7 - Commissions of Inquiry: The Hybrid Hollowing Out of State Governance in South Africa
Corresponding Author(s) : TK Pooe
Afrique et développement,
Vol. 49 No 4 (2024): Afrique et développement
Résumé
La publication, mi-2022, du rapport de la Commission d’enquête judiciaire sur les allégations de captation de l’État a porté à douze le nombre de commissions d’enquête officielles (CE) menées à terme depuis 2001. Au cours de cette période, le recours à et la création de CE ont considérablement augmenté. Cet article soutient que la création, dans des circonstances inappropriées, de CE doit être considérée comme une pratique inquiétante de la part du gouvernement dirigé par le Congrès national africain (ANC) qui a pour objectif d’externaliser son rôle de leadership politique et institutionnel vers des dispositifs quasi juridiques tels que les CE. Cet article s’appuie sur la théorie du choix rationnel/théorie du choix pour examiner les termes de référence de deux dernières CE. Il soutient ensuite que les capacités de l'État ont connu un déclin marqué et que la mise en place de commissions d'enquête sur la base de décisions politiques de l'ANC constitue une forme hybride de
« désagrégation de la gouvernance étatique », c'est-à-dire une externalisation de la gouvernance et du leadership vers des commissions d'enquête. Cela compromet la capacité du gouvernement à résoudre les problèmes socio-économiques et institutionnels de politique publique. En Afrique du Sud, de nouvelles normes d'usage gouvernementales sont nécessaires pour décider de l’opportunité de créer des commissions d'enquête chargée d'examiner et de rendre compte d'une préoccupation sociétale importante.
Mots-clés
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- Arrow, K., 2012, Social Choice and Individual Values, 3rd edition. New Haven, CT: Yale University Press.
- Ayuk, P. and Koma, S., 2019, ‘Funding, Access and Quality Conundrum in South African Higher Education’, African Journal of Public Affairs, Vol. 11, No. 1.
- AZAPO Voice, 2018, ‘The Zondo Commission is Designed to Calm Down the Nation’, AZAPO Voice, Vol. 1, Issue 26. Available online at: https://azapo.org. za/wp-content/uploads/2022/02/AZAPO-Voice-Volume-1-Issue-26.pdf.
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- Becker, G.S., Grossman, M. and Murphy, K.M., 1994, ‘An Empirical Analysis of Cigarette Addiction’, American Economic Review, Vol. 84, No. 3, pp. 396–418.
- Booysen, S., 2011, The African National Congress and the Regeneration of Political Power, Johannesburg: Wits University Press.
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- Dicey, L., 2019, ‘The Impact of Corruption on Tax Administration’, Tax Professional: Official Journal of the South African Institute of Professional Accountants, Issue 34. DoE (Department of Education), 1997, Education White Paper 3: A Programme for the Transformation of Higher Education, Pretoria: DoE. Available online at: https://www.gov.za/sites/default/files/gcis_document/201409/18207gen11960.pdf.
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- Haffajee, F. and Chipkin, I., 2022, Days of Zondo: The Fight for Freedom from Corruption. Cape Town: Daily Maverick.
- Hendricks, F., 2018, ‘What’s Public About the Public Investment Corporation?’, Amandla Magazine, 20 August, Issue 58. Available online at: https://aidc.org. za/whats-public-about-the-public-investment-corporation/.
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- Howlett, M., 2000, ‘Managing the “Hollow State”: Procedural Policy Instruments and Modern Governance’, Canadian Public Administration, Vol. 43, No. 4, pp. 412–31.
- Hyman, D., 2010, Public Finance: A Contemporary Application of Theory to Policy, 10th edition, Boston, MA: Cengage.
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- Lester, C-A.L., 2016, Truth in the Time of Tumult. Tracing the Role of Official ‘Truth-seeking’ Commissions of Inquiry in South Africa, from Sharpeville to Marikana. Unpublished Masters’ dissertation, University of Cape Town.
- Masterson, G., 2018, ‘Conclusion’, in M. Meirotti and G. Masterson, eds. State Capture in Africa: Old Threats, New Packaging?, Johannesburg: Electoral Institute for Sustainable Democracy in Africa.
- Mazzucato, M., Qobo, M. and Kattel, R., 2021, ‘Building State Capacities and Dynamic Capabilities to Drive Social and Economic Development: The Case of South Africa’, Working Paper WP 2021/09, London: University College London Institute for Innovation and Public Purpose. Available online at: https://www. ucl.ac.uk/bartlett/public-purpose/sites/public-purpose/files/final_the_case_of_ south_africa_mazzucato_kattel_qobo_21-09.pdf.
