THE CONVERSION FUNCTION OF THE POLITICAL PROCESS IN LEBOWA UNTIL 1990 ACCORDING TO THE STRUCTURAL FUNCTIONAL ANALYSIS OF GABRIEL A. ALMOND AND G. BINGHAM POWELL, JR. by MOSE JACOB DUBA Submitted in fulfilment of the requirements for the degree of MASTER OF ARTS in the subject POLITICS at the UNIVERSITY OF SOUTH AFRICA SUPERVISOR: PROFESSOR D.J. KRIEK JOINT SUPERVISOR: DIRK KOTZE JANUARY 1992 Preface I wish to express my sincere thanks and gratitude to the following persons for the assistance rendered to me: my supervisor, Prof. D. J. Kriek for all he did to advise and assist with the preparation of this dissertation; my joint-supervisor Mr. Dirk Kotze for his advice and assistance particularly on the historical section of the study; Mr. Gideon Erasmus without whose faith and encouragement I would never have attempted this dissertation. His advice and language corrections have been very useful; Mr. A.C. Ribeiro of Norcomnet Services for his invaluable computer and technical advice. M.J. Duba January 1992 SUMMARY This study seeks to use the structural-functional model of Almond and Powell to explain the functioning of the political system of Lebowa as a self-governing territory in the Republic of South Africa. Against the background of the historical development of Lebowa and the emergence of apartheid - or separate development as it was also termed - the political process in Lebowa is described and analysed in terms of the conversion function of Almond and Powell's model. Interest articulation, interest aggregation, rule-making, rule- application, rule-adjudication and communication are examined as functions of the conversion process in Lebowa. It is evident that Lebowa's position within greater South Africa, the importance of traditional structures, and the existence of modern political structures, play a major role in the political system of Lebowa. t.'Nlr)A • P.!B'. l')T:':EI< I UPt:iARY i ~1:;·~'a~ :°ttJ~_tg IDl{M , Acce<:,c Aanwir. .... 1111111111111 01503702 TABLE OF CONTENTS: CHAPTER 1: INTRODUCTION 1 1.1 CHOICE OF SUBJECT 1 1 . 2 PROBLEM FORMULATION 2 1 . 3 METHOD 3 1.4 APPROACHES TO THE STUDY OF POLITICS 3 1.4.1.1 ALMOND AND POWELL'S STRUCTURAL­ 4 FUNCTIONAL MODEL 1.4.1.2 THE POLITICAL SYSTEM 5 1.4.1 .2.1 THE POLITICAL STRUCTURE 7 1.4.1.3 POLITICAL CULTURE 8 1.4.1.4 FUNCTIONAL ASPECTS OF POLITICAL SYSTEMS 9 1.4.1.4.1 CAPABILITY FUNCTIONS 9 1.4.1.4.2 CONVERSION FUNCTIONS 10 1.4.1.4.3 SYSTEM MAINTENANCE AND ADAPTATION 12 FUNCTIONS 1 . 5 A GENERAL OVERVIEW OF LEBOWA 13 1.6 SOURCES 17 1 • 7 SUMMARY OF CHAPTERS 18 1 • 8 CONCLUSION 20 CHAPTER 2: ESTABLISHMENT OF THE NATIONAL STATE 23 OF LEBOWA 2. 