanding of its effects is limited by data availability. We study the relationship between American state government contracting and public sector wages. Governments have used public sector employment to support a variety of goals, including social equity and economic development, but privatization, as a new public management (NPM) reform, may shift the focus. Our empirical analysis shows that state privatization of service delivery is associated with decreases in the public sector wage premium, but that these effects are not driven by gender, race, or low-levels of educational attainment. The fidelity of the implementation to NPM values conditions these effects. We also find that contracting service delivery is associated with a lower public sector wage premium for middle-class workers.     

Public service delivery in South Africa: The political influence at local government level

This paper analyses poor service delivery at local government level, which is attributed to the politicisation of administrative components in municipalities, resulting in poor local governance. The public service delivery system has been perceived as one of the most important ways of reducing poverty through poverty alleviation programmes. As part of the South African government's cooperative system, key stakeholders in municipalities ought to adopt an integrated approach to public service delivery. An integrated approach to public service delivery demands that local municipalities, together with relevant stakeholders, integrate processes and services to ensure effective and efficient service delivery. This ultimately will result in an improved standard of living and sustainable livelihood for communities. With regard to public service delivery, local municipalities have the obligation of creating income opportunities people, especially the poor, with the sole aim of contributing towards poverty reduction and the realisation of the expectations of people, as stated in the South African government's White Paper of transforming public service delivery. The political interface in local municipalities greatly affects effective and efficient administration, as well as growth opportunities. Administrators, therefore, have the important function of ensuring that explicit assignments of objectives and administrative functions are wholly separated from the policymaking activities of government. This paper, therefore, suggests that municipalities adopt the merit system and abandon the spoils system that is highly characterised by political favours and political interferences. Political favours and interferences are dominant in local South African government, and they hinder the process of providing services equally.     

Mandelafying the public service in South Africa: Towards a new theory

A surfeit of service delivery disapprovals in South Africa is a clear reflection of the failure of the Public Service of South from the local, provincial, and national government to effectively and efficiently deliver service to its citizenry. The rise in a dissatisfied citizenry stems from a precise social realization, which envisions the failure of the state to deliver services to the public in an impartial, responsible, translucent, and befitting manner. This has resulted in widespread service delivery protests, which has become the most famous form of response to poor service delivery by frustrated citizens. This article argues for the mandelafication of the South African public service against the background of a cocktail of factors ranging from corruption, lack of transparency and accountability, incompetence, and lack of commitment to work ethics personified by Mandela. The article further argues for the upholding of the dominant constructs in which this mandelafication is grounded in such as proper ethics, humanitarianism, transparency, accountability, empathy, and selflessness, which characterized Nelson Mandela.     

Party Politics and the Common Good in Swedish Local Government

Local government in Sweden is usually classified as the northwest European type of local government, together with the local government systems of the other Nordic countries and Britain. In the 1990s and the early years of the new millennium, Swedish local government has been especially susceptible to the ideas of 'new public management' (NPM). At the same time there has been a long-ongoing trend of increasing party-politicisation of local councils. In this paper a selection of five local authorities are examined in order to see how party politics and party-politicisation are confronted by the new organisational doctrines. It is concluded that in this respect the doctrines guiding local government organisation can be characterised by three common traits: the legitimacy of particular interests is denied in favour of the common good of the locality; it is denied that conflict and competition between political parties perform any democratic function; finally, when it comes to the relation between politics and administration there is a common confession of the management-by-objectives doctrine. Somewhat surprisingly, these three principles guide organisation and politics not only in those authorities most enthusiastically adopting NPM but also in the authorities implementing organisational reforms based on more communitarian principles and even organisationally conservative municipalities not even considering any organisational change. One interpretation of this contradictory observation may be that NPM concepts and ideas have also found their way into local doctrines that are based on quite different principles. Another interpretation is that there is a consensus tradition in Swedish political culture that can also account for similar results in municipalities not explicitly introducing an apolitical organisation doctrine.     

