A Comparative Legal Analysis of Local Government Autonomy in South Africa and Tanzania

• Citation: (2023) 10(2) Journal of Comparative Law in Africa 1
• DOI: https://doi.org/10.47348/JCLA/v10/i2a1
• Published date: 13 February 2024
• Pages: 1-39
• Author: Fuo, O.
• Date: 13 February 2024

1

A COMPARATIVE LEGAL ANALYSIS OF LOCAL

GOVERNMENT AUTONOMY IN SOUTH AFRICA

AND TANZANIA*

Oliver Fuo**

Daniel Mirisho Pallangyo***

Abstract

Over the past thirty years, there has been an increased drive towards decentralisation

in Africa with the adoption of national constitutions that guarantee varying

degrees of protection to local governments. In 2014, the African Union (AU)

adopted the African Charter on Values and Principles of Decentralisation, Local

Governance and Local Development (2014) to guide the decentralisation project

for member states. The Charter acknowledges that the protection of local autonomy

in decentralised legal frameworks is necessary for local governments to deliver on

their developmental mandates. In this article, we explore from a comparative law

perspective, how local autonomy is protected in the constitutions of South Africa

and Tanzania. We also consider legislation regulating decentralisation in South

Africa and Tanzania, comparing the similarities, differences, and challenges to

local autonomy in these two countries in view of their different national legal

frameworks. The comparative legal analysis helps to show the unique nature of

the systems of decentralisation in both countries and lessons that can inform law

reform. Although there are comparative studies on subnational autonomy in Africa,

none has specifically compared local government autonomy in South Africa and

Tanzania. The research is based on a critical and integrated analysis of primary

and secondary sources of law.

Keywords: decentralisation; local governments; local autonomy;

comparative legal analysis; South Africa; Tanzania

Résumé

Au cours des trente dernières années, le mouvement de décentralisation s’est

intensifié en Afrique avec l’adoption de constitutions nationales qui garantissent

divers degrés de protection aux collectivités locales. En 2014, l’Union africaine

(UA) a adopté la Charte africaine des valeurs et principes de la décentralisation,

de la gouvernance locale et du développement local (2014) pour guider le projet de

* This work is based on research supported in part by the National Research Foundation

(NRF) of South Africa (Grant Number 115242). All views, conclusions and errors are ours. Part

of the discussion on the legal framework, and the history of local government in South Africa is

taken from one of the author’s LLD thesis: Fuo, Oliver Local government’s role in the pursuit of the

transformative constitutional mandate of social justice in South Africa (unpublished LLD thesis, North-West

University, Potchefstroom Campus 2014).

** LLB, LLM, & LLD. Associate Professor, North-West University, South Africa.

*** LLB, LLM & LLD. Extraordinary Senior Lecturer, North-West University, South Africa;

Senior Lecturer, Tumaini University, Tumaini Makumira, Tanzania.

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(2023) 10(2) Journal of Comparative Law in Africa 1

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2 JOURNAL OF COMPARATIVE LAW IN AFRICA VOL 10, NO 2, 2023

décentralisation dans les États membres. La Charte reconnaît que la protection de

l’autonomie locale dans les cadres juridiques décentralisés est nécessaire pour que

les gouvernements locaux puissent remplir leurs mandats de développement. Dans

cet article, nous explorons, dans une perspective de droit comparé, la manière dont

l’autonomie locale est protégée dans les constitutions et les législations régissant la

décentralisation en Afrique du Sud et en Tanzanie. Nous comparons les similitudes,

les différences et les défis de l’autonomie locale en Afrique du Sud et en Tanzanie,

en tenant compte des différents cadres juridiques nationaux. L’analyse juridique

comparative permet de mettre en évidence les caractéristiques uniques des systèmes

de décentralisation dans les deux pays et les leçons qui peuvent être tirées de

la réforme législative. Bien qu’il existe des études comparatives sur l’autonomie

infranationale en Afrique, aucune n’a spécifiquement comparé l’autonomie des

gouvernements locaux en Afrique du Sud et en Tanzanie. La recherche est basée

sur une analyse critique et intégrée des sources primaires et secondaires du droit.

Mots-clés : décentralisation; gouvernements locaux; autonomie locale;

analyse juridique comparative; Afrique du Sud; Tanzanie

Introduction

Local governments are generally recognised as important role-players

contributing towards addressing pervasive global problems.1 As a result of

globalisation, the dynamic landscape of governance, and the astonishing

levels of urbanisation and their attendant challenges, some scholars argue

that the world cannot resolve weighty global challenges such as poverty

and climate change without the contribution of local governments.2 This

view is also reflected in a variety of international instruments that have

been adopted to address some of these pressing global challenges. For

example, the Preamble of the Paris Agreement (2015) acknowledges the

role of all levels of government in contr ibuting towards addressing climate

change.3 In addition, Goal 11 of the UN Sustainable Development Goals

(2015)4 is exclusively dedicated to the role of cities in the pursuit of

sustainability and it generally mandates local authorities to make cities and

1 There is no universally accepted definition of local government. In this context, a local

government refers to a legally recognised municipal government which exercises legislative,

administrative, and executive powers within a clearly defined geographical boundary. See Fuo, O.

