Thesis (DTech. in Public Management)

This thesis is about the political implications of the constitutional recognition of the hereditary institution of traditional leadership in post-1994 South Africa for the democratization process in the rural areas of the former Bantustans. The thesis is organized around three related conceptual, historical and political questions. The conceptual question deals with the meaning of democracy in rural areas under the jurisdiction of traditional authorities. The historical question traces how the institution and traditional authorities have survived to the present post-colonial period. Lastly, this study investigates the political issue of why an ANC-led government came to recognize the institution. The focus of the thesis is the sphere of rural local government in the Xhalanga district, where these issues are best illustrated. The thesis argues that the institution of traditional leadership and its officials survived precisely because they were incorporated into the colonial and apartheid administrative structures in the project of indirect rule. Traditional authorities were central to the apartheid policy of retribalisation, which was essentially a form of control of Africans in the Bantustans. Rural residents engaged in fierce struggles against the imposition of rural local government structures such as the District Council and Tribal Authorities. In so far as traditional authorities were part of government structures, they could not avoid being targets in these struggles. In explaining the recognition of the institution of traditional leadership, the thesis focuses on the policies of the ANC, the majority party in the Government of National Unity, towards traditional authorities. Organisationally weak on the rural grounds, the ANC operated through what they considered to be “good/progressive/comrade chiefs”. The ANC had hoped that these traditional authorities would accept a non-political ceremonial role. However, traditional authorities have rejected this ceremonial role. Their refusal, coupled with the ANC’s ambivalence in resolving the tension imply, the study concludes, that the (political) citizenship rights of rural people are partial: they are neither citizens nor subjects.

Traditional leadership is a contested field in social and political environments. The new, democratic government has created an environment that accommodates the existence of traditional leadership by introducing policies that guide their functioning. The White Paper on Traditional Leadership of 2003 spells out the roles and responsibilities of traditional leaders. This document when used with the Municipal Structures Act 117 of 2003 may minimise the existing tensions between the traditional leaders and the democratically elected councillors. The White Paper on Traditional Leadership of 2003 has been designed accordingly with the Bill of Rights. Equality and prevention of unfair discrimination, has been entrenched in the Bill of Rights of the Republic of South Africa. Traditional leaders, therefore, do have a space in the governance of South Africa. They are expected to participate in development programmes and in promoting service delivery. This study used the method of a case study. It is a qualitative study. Questionnaires and interviews are tools used to collect data. Various observations and findings were made with proposed recommendations. Most important to note is that, the traditional leaders are aware of the White Paper on Traditional Leadership but do not know what to do about it. This reveals that there is a gap between practice and policy. is the recommendation of the study that, the officials from Local Government and Traditional Affairs and those from the municipalities workshop and mentor the traditional leaders as well as the democratically elected councillors. Such a practice could minimise if not eliminate the tensions that result in poor service delivery.

