Address to the SANC Local Government
Conference, 30 July 1999 Johannesburg
Master of Ceremonies
SADC Secretary General, Dr. Kaire Mbuende
SADC Ministers and Deputy Ministers of Local Government
President of the International Union of Local Authorities,
Mr. Patrick Wanyeraw
President of the African Union of Local Authorities,
Colonel Max Ngwandwe Mayors
Delegates
Distinguished Guests
Ladies and Gentlemen:
I am pleased to be here to address this important occasion.
This conference on local government within the SADC
community is a truly landmark event, and I would like
to congratulate the Ministers and their delegations
from the Southern African region for coming together
to discuss ways to promote regional co-operation on
local government matters.
In the narrow sense of the word, and to some people,
local government refers to a municipality like Johannesburg
or London or New York which has a high tax base and
a functional economy.
In the broad sense of the word, local government refers
to people at the local level, a locality, be it a cosmopolitan
town or a remote village where there are rules and regulations
governing spatial development, economic activity, law
and order, and people-to-people relations. Local government
relates to any society where people reside and interact
and have rules dealing with transactions.
In every local authority area, there should be democratic
systems of governance, the genuine empowerment of the
people, wherein all people decide who their leader are,
where people participate actively in matters affecting
their daily lives, where there is a social contract
of service delivery and payment thereof.
Perhaps the most appropriate understanding of local
government is that it should be a dynamic system of
governance whereby power resides with the people of
that locality and the municipal authorities are themselves
the hands and feet of government as a whole.
Affirming the developmental vision of local government,
Bennington and Hartley make the following observation:
There is a growing recognition of the fact that a democratically
elected local authority can have a wide range of direct
and indirect impacts on its area if it consciously harness
and uses three distinct roles:
its traditional social role in distributing, administering
and delivering services to its users;
a more active economic role in stimulating and developing
the local and regional economy;
a political role in representing and giving voice to
diverse needs and interests within the local economy.
In recent times, our continent and our region, have
made a great deal of progress in terms of democracy
and the deepening thereof. This is laudable, because,
in this way, we give voice to these diverse needs and
interests within a local economy. But the acid test
will be the extent to which ordinary people at local
level are able to take decisions on the manner in which
their streets, their blocks and their entire areas,
as well as their schools, clinics and farms are run
and managed.
For that we should ensure that people at a local level
are so empowered that no person, however powerful, can
come and impose undemocratic decisions, that we need
to create new, confident, hard-working and enthusiastic
local government activists who will be catalysts in
the reconstruction and development of communities.
This African renaissance, that we have so often talked
about, must reach the most remote areas of our countries,
such that it is owned by ordinary people. Then we would
create truly humane cities, towns and villages in the
process, places in which we will be proud to say we
live here; this place belongs to all of us.
We forget that even in earlier times structures of
local governance existed here in Africa. In studies
carried out by Meyer Fortes and E.E. Evans-Pritchard,
two main types were identified:
One group, which we refer to as Group A, consists of
those societies which have centralised authority, administrative
machinery, and judicial institutions - in short, a government
- in which cleavages of wealth, privilege and status
correspond to the distribution of power and authority.
This group comprises the Zulu, the Ngwato, the Bemba,
the Banyankole, and the Kede. The other group, which
we refer to as Group B, consists of those societies
which lack centralized authority, administrative machinery,
and constitutued judicial institutions - and in which
there are no sharp divisions of rank, status, or wealth.
This group comprises the Logoli, the Tallensi, and the
Nuer. Those who consider that a state should be defined
by the presence of governmental institutions will regard
the first group as primitive states and second group
as stateless societies.
(African Political Systems, 1940: 5)
In a more recent study, W. Ole Ntimama comments that
African societies had a system of governance which brought
communities together, which encouraged "common
needs, common aspirations and a common purpose":
"Most African societies were ruled by groups of
elders who were usually elected by consensus and who
were entrusted to making major decisions on political
and social affairs that affected the community. It is
important to understand that modern democratic institutions
use consensus as a method of choosing their leaders.
Consensus means the cooperative decision reached by
all: it does not mean that everybody is completely satisfied
with the final outcome, but, rather, that they always
agree to agree. In most African societies, these elders
met at regular intervals to regulate and coordinate
the way the society should be governed. They passed
laws, administered justice and had a system of punishment
for members who broke the law.
The Maasai community had a council of elders which
was elected through the process of consensus. It was
the parliament of the community. The elders formulated
the laws which regulated the activities of everybody
who was a member of that society. The Maasai had a well
organised miltiary system which took care of the community's
security. The moran regiments were under the direct
authority of the council of elders who could order the
morans to raid cattle from the enemies in order to replenish
livestock, which was the basis of their economy. The
women and the youth were allocated specific functions
which they performed for the general welfare of that
society. It is important to emphasise that African societies
were democratic before colonialism and that most of
these societies could be called nations."
