In 1968, South Africa began the implementation of the homeland policy. The Development of Self-government for Native Nations Act (1968) provided for the creation of "homelands" for the Ovambos, Damaras, Hereros, Kaokolanders, Kavangos and Caprivians, and laid down a "governmental structure" of tribal or community authorities as the lowest tier of government and a legislative council at second tier level. An amendment to the Act in 1973 empowered the State President of South Africa to grant "self-government" to a Namibian "homeland" without recourse to parliament. Such a "government" would have a cabinet consisting of a chief minister and other ministers, and have a flag and national anthem. The legislative council would have the power to make laws on restricted matters including education, welfare, clinics, agriculture, administration of justice, establishment and control of business etc, but these could be vetoed by the South African President. The Legislative Council could not make laws on vital matters such as defence, foreign affairs, internal security and border control.
Legislative Councils consist partly of elected and partly of appointed members. The ratio is determined by South Africa in each case. Each "homeland" is to progress through several stages towards "self-government". In effect, South Africa retains complete control over all of Namibia while promoting tribally based "governments" who, while receiving some of the paraphernalia of an independent state, have no real power. At present, these "homelands" are at different stages of the process envisaged by South Africa.
Ovamboland and Kavango were the first areas to be declared "self-governing" territories in 1973. Elections in Ovamboland on 1 and 2 August 1973 for 21 members of the Legislative Council took place under a state of emergency which prohibited political meetings, and large-scale arrests of SWAPO members took place. SWAPO and other opponents of SA policy organised a 97% successful boycott of the elections. The present Chief Minister of Ovamboland, Pastor Cornelius Ndjoba, cooperates closely with the South African government in all spheres, especially in the military fight against SWAPO.
Caprivi became a "self-governing" territory in April 1976 and elections took place in July 1976. A Chiefs Council was established. An Advisory Board for Bushmen was set up in October 1976 to "promote the welfare of the Bushmen nation". It could "make representations to the Minister (of Bantu Administration and Development) with regard to any matter affecting the material, spiritual, moral and social welfare of the Bushmen nation". A Nama Advisory Council, consisting of appointed members, was set up in July 1976. It functions purely as an advisory body with no powers. The Damaras refused the first stage of self-government in 1970 because they were dissatisfied with the land allocated to them. In July 1977, a Damara Representative Authority was established. Negotiations for a Tswana Council took place in early 1977, and there were meetings with Herero leaders to discuss the creation of a Herero Legislative Assembly in May 1977. Elections for a Coloured Council were held in 1972 and 1974.
Kaokoland, which had ceased to exist as a separate "homeland" when its delegation to the Turnhalle Constitutional Talks amalgamated with the Herero delegation, apparently continues to be considered as a distinct region in the bantustan plan, although it is not a self governing area and falls directly under the Department of Cooperation and Development. The creation of tribal armies attached to the homelands is part of South Africa's policy of strengthening the "homeland governments".