Financial planning in metropolitan municipalities—lessons for South Africa from selected countries

In South Africa, municipalities are central to government's service delivery efforts to its communities. Because of inadequate revenue collection processes or impoverished communities that are unable to supply necessary operational revenues, both national and provincial government need to transfer funds to the local government to achieve delivery of priority services and economic development infrastructure. This study investigates, through a desktop study, the best financial planning practices for municipalities to implement in order to be financially viable, by reviewing and comparing the legislative and legal frameworks relating to financial planning and the financial planning practices in Australia and New Zealand, whose legislation served as an example for the drafting of current South African legislation. Copyright © 2014 John Wiley & Sons, Ltd.     

Post‐1994 South Africa's peacekeeping and military intervention in Southern Africa,reference from the Democratic Republic of Congo (DRC) and Lesotho

South Africa, once a pariah state as a result of the apartheid regime destabilization policies in Southern Africa, became a full fledge democratic state following the victory of the African National Congress (ANC) in the first and all‐inclusive democratic elections of 1994. The ANC's vision for Southern Africa was to be routed on the notion of curbing the imbalances of the past (pre‐1994), which had cost the Southern African region great economic loss. Here, one of the many fundamentals that were to drive the ANC's foreign policy doctrine was that of conflict resolution for a more stable and prosperous Africa particularly Southern Africa. Conflict resolution was viewed as a pivotal element for the new democratic government in order to stimulate beneficial relations with other African states post the apartheid era. In light of the above, and using a qualitative method approach, this paper draws a nuanced appraisal and examines the role of South Africa's peacekeeping and mediation initiatives in the Democratic Republic of Congo (DRC) and Lesotho post‐1994. In conclusion, South Africa has been able to utilize its regional hegemonic stance to ensure regional security while ensuring economic stability at home.     

New Millennium,New Public Management and the New Zealand Model

Recently the much‐discussed ‘New Zealand model’ of new public management (NPM) has become significantly revised. It now lacks the theoretical coherence and the market‐led focus that it relied on between 1987 and 1996. Labour‐led governments since 1999 have undertaken gradual and pragmatic – yet significant – changes in public management structures and principles, refining and sometimes reversing the model implemented in the late 1980s and early 1990s. This article does a ‘stock‐take’ of public management developments in New Zealand from 1999 to 2008, and argues that New Zealand can no longer be viewed as a leading exponent of market‐led NPM. Some NPM principles have been refined, but others have been quietly abandoned. The new National‐led government appears unwilling to undertake radical reforms, and, while it may seek a greater role for the private sector, looks set to continue with the ‘gradual and pragmatic’ approach adopted since 1999.     

Human rights and development: the case of local government transformation in South Africa

Local governments throughout the world are assuming a more important role in economic development of their communities as an increasing number of governments begin to decentralise powers and functions. As these lower levels of government seek sustainable local economic development (LED) strategies the human rights approach towards development becomes pertinent as globalisation accelerates. This article proposes an emphasis on socio‐economic rights as the basis for sustainable LED in developing countries. The article is based on the experience of South African local government in the period after 1994, leading up to the first democratic local government elections on 5 December 2000. Proceeding from the view that the promotion of human rights is necessary for the promotion of economic development, the article critically assesses the role of local government in the promotion of LED through a rights‐based approach. It is argued that the identification in the South African Constitution of local government with basic service provision (recently emphasised by a Constitutional court judgement) will place socio‐economic rights at the centre of LED strategies in South Africa. It is argued that this is indeed the most appropriate cornerstone of LED in South Africa. However, the transformation process that leads the country towards its progressive Constitution needs to be maintained and this article identifies five broad areas for transformation that may still be needed to entrench an adequate human rights culture within the sphere of local governance. Copyright © 2007 John Wiley & Sons, Ltd.     