(Traditional and Contemporary Forms of Local Participation
and Self-Government in Africa in Traditional and Contemporary
Forms of Local Participation and Self-Government in
Africa: 1997: 25-26)
Need I remind you that these democratic forms of governance
were largely dismantled by colonialism and replaced
with an authoritarian system of governance, whereby
Africans were not given a say in their socio-political
and economic life.
Part of the colonial legacy was the local system of
control and separation of the people from the exercise
of power through indirect rule exercised by the colonial
power. These structures were imported from the colonial
home countries, but were applied as mechanisms to strengthen
the system of colonial power and entrench the inequalities
that were fundamental to the exploitation of Africa
and her people.
So it was that we have inherited the particular systems
that make up the separate traditions of local government
in Anglophone, Francophone and Lusophone countries.
As the tide of liberation has swept through the sub-continent,
so we have each had to grapple with the task of transforming
these structures of local oppression and control into
new tools of liberation and upliftment of our people.
It is this task of transformation which binds us together
in a historic duty.
How do we turn the wide variety of local and distinct
municipal structures we have inherited from the colonial
era into dynamic institutions of local democracy which
can address the impoverishment and disempowerment of
the African people?
Many of our SADC neighbours have been grappling with
this task for two or three decades, and your experiences
and accumulated wisdom will enrich those of us who have
come to this task later in the century. But one thing
is clear from this experience, and that it that the
task of transformation is both long and arduous.
There is a renewed interest in local government sweeping
across the African continent. This is informed by a
common recognition that the system of local democracy
enriches the overall project of national liberation
and democratisation, and that decentralisation of government
power to the appropriate local level actually strengthens
government through rendering it more effective. There
is also a common commitment to the notion of developmental
local government, with a focus on the strategic role
of local government in promoting social and economic
development at a local level.
We have, I believe, a large number of local government
initiatives in the Southern African region which have
highlighted the potential impact of this new approach
to local government. Partnerships with communities,
NGOs, private developers, international development
organisations and traditional leaders are amongst the
rich body of experience from the Southern African region
which have steered us in this direction.
These partnerships have taught us that through mobilising
the resources of communities and the private sector,
we can, even with limited resources at our disposal,
make a significant impact on addressing poverty and
service backlogs. In this way, on the basis of these
innovations and best practices, we can make a firm commitment
to the partnership approach as a central pillar of our
local government strategy.
In line with this new approach to partnerships, there
is I believe a paradigm shift taking place in the way
we view tasks of infrastructure delivery. While we are
all too familiar with the lack of basic services and
infrastructure which characterise our countries, we
are also acutely aware that some of these infrastructure
projects have collapsed because they were not properly
operated and maintained. Sustainibility has to be the
watchword in all our enterprises.
The shift towards fiscal decentralisation, wherein
we create the environment for municipalities to take
responsibility for financing and operating their own
infrastructure investments, is gaining ground.
At the regional level I am aware that there are a number
of SADC member countries in partnership with development
banks, augmented by the work of the African Development
Bank. We can now contemplate the possibility of a network
of development finance institutions in the region being
able to facilitate the financing of municipal service
delivery.
Innnovations in service delivery mechanisms also allow
us to present bankable projects to the market. In South
Africa we have been able to craft new partnerships at
local level in municipalities such as Nelspruit and
the Dolphin Coast that have involved significant private
investment in meeting basic needs and delivering infrastructure
to poor households.
Through the work of the Municipal Infrastructure Investment
Unit, we now have approximately forty projects in the
pipeline, which will fundamentally transform the way
we deliver infrastructure in the future.
I know that many of you here today have projects in
the pipeline which you are here to share with us. Sharing
information between African countries, between us and
our neighbours, is crucial to our individual and collective
successes. Let us never under-estimate the wealth of
our own experience and let us use the tools in our own
hands for sustainable development at local and regional
levels.
As our pre-colonial past has also shown us, as our
recent history demonstrates to us (and as our present
demands of us), good governance belongs as much to Africa,
is as much at home here as it is in other parts of the
world.
No-one needs to teach us about mechanisms for empowering
the poor or how to deal with corruption that eats at
the fabric of governance.
This is why the deliberations at this conference and
this meeting are so important. The concrete projects
and initiatives will enrich the way in which we build
our local government systems. The building of structures
of organised local government, such as the African Union
of Local Authorities, is an important task. In South
Africa, the South African Local Government Association
has done excellent work in organising local government
and looking after its interests.
I am truly excited by the SADC Local Government Information
Centre which was launched at this conference yesterday,
and must commend the SADC member countries and the Commonwealth
Local Government Forum for making this initiative possible.
I wish you well in your deliberations today. The development
of our continent is dependent on you. May the common
needs, common aspirations and a common purpose of our
people - these democratic ideas that also shaped our
pre-colonial ancestors in their systems of governance
- guide all of us as well as in our endeavours to strengthen
local and national government in our region and throughout
our continent, as we strive to build a better life for
all our people, a truly people-centred world in which
everyone can flourish and live a creative life, in which
the collective dreams of a people can and dare come
true.
I thank you for your time.
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