Proposals outlined by President Botha in April marked the beginning of a new phase in the attempt to impose a constitutional scheme which would incorporate the African majority without jeopardising white political power. They reflected a decision to focus on regional elections and the creation of new regional authorities as ways of involving people prepared to participate in the proposed National Council on terms acceptable to the government.
The breadth of opposition to the regime's plans and the extent of its lack of legitimacy had become clear by March. By then even the heads of non-'independent' bantustans had all refused to participate in the National Council, intended as a 'negotiating forum' for African political rights. Objection to the fragmenting of South African society into separate groups in order to maintain white political power was widely expressed by those refusing to participate. Calls were also made for the release of political prisoners, unbanning of political organisations and lifting of restrictions on political activity.
By March ministers were complaining of lack of support for the council, alleging ANC influence as a primary factor. They indicated that the government might establish the council even if no-one was prepared to support it, and that elections for representatives of Africans outside the bantustans would allow them to identify people to negotiate with. Proposals for elections, first made in August last year, have been accompanied by indications that the government is not concerned about the level of participation of voters as long as candidates come forward.
It was in this context that, on 21 April, President Botha outlined constitutional proposals relating to African political rights (see Box). They were mainly tentative and vague, the most immediate and concrete ones concerning Africans outside the bantustans.
The proposed regional elections and creation of elected regional authorities would be in line with the decision, taken in late 1984, that Africans permanently outside the bantustans should be treated as a separate group for constitutional purposes. The regional authorities would be on the same level as non-independent' bantustans. The move is also consistent with the long-term intention to establish a 'confederal' constitution in which the constituent elements are defined in terms of the apartheid notions of population groups.
The government was said to be hoping that legislation establishing the National Council would be approved by the White, Indian and Coloured houses of Parliament in June, allowing delimitation of regional constituencies in time for elections in 1989.
Responses to the proposals by opponents of apartheid were uniformly hostile, and similar to those meeting the earlier proposals for the National Council. The fact that the proposals confirmed the exclusion of the African majority from parliament was later emphasised by Botha.
NEW PROPOSALS
New subordinate structures for Africans outside the bantustans were proposed, and slight changes to the central system.
Regional elections would soon be held to identify 'representatives' of Africans outside the bantustans to participate in the National Council. There would be new regional authorities, probably nine, with responsibility for 'Own Affairs', elected by Africans outside the bantustans.
African representation at higher levels would be drawn from these bodies and non-'independent' bantustans. This would include the nominations described below as well as participation in a new 'policy-making body' chaired by the President and consisting mainly of members of the White, Indian and Coloured houses of Parliament.
Changes at the centre might include the nomination by the State President of Africans to the Electoral College which chooses the President; the President's Council; and the Cabinet which will be chaired by an appointed Prime Minister. Any African member would come from outside parliament. These bodies are, and would remain, under the control of the white minority.
