Social policy in South Africa: Navigating the route to social development

Abstract

Abstract This paper reflects on the trajectory of social policy in South Africa (1994–2017) and on which policy levers present opportunities for cross-country policy transfer, in order to address current social development challenges. The current direction of social policy is described as the result of a compromise between two distinct alternative paradigms whereby the statist transformative and market-oriented residual paradigms are held in tension. On the one hand, a transformative policy perspective draws on human rights and views redistribution as a necessary premise for and means of economic growth. On the other hand in the residual framework, redistribution is envisaged as a secondary function that is dependent on economic growth. Several instances are outlined in which this tension is evident, together with the implications for social policy across the policy cycle: in legislation; in social compact formation; in the selection of social programmes and in their implementation; in gender-mainstreaming and in the engagement of the private sector in social policy. Overall we highlight areas of hybrid policy overlap between these bifurcated ideological, political and institutional frameworks, for example around social transfers and corporate social investment. We also describe instances of conflicting and at times unexpected outcomes, such as the National Health Insurance. Several factors are concluded to be of relevance to the Global South more generally: the importance of constitutionally-legislated rights as a basis for advancing socio-economic claims; the emergence of new social compacts in contexts where there are significant levels of informal employment and unemployment and lastly, the influence of fiscal and institutional capability factors in shaping the direction of social policy and its implementation.