- Munck, G., 2001, ‘Game Theory and Comparative Politics: New Perspectives and Old Concerns’, World Politics, Vol. 53, January, pp: 173–204. Available online at: https://ssrn.com/abstract=2480778.
- Mkhatshwa, S. 2018. ‘State capture: Here’s why the Zondo Commission is important’. News24, 24 August.
- Nakaska, J. D.J., 2010, ‘Rational Choice Theory: Why Irrationality Makes More Sense for Comparative Politics’, in H.J. Wiarda, ed., Grand Theories and Ideologies in the Social Sciences, London: Palgrave-Macmillan, pp. 127–40.
- Nicol, M., 2022, ‘Fix Parliament’s Committees: We Can’t Afford to Ignore the Zondo Commission Report’, New Agenda: South African Journal of Social and Economic Policy, Vol. 86, No. 1, p. 3.
- Norris, E. and Shepheard, M., 2017, How Public Inquiries Can Lead to Change, London: Institute for Government. Available online at: https://www. instituteforgovernment.org.uk/publication/report/how-public-inquiries-can-lead-change.
- Ogu, M.I., 2013, ‘Rational Choice Theory: Assumptions, Strengths and Greatest Weaknesses in Application Outside the Western Milieu Context’, Arabian Journal of Business and Management Review (Nigerian Chapter), Vol. 1, No. 3, pp. 90–9.
- OHCHR (Office of the United Nations High Commissioner for Human Rights), 2015, Commissions of Inquiry and Fact-Finding Missions on International Human Rights and Humanitarian Law: Guidance and Practice, New York and Geneva: OHCHR.
- Peté, S.A., 2021, ‘Commissions of Inquiry as a Response to Crisis: The Role of the Jali Commission in Creating Public Awareness of Corruption (Part 2)’, Obiter, Vol. 42, No. 2. Available online at: https://obiter.mandela.ac.za/article/ view/11921.
- PIC (Public Investment Corporation), n.d., ‘Board and Governance Framework’, Public Investment Corporation. Available online at: https://www.pic.gov.za/Pages/ board.aspx.
- Pillay, D., 2022, The Zondo Commission: A Bite-Sized Summary,s Johannesburg: Public Affairs Research Institute.
- Presidency of the Republic of South Africa, 2000, Report of the Judicial Commission of Enquiry into Allegations of Impropriety at the Public Investment Corporation. Available online at: https://www.justice.gov.za/commissions/pic/docs/PIC-Commission-Report.pdf.
- Ramela, A., 2022. ‘State capture inquiry: Almost R1 billion spent. Was it worth it?’, Eyewitness News, 27 June.
- Riker, W., 1962, The Theory of Political Coalitions. New Haven, CT: Yale University Press.
- Tshwaku, K., 2021, ‘20 Years On: Kaizer Motaung on Ellis Park Disaster: “A Day that Cannot be Removed from Memory”’, News24, 11 April. Available online at: https://www.news24.com/sport/20-years-on-kaizer-motaung-on-ellis-park-disaster-a-day-that-cannot-be-removed-from-memory-20210411.
- Van Niekerk, G.J., 1995, The Interaction of Indigenous Law and Western Law in South Africa: A Historical and Comparative Perspective, Unpublished Doctoral thesis, University of South Africa. Available online at: http://hdl.handle. net/10500/17738.
- WBA (World Benchmarking Alliance), 2021, ‘Public Investment Corporation (PIC)’. Available online at: https://www.worldbenchmarkingalliance.org/publication/ financial-system/companies/public-investment-corporation-pic/.
- World Bank, 2011, Writing Terms of Reference for an Evaluation: A How-To Guide, Washington, DC: World Bank Independent Evaluation Group.
Les références
AFC (Africa Finance Cooperation), 2022, ‘Africa’s Largest Asset Manager Pic Leads Pension Funds Investing in Continent’s Infrastructure Via AFC’, Africa Finance Cooperation, 2 August. Available online at: https://www.africafc.org/news-and-insights/news/africas-largest-asset-manager-pic-leads-pension-funds-investing-in-continents-infrastructure-via-afc.
ANC (African National Congress), 2022, Umrabulo, Policy Conference 2022 Special Edition. Available online at: https://www.anc1912.org.za/umrabulo-2/.
Anisin, A, 2021, ‘Identity, Repression, and the Collapse of Apartheid’, Strategic Review for Southern Africa, Vol 43, No 2.
Arrow, K., 2012, Social Choice and Individual Values, 3rd edition. New Haven, CT: Yale University Press.