Thesis (MA (Political Science))--University of Stellenbosch, 2009. / ENGLISH ABSTRACT: During the so-called third wave of democratisation, South Africa experienced a transition from authoritarian rule to democratic rule in 1994. This transition was coupled with a transformation process, which saw the establishment and introduction of democratic principles and norms, as well as democratic institutions. All these make South Africa a democracy in theory but do not necessarily mean that it is a democracy in practice. Moreover, democracy, unlike authoritarian rule, depends on the support of the populace. Lack of support for democratic rule renders the regime illegitimate, since it does not have enough support to continue as the authority of the country. Against the theoretical point of departure (i.e. support for democracy is closely tied to legitimacy of the authority), it is imperative to evaluate these types of support for democracy as well as their changing levels in the country. This will shed some light on whether the populace in the country embrace democracy as a form of governance – that is, whether the populace perceive democracy as a political regime that is entrenched not only in theory, but also in practice. This will be highlighted by their level of support, which determines whether the regime is perceived as legitimate or illegitimate. It will further shed some light on the degree or level of support for the political system governing the country. Support for democracy may be evaluated by using two models or types of support, i.e. diffuse and specific support. Diffuse support consists of three levels of support, namely, political community, regime principles and regime performance, whilst specific support consists of two levels of support, namely regime institutions and political actors. For this study, these models and levels of support are evaluated amongst the supporters of the ruling party, namely the ANC. For comparative purposes, however, support patterns for democracy, as measured in the World Values Surveys from 1995 to 2006, amongst the ANC supporters will be evaluated in relation to non-ANC supporters. These patterns are crucial, since they will highlight whether support for democracy is support for democratic rules and norms, i.e. democracy per se, or whether support for democracy is closely tied to party support and position. The study reveals that there are relatively high levels of support for political community, regime principles and regime performance amongst both the ANC supporters and non-ANC supporters, when compared to levels of support for regime institutions and political actors, meaning that there are high levels of diffuse support when compared to specific support. Moreover, the ANC supporters have higher levels of both diffuse and specific support for democracy when compared to non-ANC supporters. / AFRIKAANSE OPSOMMING: In die 1990‟s gedurende die derde golf van demokratisering in die wêreld, het Suid Afrika ook „n transformasie van „n outoritêre stelsel na „n demokrasie ondergaan. Hierdie transformasie het op die vestiging van demokratiese beginsels en norme sowel as demokratiese instellings uitgeloop. Hoewel dit Suid-Afrika ‟n demokrasie in teorie gemaak het, het dit die stelsel nie noodwendig ‟n demokrasie in die praktyk gemaak nie. Dit is belangrik om in ag te neem dat „n demokrasie, anders as „n outokrasie, die ondersteuning van die bevolking moet geniet. ‟n Gebrek aan genoegsame steun kan daartoe lei dat ‟n regering gesag op ‟n onlegitieme wyse uitoefen. Teen hierdie teoretiese agtergrond is dit dus belangrik om die tipes sowel as die veranderende vlakke van ondersteuning vir demokrasie te evalueer. Sodoende word ‟n insig verkry of die bevolking demokrasie as ‟n vorm van regering nie net in teorie aanvaar nie, maar ook in die praktyk. Die vlak van ondersteuning sal bepaal of die regime as legitiem of onlegitiem beskou word. Dit kan ook verder lig werp op die vlak van ondersteuning vir die politieke selsel wat in plek is. Ondersteuning vir demokrasie kan bepaal word deur gebruik te maak van twee modelle of tipes van ondersteuning, naamlik, verspreide (“diffuse”) en spesifieke (“specific”) ondersteuning. Verspreide ondersteuning bestaan uit drie vlakke van ondersteuning, naamlik, steun vir die politieke gemeenskap, regime beginsels en regime optrede. Spesifieke ondersteuning in teenstelling, bestaan uit twee vlakke van ondersteuning, naamlik steun vir regime instellings en vir die politieke akteurs. Vir hierdie studie is die modelle en vlakke van ondersteuning ge-evalueer met spesifieke verwysing na die ondersteuners van die ANC - die regerende party. Vir ‟n vergelykingsbasis is hierdie ondersteuningspatrone met die nie-ANC ondersteuners soos dit voorkom in die World Values opnames van 1995 tot 2006 gebruik. Hierdie patrone is van kardinale belang omdat dit vir ons ‟n aanduiding gee of ondersteuning vir demokrasie ook die ondersteuning vir demokratiese reëls en norme behels. Die bevindinge dui op relatiewe hoër vlakke van ondersteuning vir die politieke gemeenskap, regime beginsels en regime werkverrigting onder ANC ondersteuners sowel as nie-ondersteuners as dit vergelyk word met vlakke van ondersteuning vir regime instellings en politieke akteurs. Dit beteken dat daar hoër vlakke van verspreide ondersteuning bestaan in vergelyking met spesifieke ondersteuning. Verder is bevind dat ANC ondersteuners hoër vlakke van verspreide sowel as spesifiek ondersteuning vir demokrasie vertoon in vergelyking met nie-ondersteuners van die ANC.