Fiscal Federalism in South Africa

The constitutional change in South Africa in the 1990s broughtabout the decentralization of substantial budgetary responsibilityto newly created provincial governments. This study capturesthe new assignment of functions and resources to the differentspheres of government in South Africa and provides an assessmenton the basis of a framework derived from fiscal federalism principles.It concludes that there is a substantial congruence betweenwhat can be viewed as theoretically desirable and what is outlinedin the South African Constitution of 1996, but observes significantdivergences between the Constitution and actual practice.     

Local government reform in South Africa: An analysis of financial management legislative compliance by municipalities

South African local government has undergone radical transformation. The reform process included a local government financial management best‐practice technical assistance programme (MFMTAP) targeting financial management and especially budget quality reform. Dollery and Graves (2009) earlier examined the efficacy of the South African National Treasury (NT's) municipal budget funding compliance technique for measuring adherence to the Municipal Finance Management Act's (MFMA) budget funding requirements using a single metropolitan municipality case study. This article further evaluates the robustness and validity of the funding compliance instrument as a reform performance measurement tool by comparing the results of four geographically and demographically different municipalities. Also introduced is a performance ‘trend’ instrument similar to a ‘Likert scale’ for comparing municipal performance. Optimal tax revenue theory is invoked to examine this key revenue variable for producing a compliant budget. The article finds the ‘budget funding’ reform component of the Best‐Practice Technical Assistance (BPTA) programme presently ineffective and unsustainable. Copyright © 2009 John Wiley & Sons, Ltd.     

The New Managerialism and the Policy Influence of Consultants in Government: An Historical–Institutionalist Analysis of Britain, Canada and France

Following the rise of the New Public Management (NPM) in the 1980s, policymakers increasingly mobilized management consultants from the private sector in the course of reforming their bureaucracies. To describe this situation some coined the term "consultocracy," assuming that the emergence of the NPM created a growing demand for business management expertise in government circles that allowed consultants to penetrate the state and become powerful policy actors. Rather than taking these matters as given, I ask how has it been possible for consultants to become (or not) influential players in the process of administrative reform. It is argued that Britain, and to a lesser extent Canada, have been more likely than France to give rise to a "consultocracy" when implementing NPM reforms in the 1980s because in these two countries, management consultancy emerged earlier and is more strongly developed than in France because of its historical link with accountancy. Whereas French consultants only began to enter public administration in the 1980s, British and Canadian consultants have been involved in the last 30 years in the construction of the state's management capacities. Through their participation in these institution-building processes, they established networks of expertise with the state and acquired the experience of work in government. Over the years, this created opportunities for consultants to make their voices heard in the inner circles of decision-making and made possible the exercise of influence that they are now said to have on policy.     

Recentralization and vertical alignment in the French health‐care system

In foreign exemplars, key new public management (NPM) features such as decentralization and devolution of health‐care responsibilities had outcomes below expectations. Other NPM traits such as the patient as overseer of reforms or the empowerment of patient remained elusive. In France, the integration of public values such as greater participation of patients and local actors (NGOs and elected officials) and NPM‐driven private values such as performance evaluation has yet to be seen. Taking advantage of NPM's failings and austerity agenda, a French welfare elite regained control over health‐care policy decisions at the expense of regions and other local actors. NPM outcomes were below expectations. Austerity cures led to weakening of the regional decision spaces, which can be explained under the principal–agent relationship. Accountability shifted to managerial (the professionalization of hospital managers) and legal (governance via regulations) forms in a bid to restore central government control. A democratic recess results from the lack of public engagement in recent health reforms.     

New Public Management in Swiss municipalities

Swiss municipalities are being stretched to their limits. In the years from 1995 to 1997, 32% of all Swiss municipalities closed with a deficit. In response to this situation, numerous reforms have been introduced since the start of the 1990s in order to improve the performance capability of the municipalities. Aside from intermunicipal cooperation, New Public Management (NPM) is the reform project that is currently being discussed most in the Swiss municipalities. Recent data shows that every fourth municipality has already taken first steps with NPM. Many kinds of activities are understood as being encompassed by NPM, even when not all aspects of NPM are implemented. Only one fifth of the municipalities that have introduced NPM are already working with key elements such as product definitions, performance agreements, and global budgets, which are necessary for an orientation toward output and outcome. In municipalities of less than 1,000 inhabitants NPM is still hardly an issue, while a number of towns with over 10,000 inhabitants are looking into NPM quite intensively. NPM programs are being developed primarily in municipalities that are part of German-speaking Switzerland. Municipalities that offer a wide range of services consider new steering models, such as NPM, far more frequently than those with a narrower range. The financial situation has little influence on whether NPM is introduced.     

