The Other Two Houses Is Restricted Through the Existence of Overarching "General Affairs" Ministries
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• t; T H E OTHER TWO H O U S E S The first five years of the Houses of Representatives and Delegates by Gerd Behrens University of Cape Town A dissertation submitte.d to the Faculty of Social Sciences and Humanities, University of Cape Town, in fulfilment of the requirements for the degree of Doctor of Philosophy Cape Town, October 1989 The University of Cape Town has been glven the right to reproduce this thesis in whole or In part. Co:,yright is h&!d by the author. ·., The copyright of this thesis vests in the author. No quotation from it or information derived from it is to be published without full acknowledgement of the source. The thesis is to be used for private study or non- commercial research purposes only. Published by the University of Cape Town (UCT) in terms of the non-exclusive license granted to UCT by the author. University of Cape Town ,_ For Gillian ABSTRACT Defying widespread predictions, the tricameral Parliament not only continues to function but, after five years, has become an integral part of the political realities in South Africa. This thesis is concerned with an assessment of the dynamics of the n~w dispensation in general and the role played by the Houses of Representatives and Delegates in particular. It evaluates the implications of the new dis pensation for the government, participants in governmen~ created, racially segregated bodies and the extra Parliamentary opposition. In addition, it synthesizes empirical data and theory by applying concepts of eth nicity and by reviewing the tricameral system in the light of the theoretical discussions on consociation and "control". The general elections of September 1989 have been used as a cut-off point for this study because the poll amongst Coloureds and Indians provides an opportunity to observe the effects of the performance of the "other" two Houses. Although it is too early for an exhaustive evaluation of the tricameral system, three preliminary conclusions can be drawn. Firstly, despite its failure to gain legitimacy in wider circles, the new dispensation proved to be a qualified success for the government, particularly in so far as it has managed to involve Coloured and Indian participants in the administration of their "own" affairs. Secondly, after an acquiescent start the two new chambers began to utilize the not inconsiderable potential innate to the Constitution of 1983 but failed to bridge the gulf separating them from the mainstream of black opposition. Thirdly, events in and more significantly outside Parlia ment, seriously undermined the success of the boycott strategy employed by the extra-Parliamentary opposition. While conducting research into apartheid institutions it has become necessary to use official terminology, for ex ample, whites, Coloureds, Indians, Africans. 1 It goes without saying that this does not imply any measure of ac ceptance of government policy. The methodology of the study is outlined in a brief ap pendix. 1. As it has become common practice, the term "black" will be used to refer to all three oppressed groups. DECLARATION I declare that this dissertation is my own unaided work. It is being submitted for the degree of Doctor of Philosophy in the University of Cape Town� It has not been submitted before for any degree or examination in any other university. ACKNOWLEDGEMENTS I should like to extend my thanks to all those people who contributed to this dissertation: my supervisor, Professor Hermann Giliomee, the friendly and competent staf~ of the University of Cape,Town and all people interviewed or otherwise approached. It is remembered that several people who were interviewed or gave background information have been or are currently in detention. Financial assistance from a UCT Postgraduate Research Scholarship was very much appreciated. LIST OF ABBREVIATIONS lillC African National Congress CLP Coloured Labour Preference CP Conservative Party CRC Coloured Representative Council CTPA Cape Teachers' Professional Organisation DEC Department of Education and Culture DP Democratic Party DWP Democratic Workers' Party FP Freedom Party Ho A House of Assembly HoD House of Delegates HoR House of Representatives LP Labour Party MDM Mass Democratic Movement MP Member of Parliament MPC Member of the President's Council NF National Forum NIC Natal Indian Congress NP National Party NPP National People's Party PC President's Council PCP People's Congress Party PFP Progressive Federal Party PPSA People's Party of South Africa PRP Progressive Reform Party SAIC South African Indian Council TASA Teachers' Association of South Africa TIC Transvaal Indian Congress UDF United Democratic Front UDP United Democratic Party WECTU Western Cape Teachers' Union TABLE OF CONTENTS DEDICATION ABSTRACT DECLARATION ACKNOWLEDGEMENTS LIST OF ABBREVIATIONS TABLE OF CONTENTS 1. INTRODUCTION . ........................................., 1 2. THE COLOURED AND INDIAN POPULATION GROUPS .