Within the new constitutional order, South African local government has been afforded specific status and is protected as a distinctive sphere of government in terms of the Constitution Act 108 of 1996. Municipalities are no longer a mere function of national or provincial governments. In addition to this entrenched status, the Constitution and other developmental local government legislation vests local government with specific functions and responsibilities as part of the process of building a new democracy and promoting socio-economic development and upliftment. Consequently, local government managers are under constant pressure to improve the performance and quality of service delivery. They are expected to satisfy a number of stakeholders, achieve increases in efficiency, as well as attain developmental service delivery goals as contained in their Integrated Development Plan (IDP). Quality management standards and excellence models in support of the total quality management (TQM) philosophy are relatively new public management approaches that changes traditional organisational decision-making practices to deliver services to its customers in more effective and efficient ways. In essence, quality management standards and excellence models are performance management methodological practices, techniques and tools designed to meet and exceed public requirements. It accomplishes this through determining what constitutes excellence in customer service, and then empowering employees to a never-ending search for quality improvement in the delivery of services, in terms of the continuous improvement and continuous process improvement philosophies, of which total quality management (TQM) is premised on. Consequently, quality management standards and excellence models (such as the ISO 9001: 2008 QMS, ISO 14001: 2004 EMS, EFQM and SAEF Excellence Models) as methodological practices, techniques or tools in support of the critical factors (CFs) of the total quality management (TQM) philosophy, namely: (1) customer-based approach, (2) senior management commitment and leadership, (3) quality planning, (4) management based on facts, (5) continuous improvement, (6) involvement of all members of the organisation, (7) education and training, (8) teamwork, (9) communication systems, (10) learning, (11) process management, (12) co-operation with suppliers, and (13) organisational awareness and concern for the social and environmental context, can provide a framework by which to achieve the goals of effective and efficient service delivery in developmental local government, as they foster a culture of performance and accountability. Local government managers could use these quality and excellence methodological practices, techniques and tools, as a starting point to improve efficiencies in their municipalities, as the programmes afford them an opportunity to systematically evaluate the municipality and determine what leads to organisational success and deliverables. Institutional theory suggests that organisations are both influenced by and can influence the society in which they operate. Institutional theorists believe that the motivation for a change in internal practices might not only be performance related, but may primarily be to enhance or maintain the legitimacy of the respective institution. Institutional theory also focuses on the social contract that exists between the institution and society. This social contract is believed to represent the expectations of society. From an institutional point of view, it has been suggested that institutions may change and adopt the norms of society to appear legitimate to that society. This infers that when societal norms and values change, institutions will be expected to change. These societal pressures combined with legislative changes, require institutional entrepreneurs to respond to these isomorphic pressures, and will work to preserve the institution's legitimacy by incorporating, or at least appearing to incorporate, new practices, norms and values. The aim of this research study was to analyse within an institutional theory framework, the implementation of quality management standards and excellence models in support of the total quality management (TQM) philosophy and developmental local government within two South African municipalities. The research investigation has been undertaken within the social constructionist paradigm and using the case study method. Interviews and documents were the data sources and thematic analysis was used as a tool to analyse the data by applying a theory-driven coding procedure. The findings from the two research sites, namely Makana Municipality in Grahamstown and Drakenstein Municipality in Paarl reveal that the implementation of quality management standards and excellence models in support of the total quality management (TQM) philosophy in both municipalities was not a smooth process and there were many challenges such as political instability, lack of commitment on the part of the senior leadership and management, staff and skills shortages, resistance by staff to implementation and resource constraints. Institutional theory has proved to be useful in understanding why the Makana and Drakenstein Municipalities implemented quality management standards and excellence models. Because of coercive, mimetic and normative isomorphic pressures affecting the Makana and Drakenstein municipalities, change was imperative if these institutions were to remain relevant and legitimate in order to address its service delivery mandate of effectiveness and efficiency. Institutional theory provided a theoretical lens to understand and appreciate the pressures that affected the municipalities because of its new developmental mandate as encapsulated in new municipal legislation. It also assisted in understanding how institutional entrepreneurs responded to these pressures to conform. The implementation of quality management standards and excellence models in the Makana and Drakenstein municipalities was adversely affected by volatility amongst the political leadership of both municipalities. The successful implementation of these standards and models would require collective action from the political, bureaucratic and procedural entrepreneurs in order to enhance effective, efficient and accountable service delivery. However, in both the Makana and Drakenstein municipalities, institutional entrepreneurs, namely councillors and officials were not working together as a collective to implement quality management standards and excellence models. Evidence has shown that the absence of stable political leadership and noncooperation and collaboration amongst institutional entrepreneurs contributed significantly to the non-institutionalisation of quality management standards and excellence models in these Municipalities. This implies that legitimacy has not been achieved, due to institutional entrepreneurs not collaborating and collectively working with each other to implement the quality management standards and excellence models. Thus, this research study suggests that the strategic and collective role of the political and administrative leadership as institutional entrepreneurs is critical if the municipality is to achieve its aims and objectives, namely effective, efficient, and accountable service delivery in developmental local government. Recommendations in respect of future research and to practitioners have also been offered.