1 INTRODUCTION 23 2.2 CONSTITUTIONAL AND POLITICAL DEVELOPMENT 24 PRIOR TO THE UNION OF SOUTH AFRICA 2.2.1 HISTORICAL BACKGROUND 24 2.2.2 THE FIRST PHASE OF WHITE CONQUEST 26 2.2.3 THE SECOND PHASE OF WHITE CONQUEST 27 2.2.4 POLITICAL AND CONSTITUTIONAL DEVELOPMENTS 28 2.2.4.1 THE NATIONAL CONVENTION AND THE DRAFTING 30 OF A CONSTITUTION 2.3 UNION OF SOUTH AFRICA (1910-1961) 31 2.3.1 THE IDEOLOGY OF APARTHEID OR SEPARATE 32 DEVELOPMENT 2.4.1 ACTS ON LAND AND BLACK ADMINISTRATION 39 2.4.1.1 BLACK LAND ACT,1913 (ACT 27 OF 1913) 39 2.4.1.2 DEVELOPMENT TRUST AND LAND ACT, 1936 41 (ACT 18 OF 1936) 2.4.1.3 BLACK ADMINISTRATION ACT, 1927 42 (ACT 38 OF 1927) 2.4.1.4 BLACK AUTHORITIES ACT, 1951 42 (ACT 68 OF 1951) 2.4.1.5 PROMOTION OF BLACK SELF-GOVERNMENT ACT, 44 1959 (ACT 46 OF 1959) 2.5 REPUBLIC OF SOUTH AFRICA, 1961 47 2.5.1 ESTABLISHMENT OF THE TERRITORIAL AUTHORITY 47 FOR THE NORTHERN SOTHO NATIONAL UNIT 2.5.2 BLACK STATES CITIZENSHIP ACT, 1970 so (ACT 26 OF 1970) 2.5.3 BLACK STATES CONSTITUTION ACT, 1971 51 (ACT 21 OF 1971) 2.5.4 PROCLAMATION OF THE LEBOWA LEGISLATIVE 53 ASSEMBLY 2.5.5 ESTABLISHMENT OF THE SELF-GOVERNING STATE 53 OF LEBOWA IN ITS PRESENT FORM 2.6 LEBOWA'S POLITICAL STANDPOINT WITH REGARD 56 TO FUTURE CONSTITUTIONAL DEVELOPMENT 2.7 CONCLUSION 62 CHAPTER 3: INTEREST ARTICULATION 69 3. 1 INTRODUCTION 69 3.2 INTEREST ARTICULATION STRUCTURES 69 3.2.1 INDIVIDUAL SELF-REPRESENTATION 70 3.2.1.1 INDIVIDUAL SELF-REPRESENTATION AT THE 70 LOCAL LEVEL 3.2.1.2 SELF-REPRESENTATION AT THE REGIONAL 71 AUTHORITY LEVEL 3.2.1.3 SELF-REPRESENTATION AT THE CENTRAL 72 AUTHORITY LEVEL 3.2.2 ANOMIC INTEREST GROUPS 73 3.2.3 NON-ASSOCIATIONAL INTEREST GROUPS 74 3.2.4 INSTITUTIONAL INTEREST GROUPS 77 3.2.5 ASSOCIATIONAL INTEREST GROUPS 82 3.2.5.1 CHAMBERS OF COMMERCE AND INDUSTRY 83 3.2.5.2 TRADE UNIONS 85 3.2.5.3 CIVIC ASSOCIATIONS 88 3.2.5.4 STUDENT ORGANISATIONS 89 3.2.5.4.1 THE SRC AT THE UNIVERSITY OF THE NORTH 90 3.3 ACCESS CHANNELS AND MEANS OF ACCESS 94 3.3.1 PHYSICAL DEMONSTRATIONS AND VIOLENCE 95 3.3.1.1 THE 1974 STUDENT UNREST AT THE 96 UNIVERSITY OF THE NORTH 3.3.1.1.1 SYNOPSIS OF THE EVENTS BEFORE 97 THE 25 SEPTEMBER 1974 3.3.1.1.2 EVENTS ON THE CAMPUS OF THE UNIVERSITY 98 OF THE NORTH ON 25 SEPTEMBER 1974 3.3.1.1.3 SUMMARY OF THE MAIN REASONS FOR THE 100 VIOLENT ACTIONS ON THE CAMPUS ACCOR­ DING TO THE SNYMAN REPORT 3.3.1.1.4 GENERAL COMMENT 100 3.3.1.1.5 THE FIRST PETITION TO THE POLICE 101 3.3.1.1.6 THE SECOND PETITION TO THE POLICE 103 3.3.1.1.7 THE LETTER HANDED TO THE RECTOR 105 3.3.1.1.8 THE PETITION WHICH ACCOMPANIED 109 THE LETTER TO THE RECTOR 3.3.1.2 UNREST IN LEBOWA DURING THE 1 1 1 PERIOD 1985 TO 1987 3.3.2 PERSONAL CONNECTIONS 116 3.3.3 ELITE REPRESENTATION 117 3.3.4 FORMAL AND INSTITUTIONAL CHANNELS 119 OF ACCESS 3.3.4.1 THE MASS MEDIA 119 3.3.4.2 THE POLITICAL PARTIES 122 3.3.4.2.1 WRITTEN