Is the emphasis on local governance in South Africa is merely part of the neoliberal project to divest

the central states responsibilities or is it a genuine attempt to devolve powers to and democratize local
communities and local government?

Introduction
Post- Apartheid South Africa has witnessed a proliferation of local governance with major

emphasis placed on the participatory role of civil society as a necessary instrument for the

attainment of democracy, governance and sustainable development. This is clearly indicated by

the intensity on which the importance of civil society has been heralded through mediums such

as the media, newspaper and speeches of local politicians. But what is interesting to ask is why

place such enormous emphasis now. This paper shall answer this question. It shall argue that

such emphasis on civil society is aids for democracy especially in an era were democracy is

seen as a barometer for good governance. This is also due in part to the fact that civil society

participation has been noted as a shotgun approach of controlling the use of power by the state.

Furthermore with neo-liberalism being a prominent discourse due to globalization, civil society

participation is also seen as a means by which the government can divest its central

responsibility of service delivery to civil society organizations such as NGOs. This paper shall

argue that the emphasis on local governance in South Africa is for the attainment of the twin

goals of both democracy and diversification of its state responsibility.

This paper shall be divided in five sections. Section one shall attempt to offer a comprehensive

definition of civil society, section two shall look at civil society under the apartheid regime;

section three shall focus on civil society in the post apartheid era and the consolidation of

democracy, section four shall focus on civil society and the neoliberal agenda, section five such

offer a critic of civil society in South Africa.

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Section One: Molding a comprehensive definition of civil society.

Civil Society, it is difficult to say the word without experiencing a slight degree of confusion.

This is because too many definitions have been splashed in textbooks such that it is difficult to

reconcile with the word. This is however not to discredit the importance of the subject, on the

contrary, it continues to draw great interests among academics. What then is civil society?

Habib (2005: 673) defines civil society as “the organized expression of various interests groups

and values operating in the triangular space between the family, state and the market. The

explanation views civil society as a concept that is separate from the state and the market

(Haibb, 2005: 673). Kafir notes that in its broadest sense civil society can be noted as

“including all public political non state activity occurring between the state and family. Walzer

(1991: 293) notes it as involving voluntary action and association made for the benefit of the

family, faith interest and ideology. This definition according to Kasfir (1998:3) is positive for it

has the advantage of receiving spontaneous action by the people through strikes and

demonstrations. However it is according to Kasfir problematic assessment as it is difficult to

construct the effect of informal activities in effecting state response.

Bayart (1986: 11) sees civil society “provisionally” “as society in its relation with the

state…..in so far as it is in confrontation with the state” Kasfir notes this definition as

problematic and asks the question whether civil society will seize to exist in the absence of

confrontation. Given all the definitions it is apparent that there is no consensus of what civil

society is. It thus can be drawn that civil society is an elusive concept, thus offering a “cut

throat” definition is challenging. The concept has however been used in a broad sense to

include all the organizations that exist out of the confines of state authority. In the words of

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Atkinson (1996:288) it includes a variety of organizations such as the scientific literary

organizations, sports clubs, private school publishers, churches and manufacturing enterprises

which can challenge the authority of government and at the same time curb its influence

through divesting the power of the state into the hands of civil society and in essence promote

democracy. On that note it is important to ask what the nature of local governance during the

apartheid era.

Section Two: Civil Society and Local governance under apartheid.

Under apartheid local governance was interim in nature. Civil society existed in opposition to

the regime policies which were non democratic since they exclude the bulwark of the black

population from policy making decisions. Council during this time was made up of white

representatives who made decisions on behalf of the whole population. According to Reddy

(1999:201) the record of ethic authorities which existed during this period was one of political

controversy, administrative constraints and financial shortfalls. In the words of Habib (2005:

672) the adversarial collaborative divide largely took a racial form with the bulk of “white civil

society” establishing relations with the state while the “black civil society” adopted a

conflictual role of engagement. As a consequence in the words of Atkinson (1996: 290) there

was a strong sentiment against “anti-statism”, disillusionment with parliamentary democracy,

the welfare state and the alienation that emanated thereof. Because of this there was a great

divide within civil society with dominant elements in civil society either supporting the

apartheid regime or opposing it (Habib, 2005: 674).Habib notes that there were serious

punishment for the opposition of the state regime. With such immerse measures taken it is no

surprise that during this time there rose up anti apartheid organizations like unions and an array

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of other organizations that were associated with black consciousness (Habib, 2005: 674).A lot

of informal groups such as street communities, block communities and organizations of street

power also made the bulk of “black civil society” to contest non democratic representation.

From this it can be concluded that civil societies during this period were progressive forces that

participated in the apartheid struggle.

Section Three: Civil Society in Post- Apartheid South Africa and the
Consolidation of Democracy.

The end of apartheid ushered in a new era of civil society participation in policy formulation.

Civil society came to be viewed as a necessary instrument for the attainment of democracy.

Kasfir(1998:1) notes that it was only going to be through civil society participation that most

African states where to become more democratic ,more transparent and more accountable. Civil

society would be necessary for the achievement of this democracy as it will be confronting state

authority and limiting the exercise of its power. Such limitation of state power would be derived

from the fact that power would be vested in the hands of civil society. Against this backbone

the existence of an active civil society in South Africa is crucial for the vitality of political

democracy.

According to Steyler et al (1998: 119) the emphasis on local governance in South Africa is

about good governance and moving beyond the government control and regulatory function

towards a proactive and facilitatory role that unleashes creativity. Good governance can thus be

achieved through democratic representation by civil society through policy formulation which

ensures a proper balance between representative and participatory democracy. The Constitution

of the Republic of South Africa in relation to participatory democracy urges local governments

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“to encourage the involvement of communities and community organizations in the matter of

local government”.