The research seeks to evaluate the co-operative interaction between municipal political office-bearers and chief officials in the rendering of housing services in the King Sabata Dalindyebo local municipality. The introduction provides the general overview of the study and provides a background to the intention of the research to evaluate the co-operative interaction between municipal political office-bearers and chief officials. The problem statements briefly describe the problem identified in the study and the objectives of the study are set. The theoretical framework is provided and the theories used to evaluate the performance are discussed which are classical theory and the system theory. The importance of conducting the research is discussed and the limitations of the study are discussed in the research. Importantly, the study plan directs the researcher in the direction towards the goals of the research. Also the terms used in this study that are not clear were defined to avoid misinterpretation; misunderstanding and confusion of words and terms. The review of the current literature on the theoretical framework and the base for policy making and controlling role of municipal political office-bearers and chief officials in public administration was discussed. The nature of systems theory and the different phases of systems theory were explained. The nature and place of policy making in public administration was discussed as well as policy making alternatives in the public sector. The policy making levels i.e. political policy making level; executive policy making level; administrative/departmental policy making level; operational policy making level were explained and discussed. The co-operative interaction between municipal political office-bearer and chief officials was discussed to understand the administrative and political dichotomy in the public sector. The policy implementation for the rendering of housing services as well as the programming and delegation of authority were discussed in the context of housing service delivery. The legislative framework for housing services in South Africa was discussed as it influence and affects the housing service in King Sabata Dalindyebo Municipality. The role of municipal authorities in the rendering of housing services as well as the housing situation in South Africa together with the obligations of both the provincial and municipalities were discussed. The permission to conduct research was received from King Sabata Dalindyebo local municipality. The scope of the study explains the range or extent of matter to be dealt with in the research and the survey area is dearly provided. The research design which is qualitative and quantitative research are discussed and used in adopting the study. The case study as research strategy is discussed and clarified. The data collection instruments which are interviews, questionnaires and the literature study the subject were briefly explained. Population details and sampling were clearly explained before a sample is provided in the study. The research provides data collection procedures as well as how the data will be analysed. The ethical considerations are discussed. The data analysis and interpretation was conducted to enable the researcher to identify patterns which are consistent within the data. The criteria for data analysis as well the response rate were discussed. The demographics of chief officials and political office-bearers as respondents include their age; year of service, home language, gender, the academic qualification as well as the different stakeholders were analysed. The role of political office-bearers and chief officials in the initiation of policy which the input phase of the Systems theory analysis was conducted and the role of political office-bearers and chief officials in the process phase were analysed and discussed. The co-operative interaction in policy formulation and the steps in the policy formulation were analysed and discussed. Also the analysis was conducted on the delegation of authority to chief officials by the political office-bearers as well as the role of political office-bearers and chief officials in the approval of executive policy. An evaluation of the rendering of - 11 - housing services at Phola park informal settlement as well as the evaluation of housing services as an output phase in policy formulation were analysed and discussed. And lastly, the analysis of the impact of existing legislation or policy on housing services was conducted. The findings of the study were provided and discussed and the concluding remarks were provided to whether the problem is real and whether the hypothesis is true and valid. The recommendations of the study were provided to enable Kind Sabata Dalindyebo local municipality to improve the co-operative interaction between municipal political office-bearers and chief officials to improve housing services and to provide better service delivery. KEYWORDS Administration Citizens Co-operative interaction Effectiveness Efficiency Executive functions Governing functions Municipal authority Municipal chief officials Municipal political office-bearers.