Ayuk, P. and Koma, S., 2019, ‘Funding, Access and Quality Conundrum in South African Higher Education’, African Journal of Public Affairs, Vol. 11, No. 1.
AZAPO Voice, 2018, ‘The Zondo Commission is Designed to Calm Down the Nation’, AZAPO Voice, Vol. 1, Issue 26. Available online at: https://azapo.org. za/wp-content/uploads/2022/02/AZAPO-Voice-Volume-1-Issue-26.pdf.
Barrios, S. and Schaechter, A., 2008, The Quality of Public Finances and Economic Growth, European Economy - Economic Papers 2008–2015 337, Brussels: European Commision Directorate General Economic and Financial Affairs. Available online at: https://ideas.repec.org/p/euf/ecopap/0337.html.
Becker, G.S., 1976, ‘The Economic Approach to Human Behavior’, in G.S. Bekker, ed., The Economic Approach to Human Behavior. Chicago and London: The University of Chicago Press, pp. 3–14.
Becker, G.S. and Murphy, K.M, 1988. ‘A Theory of Rational Addiction’, Journal of Political Economy, Vol. 96, No. 4, pp. 675–700.
Becker, G.S., Grossman, M. and Murphy, K.M., 1994, ‘An Empirical Analysis of Cigarette Addiction’, American Economic Review, Vol. 84, No. 3, pp. 396–418.
Booysen, S., 2011, The African National Congress and the Regeneration of Political Power, Johannesburg: Wits University Press.
Brümmerhoff, D., 2011, Finanzwissenschaft 10 Auflage, München. Oldenburg Verlag. Buchanan, J. and Tullock, G., 1962, The Calculus of Consent. Ann Arbor, MI: University of Michigan Press.
Dicey, L., 2019, ‘The Impact of Corruption on Tax Administration’, Tax Professional: Official Journal of the South African Institute of Professional Accountants, Issue 34. DoE (Department of Education), 1997, Education White Paper 3: A Programme for the Transformation of Higher Education, Pretoria: DoE. Available online at: https://www.gov.za/sites/default/files/gcis_document/201409/18207gen11960.pdf.
DoE (Department of Education), 2001, National Plan for Higher Education, Pretoria: DoE.
Downs, A., 2020, An Economic Theory of Democracy, New York: Harper and Row. Elster, J., 1989, ‘Social Norms and Economic Theory’, Journal of Economic Perspectives, Vol. 3, No. 4, pp. 99–117.
Gandhi, D., 2005. ‘Rational Choice Theory in Political Science: Mathematically Rigorous but Flawed in Implementation’, Critique: A Worldwide Journal of Politics, Spring, pp. 80–92.
Haffajee, F. and Chipkin, I., 2022, Days of Zondo: The Fight for Freedom from Corruption. Cape Town: Daily Maverick.
Hendricks, F., 2018, ‘What’s Public About the Public Investment Corporation?’, Amandla Magazine, 20 August, Issue 58. Available online at: https://aidc.org. za/whats-public-about-the-public-investment-corporation/.
Herfeld, C., 2022, ‘Revisiting the Criticisms of Rational Choice Theories’, Philosophy Compass, Vol. 17, No. 1, pp. 1–20.
Howlett, M., 2000, ‘Managing the “Hollow State”: Procedural Policy Instruments and Modern Governance’, Canadian Public Administration, Vol. 43, No. 4, pp. 412–31.
Hyman, D., 2010, Public Finance: A Contemporary Application of Theory to Policy, 10th edition, Boston, MA: Cengage.
IRBA (Independent Regulatory Board for Auditors), n.d., ‘South African Concerns’, IRBA. Available online at: https://www.irba.co.za/guidance-for-ras/general-guidance/mandatory-audit-firm-rotation/south-african-concerns.
Kew, J., 2020. ‘Inquiry Alleges “Substantial Impropriety” at South Africa’s PIC’, Bloomberg, 3 December. Available online at: https://www.bloomberg.com/ news/articles/2020-03-12/inquiry-into-south-africa-s-pic-implicates-senior-management.
Kohn, L., 2024, ‘Integrity & Accountability Commissions of Inquiry: A South African Perspective’, Utrecht Law Review, Vol. 20, No. 4, pp. 98–119. Available online at: https://utrechtlawreview.org/articles/1045/files/676014d5edfb1.pdf. Kulawik, J., 2020, ‘Public Choice Theory as a Tool for Explaining Genesis and Development of Social Insurance’, Ubezpieczenia w Rolnictwie– Materiały i Studia, Vol. 2, No. 74, pp. 143–68.