Restructuring non‐metropolitan local government in South Africa

South Africa's first local government elections held in November 1995 and June 1996 cemented the transition from apartheid to democratic local government. The focus at that time was on the deracialization and democratization of local governance, which was successfully achieved. Local government since then, however, has failed to fulfil its mandate as the delivery arm of government, nor has the hoped‐for rapid transformation of the local sphere of government materialized. In seeking an explanation for this perceived inadequacy, attention has tended to focus on the limited financial and administrative capacity of newly elected councillors and council staff. Although the lack of capacity does present a barrier to the achievement of effective local government, the constraints municipalities encounter in their geographic composition and administrative formation provide the structural dimension of municipal constraint. The White Paper on Local Government published in March 1998 seeks to address these structural constraints and, through an ambitious legislative process, chart a path to ‘developmental’ local government. This article identifies the constraints experienced by non‐metropolitan municipalities and analyses the likely impact of the government's restructuring programme for the achievement of viable and sustainable local government in South Africa. Copyright © 1999 John Wiley & Sons, Ltd.     

Citizen perceptions of public management: Hybridisation and post‐new public management in Japan and New Zealand

An older body of research claims variously: a world‐wide transformation from new public management (NPM) to new public governance or post new public management (post‐NPM); a ‘layering’, where new management rhetoric and techniques are layered upon existing ones; or a ‘hybridisation’ synthesised from competing systems. More recent studies, particularly in central and Eastern Europe, suggest a nuanced and context‐specific degree of transformation. Influenced by a growing research interest in citizen perceptions of public management, this study expands this more nuanced approach by surveying local government public management perceptions of 1,140 New Zealand and 3,100 Japanese citizen online survey respondents. Using principal component analysis, we show both New Zealand and Japan exhibit degrees of hybridisation of public management paradigms, with Japan exhibiting a higher degree of eclecticism.     

Traditional Leaders and the Culture of Governance in South Africa

The global neoliberal economic and political order impregnated the emergence of democracy in South Africa. One of the hallmarks of this order is that the capacity of the state to transform society is constrained, particularly in the rural hinterlands. The incapacity of the state to extend its grip, both economically and politically, has provided traditional leaders with an opportunity to both recast themselves as intermediaries between state and society and elevate themselves to decision makers on behalf of large communities. The article examines the way in which traditional leaders have repositioned themselves in the new democracy, what their source of support is, and why the African National Congress government has come to support these efforts.     

An exploratory study assessing compliance among municipal controllers and the possible explanations for their degree of compliance

Municipal controllers are sometimes confronted with requests from managers that contradict with the legal provisions. This raises the question how municipal controllers deal with these requests and whether this would impact their compliance. This article is a result of an exploratory study assessing compliance among municipal controllers and the possible explanations for their degree of compliance. The study has focused on one specific provision concerning accrual accounting, one of the elements of new public management (NPM), which is prescribed for Dutch municipalities. The study is based on a survey in 22 municipalities. The results show that the majority of municipal controllers who participate in this study deviate from this legal provision. There might be a relation between the orientation of the controllers and the degree of compliance. The position of the controller within the municipality can be a significant factor explaining this orientation. However, the size of the sample is too limited to generalize. The conclusions of this study undermine the idea that municipal controllers should act as business partners to the management. Finally, the study reveals a paradox: while one of the main elements of NPM is to shift more responsibilities to decentralized managers, this shift can lead to an increased principal‐agent problem, leading to a lesser degree of compliance.