•.......•... 8- 2.1. Ethnicity and Group Concepts •.•........••... : .•••... 8 2.2. The Intermediate Position of Coloureds and Indians.14 2.3. Separate Political Parties ••••••••••••••••••••••••. 19 2.3.1. The Labour Party ................................. 23 2.3.2. Other Coloured Parties ••.•....•.........•........ 39 2 .-3 . 3 . Indian Parties . .................................. 5 3 2.3.4. The Indian Congresses ...•.••....•.•..•••...••.... 66 3. THE CONSTITUTION OF 1983 ...•...•.......••........•... 70 3.1. The Evolution of the Constitution •..•.•............ 70~ 3.2. The Provisions of the Constitution .•..•..••.•...... 76 'I 4 . THE 19 8 4 ELECT! ONS . • . • • . • • • • • . • • . • . • . • . • . 8 6 4.1. The Delimitation of Constituencies ...........•••.•• 86 4.2. The Registration of Voters ..••.•...•..•.•...••.•... 90 4.3. The Participation Debate ••••••..•......•........... 92 Y 4 . 4. The Election Campaign ......•.....•••••••.•........ 1 O5 ~-· 4.5. The Results ....................................... 108 Y. .4. 6. Analysis . ........................................ 117 4 . 7 The MPs . ........................•.•................ 131 5 . OWN AFFAIRS . .... 13 9 5.1. The Own Affairs System ......... ~··················139 5.2. The Own Affairs Budgets ........................... 151 5.3. The own Affairs Portfolios ........................ 160 5.3.1. Agriculture ..................................... 160 5.3.2. Local Government ................................ 162 5.3.3. Welfare ......................................... 162 5.3.4. Health ........•................................. 164 5.3.5. Housing ......................................... 166 5 . 3 . 6 . Education . ...................................... 1 71 5.3.6.1. Coloured Education ••....••...•.......•....•..• 172 5.3.6.1.1. The Labour Party Policy ....•..•...•... ; .•... 172 5 . 3 . 6 . l . 2. The DEC and the CTPA •...•......•........•... 179 5.3.6.1.3. The School Boycotts in the Western Cape ..... 193 5.3.6.2. Indian Education; •......••••..•.•••.....••.... 200 5.4. Conclusion ................................. ; ...... 207 6 . GENERAL AFFAIRS ..............................· ........ f 11 6.1. The Performance of the Houses of Representatives and Delegates .................• .................... 211 \' 6.2. Key Policy Areas .............................. ~ ~ .. 2 2.9 6.2.1. Constitutional Policy ••.•.............•.•...•... 230 6 . 2 . 2 . Group Areas • ..•.•...•.•...•••••••....... ·· . : ..... 2 3 8 6.2.3. Security ........................................ 243 6.3. The Standing Committees ...•••••.•.•.....•..••.••.• 253 6 . 3 . 1. The Standing Cammi t tee Sys tern •..•.......••..•... 2 5 3 6.3.2. Case Studies .................................... 264 7. THE PRESIDENT'S COUNCIL •......•.......•••........... 274 7 .1. · Constitutional Provisions •.......•.•.•.....•..••.. 27 4 7.2. The Performance of the Coloured and Indian MPCs ..• 277" 8. THE RELATIONSHIP WITH OTHER POLITICAL FORCES ••....•• 284 8.1. The Liberal White Opposition .•............ • ••••• 284 8 . 2 . I nka tha . .... 2 9 3 8.3. The UDF . ......................................... 294 9. CONCLUSION ....•................... ·.•..............•. 309 APPENDIX I: CONCEPTUALIZATION: CONSOCIATION AND "CONTROL" ...........................•........................... 3 3 4 I.1. Consociation •.•••.•.•...••.••...•..•....••..•••... 334 I.2. ''Control'' ...............................· .......... 340 APPENDIX II: METHODOLOGY .•.••...••..•..•......•......•• 344 SELECT BIBLIOGRAPHY ••.•..•.....•...•..•....•.•....•..•. 353 1 "If the tricameral Parliament succeeds, we fail." (Ismail Omar, Solidarity MPC) 1 "They thought they were entering a partnership with the President, and they were mistaken. They thought he 11 needed them, and he didn' t. - ( Paul Bell on the Labour Party) 2 1. INTRODUCTION Nadine Gordimer has called the Houses of Representatives and Delegates "the outhouses of Parliament". This quota tion expresses a sentiment widely held by the general public, the media and the academia. The attitude is that the Coloured and Indian chambers of Parliament are void of any relevance. This argument rests on two assumptions, namely the waning significance of Parliament in general and the impotence of the "other" two Houses in particular. The first assumption has been notably associated with Frederik van Zyl Slabbert. He argued that South Africa had an extra-Parliamentary government as Parliament had lost 1. Interview: Ismail Omar, 21.1.1987 2. Paul Bell(1988): 60 2 all relevance for both the representativity and ac- countability of government as well as for