Lester, C-A.L., 2016, Truth in the Time of Tumult. Tracing the Role of Official ‘Truth-seeking’ Commissions of Inquiry in South Africa, from Sharpeville to Marikana. Unpublished Masters’ dissertation, University of Cape Town.
Masterson, G., 2018, ‘Conclusion’, in M. Meirotti and G. Masterson, eds. State Capture in Africa: Old Threats, New Packaging?, Johannesburg: Electoral Institute for Sustainable Democracy in Africa.
Mazzucato, M., Qobo, M. and Kattel, R., 2021, ‘Building State Capacities and Dynamic Capabilities to Drive Social and Economic Development: The Case of South Africa’, Working Paper WP 2021/09, London: University College London Institute for Innovation and Public Purpose. Available online at: https://www. ucl.ac.uk/bartlett/public-purpose/sites/public-purpose/files/final_the_case_of_ south_africa_mazzucato_kattel_qobo_21-09.pdf.
Munck, G., 2001, ‘Game Theory and Comparative Politics: New Perspectives and Old Concerns’, World Politics, Vol. 53, January, pp: 173–204. Available online at: https://ssrn.com/abstract=2480778.
Mkhatshwa, S. 2018. ‘State capture: Here’s why the Zondo Commission is important’. News24, 24 August.
Nakaska, J. D.J., 2010, ‘Rational Choice Theory: Why Irrationality Makes More Sense for Comparative Politics’, in H.J. Wiarda, ed., Grand Theories and Ideologies in the Social Sciences, London: Palgrave-Macmillan, pp. 127–40.
Nicol, M., 2022, ‘Fix Parliament’s Committees: We Can’t Afford to Ignore the Zondo Commission Report’, New Agenda: South African Journal of Social and Economic Policy, Vol. 86, No. 1, p. 3.
Norris, E. and Shepheard, M., 2017, How Public Inquiries Can Lead to Change, London: Institute for Government. Available online at: https://www. instituteforgovernment.org.uk/publication/report/how-public-inquiries-can-lead-change.
Ogu, M.I., 2013, ‘Rational Choice Theory: Assumptions, Strengths and Greatest Weaknesses in Application Outside the Western Milieu Context’, Arabian Journal of Business and Management Review (Nigerian Chapter), Vol. 1, No. 3, pp. 90–9.
OHCHR (Office of the United Nations High Commissioner for Human Rights), 2015, Commissions of Inquiry and Fact-Finding Missions on International Human Rights and Humanitarian Law: Guidance and Practice, New York and Geneva: OHCHR.
Peté, S.A., 2021, ‘Commissions of Inquiry as a Response to Crisis: The Role of the Jali Commission in Creating Public Awareness of Corruption (Part 2)’, Obiter, Vol. 42, No. 2. Available online at: https://obiter.mandela.ac.za/article/ view/11921.
PIC (Public Investment Corporation), n.d., ‘Board and Governance Framework’, Public Investment Corporation. Available online at: https://www.pic.gov.za/Pages/ board.aspx.
Pillay, D., 2022, The Zondo Commission: A Bite-Sized Summary,s Johannesburg: Public Affairs Research Institute.
Presidency of the Republic of South Africa, 2000, Report of the Judicial Commission of Enquiry into Allegations of Impropriety at the Public Investment Corporation. Available online at: https://www.justice.gov.za/commissions/pic/docs/PIC-Commission-Report.pdf.
Ramela, A., 2022. ‘State capture inquiry: Almost R1 billion spent. Was it worth it?’, Eyewitness News, 27 June.
Riker, W., 1962, The Theory of Political Coalitions. New Haven, CT: Yale University Press.
Tshwaku, K., 2021, ‘20 Years On: Kaizer Motaung on Ellis Park Disaster: “A Day that Cannot be Removed from Memory”’, News24, 11 April. Available online at: https://www.news24.com/sport/20-years-on-kaizer-motaung-on-ellis-park-disaster-a-day-that-cannot-be-removed-from-memory-20210411.
Van Niekerk, G.J., 1995, The Interaction of Indigenous Law and Western Law in South Africa: A Historical and Comparative Perspective, Unpublished Doctoral thesis, University of South Africa. Available online at: http://hdl.handle. net/10500/17738.
WBA (World Benchmarking Alliance), 2021, ‘Public Investment Corporation (PIC)’. Available online at: https://www.worldbenchmarkingalliance.org/publication/ financial-system/companies/public-investment-corporation-pic/.
World Bank, 2011, Writing Terms of Reference for an Evaluation: A How-To Guide, Washington, DC: World Bank Independent Evaluation Group.