Because of the importance placed on civil society in post apartheid South Africa and its

Constitution it is therefore not a surprise that civil society strengthening has become a central

part of democratic promotion. This can be expressed by how huge sums of funds have been

directed towards building development and sustaining the institutions of civil society. This

emanates from the belief that civil society is the bulwark against the monstrous state and a

counterweight to state power (Ishakanian, 2007: 59).

Having emphasized the democratic disposition of civil society in post apartheid South Africa

how then does civil society now compare to that under apartheid.

Civil Society under apartheid was centered on service delivery as opposed to democratic

orientation. However according to Jagwanth (2003: 15) the emphasis on local governance now

is one that ensures that the government is in touch with civil society in terms of its policy

making decisions. In this way government ensures that reconstruction, transformation and

delivery of services is achieved through combined efforts (Jagwanth, 2003: 15). What further

attests to democratic orientation now is the inclusion of outside organizations such as NGOs,

informal based communities and formal groups in policy formulation (Mhone &

Edigheji,2003 : 263). From this assessment a further distinction between the two can be noted

that under apartheid civil society was anti-statism and opposed governmental formulations.

Civil society now is more pro government. This can be seen in the collaborative balance

between civil society and the government (Jagwanth, 2003: 10).This is clearly is shown by how

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the ANC led government soon after gaining independence consulted with the public about the

constitutional making process.

Section Four: Civil society and Neoliberal thinking.

The previous section noted how local governance is important for the achievement of

democracy. However the importance of local governance for the achievement of democracy

should not be overstated. The government’s emphasis on civil society can also be a means for

divesting its responsibility. Pardaig Carmody presents the argument that civil society plays an

important neoliberal focus for the reduction of poverty. In this way government can ensure that

sustainable development is achievement through divesting its power to NGOs who can reach

the population at the periphery of the state. How then is this done? Carmody attests that this can

be achieved by civil society playing an important role in poverty alleviation (Carmody,2007 :

58) Through such initiatives civil society can save a neoliberal social function of improving the

welfare of the poor. Various mechanisms can be taken to achieve poverty alleviation.

Civil society can help limit the responsibility of the state through the direct provision of

economic and social services. This can be done through employing methods such as rotating

savings and credit associations (Carmody, 2007:58 ).In South Africa rotating savings and

credit associations can be found in small clubs or associations such as Stokvels which offer a

helping hand through members putting funds together and giving it to one of the members for

the month. The funds can then be used for the acquisition of basic needs and for funerals. In

South Africa civil society has also aided in poverty alleviation through the setting up of small

associations such as burial societies which according to (Carmody, 2007:58) “insure against

‘life shocks’ such as death.

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NGOs serve a neoliberal function of aiding social services through the provision of famine

relief programs(USAID), community development(GADRA) and the provision of Health

advice(Raphael Centre).This is because NGOs are quick to reach the public for are in direct

link with the society(Carmody, 2007:58).

Civil society can further serve a neoliberal function by contributing to poverty alleviation

through governance. According to (Carmody, 2007:59) this can be achieved through ensuring

that the state is held responsible for its actions. This is done through the construction of checks

and balances which limit state autonomy and the confinement of power in the hands of a few

individuals.

The third mechanism according to Carmody can be expressed through the important role that

civil society can play in reducing poverty in the neoliberal plan through the development of the

abstract concept of social capital (Carmody, 2007:60).Social capital refers to systems and

practices that make it possible for the realization of collective action. This divests the

government of its responsibility since it reduces enforcement and transport costs. Moreover it

becomes easy to mobilize people who can be agents of social and economic change through the

efforts of civil society. Government is thus excluded from taking part in such a cumbersome

task. Social capital is thus imperative since it according to the World Bank also provides social

cohesion (limiting the responsibility of the government to unite the people-limiting conflict).

From the above it has been notes that local governance through civil society participation serves

the neoliberal function of limiting state responsibility. Through this lessening of state

responsibility the state is able to be effective in the achievement of its goals. Moreover such

neoliberal function is linked to democratic function. From this one can conclude in this section

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that the advent of globalization around the world bought with it neoliberal measures for the

active achievement for the effective fulfillment of goals.

Section Five: A critic of local governance in South Africa.

Local governance in South Africa is important for the achievement of democracy in addition to

serving a neoliberal agenda which is thought to be the best way for the effective running of the

state. However, is there what we call civil society in South Africa? I am of the opinion that civil

society is but a superficial concept, great in theory but absent in practice. This can be

assertained from the fact that the majority of the populations have been ignored in the major

policy measures. Groups such as women and marginalized groups have completely been

sidetracked .An example of this is how in policy formulations of poverty reduction papers

(prsps) consultation has completely not been taken on these groups.

Furthermore NGOs in post-apartheid South African have come to represent civil society. This

therefore disregards the notion that there is democratic representation since they lobby for their

own agendas at the expense the masses. This point is however not disregarding the central role

they have played in development but merely making an observation. People- centered

development in this regard is nothing but an illusion.

In conclusion this paper has demonstrated that local governance serves a democratic function of

empowering civil society. It also serves to offer individuals an opportunity of getting things

done for themselves. This has consequentially made civil society aware of the state. Added to

this is the application of a neoliberal function which serves the function for the effective

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running of the state. South African local governance has thus pursued these twin goals

concurrently to promote both democracy and sustainable development.

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