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“For anyone who might not yet have noticed, political decentralization is in fashion.” — Treisman (2007)
1.1 Introduction
With local government playing such a prominent role in this book’s analysis – and particularly in the triangular dynamics between it, national government and Eskom – this chapter provides a working definition of the concepts and terms applicable. It especially focuses on recurring themes directly impacting on discussions and analyses in some of the chapters that follow. We will unpack the functions of local government, its funding, its relationship with national government, and the inherent power dynamics and competing interests of the different parties involved. We consider both the international and the South African context in order to provide a common point of reference and ensure that we don’t make any distortions when applying our key concepts to South Africa. Firstly, we explore the connection between politics and administration. Secondly, we unpack notions of centralised and decentralised government. Both of these topics feed into the analysis of municipal funding models that follows.
1.2 The Link Between Politics and Public Administration
In “The Study of Administration”, Wilson (1887) argues that administrators are autonomous from politicians and can apply the principles of resource optimisation in the execution of their duties. They are thus able to manage the public sector in an efficient and independent manner. Given that public administration is an extension of the state, however, often with much more than administrative optimisation at play, a more pragmatic approach eventually came to the fore in the 1980s. This held that true independence from politics in public administration is not possible (Svara, 2001, p.180).
Accepting that the primary concern of public administration is to achieve objectives that are predominantly politically determined, and that public administration and politics cannot be separated, the question Tӧtemeyer (1985, p.1) poses is: Does the administrative function complement politics or is it subordinate to it? Tӧtemeyer argues that the answer is to be found in the extent to which democracy prevails in a country, whereby society holds government accountable through electoral democratic processes. This means it is necessary to maximise citizen participation at local government level. Mechanisms must be in place to ensure local governors are held responsible to the governed for their actions (Blair, 2000, p.35).
1.3 Centralised and Decentralised Government
1.3.1 Overview of and Developments During the 20th Century
The definition of democratic local government is universal: An administrative and executive body that is elected by the community it represents to preside over the inhabitants of a specific geographic area. Local governments vary in size and structure and operate under different conditions, depending on a country’s system of government. In theory, local governments strive to meet