Zengerling, C. & Sotto, D. ‘A comparative legal analysis of urban climate mitigation and adaptation

in the building sector in Brazil, Germany and South Afr ica’ (2022) 12 Climate Law 32 at 39. In this

article, we use the words “local governments”, “municipalities” and “cities” interchangeably.

2 Du Plessis, A. ‘The readiness of South African law and policy for the pursuit of Sustainable

Development Goal 11’ (2017) 21 Law, Democracy and Development 239 at 239-240; Fuo, O. ‘The role

of local governments in providing social protection in the context of the SDGs: The position of

South African municipalities’ (2019) 6 African Journal of Democracy and Governance 45 at 48.

3 The Preamble of the Paris Agreement (2015) recognises “the impor tance of the engagements

of all levels of government and various actors, in accordance with respective national legislations of

Parties, in addressing climate change”.

4 UN Transforming Our World: The 2030 Agenda for Sustainable Development (2015) (hereafter, SDGs).

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A COMPARATIVE LEGAL ANALYSIS OF LOCAL GOVERNMENT AUTONOMY IN

SOUTH AFRICA AND TANZANIA 3

human settlements inclusive, safe, resilient and sustainable by 2030. Goal 11

contains specific targets on issues such as access to housing and basic

services; access to sustainable transport systems; sustainable urbanisation

and participatory, integrated development planning; air quality and waste

management; and climate change.5 According to Aust and Du Plessis,

“SDG 11 proves that local governance is recognised as an autonomous

yet interrelated part of the global pursuit of sustainable development.”6

The focus on the role of local governments in advancing sustainable

development at local level is also attributed to the fact that they are well-

placed to design and implement local solutions and strategies that suit their

specific contexts; and they are also well-positioned to promote public-

private partnerships between a variety of stakeholders.7 Besides that, the

principle of institutional subsidiarity reinforces the role and relevance

of local governments. In brief, the principle requires that national and

regional governments should assign to local governments functions

which can best be discharged at the local level.8The principle stresses

that political decisions and their implementation should be carried out

by the level of government closest to the people, except where it is not

appropriate to do so.9The principle is of practical relevance in many

countries where central governments cannot effectively respond to the

diverse needs of citizens in far-flung areas.

In Africa, many countries recognise the potential role that local

governments can play in promoting local development. This is evident

from the fact that many recent constitutions of African countries have

dedicated provisions to local government matters.10While the legal

protection of local government in some African countries was borne out

of an internal desire for institutional reform, some were a response to the

pressure for democratisation and good governance that was mounted by

5 See paras 11.111.7 and 11a, 11c of Goal 11 of the SDGs.

6 Aust, H. & Du Plessis, A. ‘Introduction: The globalisation of urban governance – legal

perspectives on Sustainable Development Goal 11’ in Aust, H. & Du Plessis, A. (eds) The Globalisation

of Urban Governance: Legal Perspectives on Sustainable Development Goal 11 1 ed (2019) 1-5.

7 See Fuo, Zengerling & Sotto op cit note 1 at 32; Erk, J. ‘Federalism and decentralisation in

Sub-Saharan Africa: Five patterns of evolution’ (2014) 24 Regional and Federal Studies 535 at 537;

Fessha, Y. & Kirkby, C. ‘A critical survey of subnational autonomy in African states’ (2008) 38 Publius:

The Journal of Federalism 248.

8 See Friesen, M. ‘Subsidiarity and federalism: An old concept with contemporary relevance

for political society’ (2003) 1 Federal Governance: A Graduate Journal of Theory and Politics 1 at 56;

Du Plessis, A. ‘A role for local government in global environmental governance and transnational

environmental law from a subsidiarity perspective’ (2015) 48 Comparative and International Law

Journal of Southern Africa 281–316.

9 UN-HABITAT International Guidelines on Decentralisation and the Strengthening of Local

Authorities (2007) at 4, paras 16.

10 See ch 7 of the Constitution of the Republic of South Africa, 1996; ch 11 of the Constitution

of Kenya, 2010; ch 14 of the Constitution of Zimbabwe Amendment Act 20 of 2013; ch 7 of the

Constitution of the Tunisian Republic, adopted 26 January 2014.

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