During the first half of 1987 the government implemented key aspects of its longer-term programme to reshape the political structures of apartheid. The inclusion of town councils in African townships into the newly-installed Regional Service Councils as part of an ongoing restructuring of local government appeared to confirm earlier trends that the regime's attempt to politically accommodate Africans living outside the bantustans would include a gradual upgrading of local authorities.
Although consistently identified as a priority precise details about government policy concerning the long-term political rights of Africans outside the bantustans have not been spelt out. A special cabinet committee was appointed in 1983 to examine the issue. Government officials have since given diverging interpretations about the direction future policy might take. Initially the idea of an 'interstate council' was preferred, which would link the authorities of the various bantustans, and 'provide voting rights for Africans' outside these areas.
During this year's whites-only election campaign President Botha stated that the government was contemplating creating independent 'city states' out of African townships. Earlier in 1985 the authorities had announced that an 'informal, non-statutory forum would be set up in which interest groups and government bodies could participate in discussions' about a future constitutional dispensation to include Africans outside the bantustans.
At the end of 1986 the latter proposals were further fleshed out with the publication of a National Council Bill, to set up a forum for discussion on possible constitutional proposals. In spite of widespread resistance to the proposals, the government stated in May this year that it would go ahead with legislation to set up a National Council. It later put forward the possibility that elections could be held in African urban townships to elect representatives to the National Council. However, with a few exceptions, key black groups including those on whom the regime has counted in the past - councillors and bantustan authorities - rejected any participation in the council while it had only advisory status.
Faced with such wide rejection of its initiatives, the government launched a number of new moves to draw these groups into constitutional discussions. A new post of Deputy Minister in the Office of the State President, in charge of Constitutional Planning was created. He announced a broader agenda for discussion. Anyone could participate in discussions provided they rejected violence. The National Council, the form it would take, and its powers would merely be items for discussion and not, as previously, the compulsory channel for such discussions.
Despite these developments other aspects of government policy indicated there would be no departure from the bantustan programme nor any shift from the overall objective of entrenching and safeguarding white domination. Legislation was passed and new bills proposed, giving the bantustan authorities enhanced powers.
At the same time, the inclusion of councils in African townships into the new Regional Service Councils (RSCs) emphasised that they would remain crucial to any future constitutional dispensation. The implementation of the RSCs is part of a longer-term drive to centralise state power and increase military control over key aspects of local government. Under the 1985 Regional Services Councils Act, a new structure of government was created linking the existing local municipalities, management boards and town councils in White, Coloured and Indian, and African areas respectively. The RSCs will be made up of nominees from each of the local authorities in an area and will take over provision of bulk services for entire localities from individual local authorities. Local councils will continue to administer affairs relevant only to the 'population groups' under their administration.
The creation of the RSCs will also provide local government with a new financial base. Employers within the areas under the councils will pay new taxes based on their payrolls and annual turnovers. Councils in African townships for example will no longer be dependent solely on rentals as a source of revenue. As the RSCs will decide how finances are distributed in any particular region, the government sees them as a means of transferring resources from the wealthier white areas to African townships where increased rentals and underdeveloped services have been a source of political discontent. Because major decisions on allocation of resources will now be made at RSC rather than local level, it also hopes that town councils will be removed from the frontline of resistance to apartheid.
The structure of the RSCs greatly increases the centralization of state power. In the past Provincial Councils, under whom White, Indian and Coloured local authorities fell, were elected by white voters. The Provincial Councils have been scrapped, and the RSCs fall directly under Provincial Administrators serviced by enlarged executives, directly appointed by the Cabinet. The Administrators in turn appoint the chairs of each RSC in their area of jurisdiction. The new Provincial Executives, in addition to coordinating the RSCs, will have enhanced statutory and executive powers.
These changes draw local, regional and provincial government structures closer into the ambit of the State Security Council. There is also concern that the RSCs and Joint Management Centres falling under the National Security Management System will be linked as the boundaries of RSCs and sub-JMCs coincide.
