Crafting new democratic spaces: participatory policy-making in KwaZulu-Natal, South Africa

Abstract

The purpose of the paper is to explore the notion of deliberative policy-making within the context of provincial executive governance in the province of KwaZulu-Natal, South Africa. The paper considers literature on different forms of democracy, and assesses challenges faced in engaging with citizens and drawing them into processes of governance. It draws on field-based research into existing mechanisms to facilitate public participation in policy processes in KZN, and the experiences of civil society organisations in attempting to engage with these. It examines access to and representation of civil society organisations in participatory initiatives, and the nature and design of participatory spaces themselves, building on literature in this regard, and issues raised in action-research processes.

Introduction

This paper seeks to look at whether new democratic spaces can be crafted to enable marginalised groups to engage with policy processes from an empowered position. In the context of the research that informs this paper, 'new democratic spaces' are opportunities created for civil society stakeholders to engage in the policy-making process, in ways that seek to overcome obstacles to participation by marginalised groups.

A consideration of the literature relating to democracy and the notion of new democratic spaces prompts the following sub-questions, which we seek to answer through field research findings, in dialogue with the literature:

• • why do we need new democratic spaces in a 'new' South Africa?

• • how can civil society engage with policy processes with greater equity — and what transformation is required on the part of government to be receptive to this?

• • what design elements are needed to craft and facilitate new democratic spaces?

We explore these questions within the context of government policy-making in the province of KwaZulu-Natal (KZN), primarily within the provincial executive policy arena. This exploration is grounded in the belief that ordinary people have the right to participate in the decision-making processes that affect their lives, and that informed policy-making leads to better policy, that is more responsive to community's needs.

We present an emerging participatory model in KZN, acknowledging some of the inherent challenges and tensions. This is an innovative attempt to involve citizens in creating new spaces for policy deliberation — a meeting point of government's 'invited' and civil society's 'claimed' spaces (McGee 2004, Cornwall 2004). Finally, the paper reflects what the findings have demonstrated, concluding with a synthesis of key issues raised, and identifying gaps where further work is required.

The paper commences with a framing of the problem: problematising issues relating to democracy — its deficit in its failure meaningfully to link citizens with processes of the state, and presenting approaches to deepening democracy. The notion of public participation itself is also explored — examining when attempts at participation may be viewed as co-optation; and finally, the concept of civil society is interrogated, including assumptions around its representation, power and voice.

The paper then moves to consider the South African political arena, and why there might be a need for new democratic spaces to enhance citizen participation. We consider existing systems and opportunities, political will and opinions of policy makers, and counter this with the experiences of civil society groups in engaging with policy processes, within the context of unequal power relations.

The paper then questions what interventions might be needed to enable civil society to engage with greater equity in policy processes, addressing issues relating to representation, accountability and voice, and certain preconditions that would need to be met before civil society groups could engage. Examining the other side of the equation, the paper explores how bureaucracies themselves would need to transform to better facilitate meaningful citizen engagement.

Finally, the paper examines a possible approach to crafting democratic spaces, addressing issues relating to the space for engagement, and then presenting an emerging model of a space jointly crafted by state and civil society actors. The paper concludes with recommendations on future considerations to support the functioning of such a 'new' democratic space.

Methodology

The methodology comprised:

• • a visioning conference of policy...