MOTIONS 123 3.3.4.2.2 ORAL MOTIONS 123 3.3.4.3 THE LEGISLATURE 125 3.3.4.4 THE BUREAUCRACY 126 3.3.4.5 TRADITIONAL CHANNELS OF ACCESS 127 3.4 FACTORS WHICH INFLUENCE INTEREST 128 ARTICULATION 3.4.1 POLITICAL COMMUNICATION 129 3.4.2 THE POLITICAL CULTURE 129 3.4.2.1 SYSTEM PROPENSITIES 131 3.4.2.2 PROCESS PROPENSITIES 134 3.4.2.3 POLICY PROPENSITIES 135 3.4.3 THE DISTRIBUTION OF RESOURCES 137 3.5 CONCLUSION 140 CHAPTER 4: INTEREST AGGREGATION 143 4.1 INTRODUCTION 143 4.2 INTEREST AGGREGATION STRUCTURES 144 4.2.1 THE BUREAUCRACY 144 4.2.1.1 THE LOCAL LEVEL 145 4.2.1.1.1 TOWN COUNCILS 145 4.2.1.2 THE REGIONAL LEVEL 147 4.2.1.3 THE CENTRAL LEVEL 148 4.2.1.3.1 THE PREPARATION OF A BUDGET AS A 149 FUNCTION OF AGGREGATION 4.2.2 TRADITIONAL STRUCTURES 152 4.2.2.1 TRIBAL AUTHORITIES 153 4.2.2.2 COMMUNITY AUTHORITIES 154 4.2.2.3 REGIONAL AUTHORITIES 154 4.2.3 POLITICAL PARTIES 155 4.2.3.1 THE LEBOWA PEOPLE'S PARTY (LPP) 157 4.2.3.1.1 PARTY ORGANISATION 157 4.2.3.1.1.1 BRANCHES AND BRANCH COMMITTEES 157 4.2.3.1.1.2 DIVISIONAL COMMITTEES 159 4.2.3.1.1.3 THE NATIONAL EXECUTIVE COUNCIL (N.E.C.) 161 4.2.3.1.1.4 THE CONGRESS 163 4.2.3.1.2 METHODS OF AGGREGATION IN THE LPP 164 4.3 ELECTIONS AS A FUNCTION OF AGGREGATION 166 4.3.1. ELECTORAL DIVISIONS 169 4.3.2 ELECTORAL OFFICERS 170 4.3.3 REGISTRATION OF VOTERS AND THE 171 VOTERS ROLL 4.3.4 REPRESENTATION 171 4.3.5 NOMINATION OF MEMBERS 174 4.3.5.1 PARTY NOMINATIONS 174 4.3.5.2 OFFICIAL NOMINATIONS 174 4.3.5.6 ELECTION RESULTS 175 4.4 STYLES OF INTEREST AGGREGATION 176 4.4.1 THE PRAGMATIC BARGAINING STYLE 177 4.4.2 THE ABSOLUTE VALUE ORIENTED STYLE 178 4.4.3 THE TRADITIONALISTIC STYLE 178 4.5 CONCLUSION 179 CHAPTER 5: RULE-MAKING 182 5. 1 INTRODUCTION 182 5.2 TOWN COUNCILS 183 5.2.1 COMPOSITION 183 5.2.2 FUNCTIONAL AND PROCEDURAL ASPECTS 184 5.3 TRIBAL AUTHORITIES AND COMMUNITY 185 AUTHORITIES 5.3.1 COMPOSITION 185 5.3.2 FUNCTIONAL AND PROCEDURAL ASPECTS 186 5.4 REGIONAL AUTHORITIES 190 5. 4. 1 COMPOSITION 190 5.4.2 FUNCTIONAL AND PROCEDURAL ASPECTS 190 5.5 THE LEGISLATIVE ASSEMBLY 193 5.5.1 COMPOSITION 193 5.5.2 FUNCTIONAL AND PROCEDURAL ASPECTS 196 5.5.2.1 PROCEDURE IN RESPECT OF LEGISLATION 199 5.5.2.1.1 PUBLIC BILLS 199 5.5.2.1.2 PRIVATE BILLS 201 5.5.2.1.3 PROCEDURES IN RESPECT OF FINANCIAL 203 MEASURES 5.5.2.1.4 BILLS TO BE PERUSED BY THE 208 COMMISSIONER-GENERAL 5.5.2.1.5 PROCEDURE WHEN A BILL IS REFERRED BACK 209 5.5.2.1.6 PROMULGATION AND THE COMING INTO 209 OPERATION OF LAWS 5.5.2.1.6 SIGNATURE AND ENROLMENT OF LAWS 209 5.5.2.2 EVALUATION 210 5.6 THE ROLE OF THE LEBOWA CABINET 212 IN THE RULE-MAKING PROCESS 5.7 THE ROLE OF THE BUREAUCRACY IN 220 THE RULE-MAKING FUNCTION 5.8 THE ROLE OF THE SOUTH AFRICAN 223 CENTRAL GOVERNMENT IN THE RULE­ MAKING PROCESS OF LEBOWA 5.