This dissertation critically examines how traditional leaders use cultural laws to allocate land to women and to allow women to participate in land administration in communal areas. Given the government's commitment to gender equity in all spheres of life as stipulated in Section 9 (3) of the South African Constitution (Act 108 of 1996), the dissertation examines whether related legislation and policy (such as CLARA and TLGFA) alone can guarantee equitable access to land for women and their participation in land administration structures in communal areas where patriarchy dominates. In essence, the study interrogates whether state intervention through formalizing laws that govern land matters do achieve gender equity while cultural laws still exist in communal areas. Based on the view that land in communal areas is held by the state and administered by traditional leaders who have historically discriminated against women, the dissertation employs a case study method to examine whether cultural laws are exercised when women apply for a piece of land at the three levels of traditional authority viz: village, sub-village and traditional council levels in the Matolweni village of the Nqadu Tribal Authority. Although women are often the de facto rights holders in rural areas as a result of male migration to urban areas, findings seem to indicate that it is difficult and/or sometimes impossible to translate paper laws into practice while cultural laws are still operating. For effective transformation to occur, the study recommends that unless a strong women's rural movement emerges, coupled with a socialist feminist position that advocates for a radical transformation of rural society to defeat the patriarchal norms and standards, traditional leaders will continue to discriminate against women in land issues.

The aim of the study was to assess the impact of traditional leaders and ward councillors‟ roles on service delivery in Mnquma Local Municipality. Not much research has been conducted in this field. The researcher wanted to ascertain the extent of conflict between traditional leaders and ward councillors in providing services to the communities and provide mechanisms to harness these. In this study relevant literature and legislative frameworks were reviewed. From the literature review, it was evident that service delivery is essential to the communities, and as such, municipalities have a critical role to play. The data collection instruments used, were questionnaires and interviews. In order to achieve the objectives, questionnaires were distributed to the participants and interviews were conducted. After analysing the data, the researcher formulated conclusions and from those conclusions, some recommendations were made.

MPM / Oliver Reginald Tambo Institute of Governance and Policy Studies

PhD (Public Administration) / Department of Public and Development Administration / The study reviews and assess the impact of ethical leadership in promotion of good governance in the Limpopo Province in South Africa. Since the inception of the province in 1994, the provincial government witnessed an alarming statistics of unethical behaviour within its echelons. The media reports is frequently dominated by negative news of ethical transgression within the province’s public institutions. The reports on fraud and corruption scandals ranges from conflict of interests which manifest itself through payment of ghost workers, tardiness, weak institutions, lack of accountability and honesty by senior and subordinate public officials. In 2011, some of the provincial government’s departments were placed under “Administration”, meaning the control of province by the National Treasury. The placement of the departments under administration confirms the public perception that the province is engulfed by ethical challenges which result to poor governance of the province. The findings from the study confirm that although the province attempted to put strategies to minimise acts of unethical behaviour in the province, there is still a concern of ethical transgression that is ongoing and unabated. The study adopted the mixed methodology research design for data collection. The senior public managers and subordinate public officials were sampled as the population for the study. The aim is to assess the pivotal role that senior public managers as leaders play in fostering the organisational performance, hence good governance through modelling behaviour. The findings of the study assist to respond to the concern of why transgressions of ethical conduct occurs despite progressive legislative frameworks were introduced to promote good governance. The study recommended an Integrative Model of Ethical Leadership, which takes into account / NRF