Impressions of South Africa

by Viscount James Bryce Bryce

The frame of government is, in Cape Colony as well as in Natal, essentially the same as in the other self-governing British Colonies. There is a Governor, appointed by the home Government, and responsible to it only, who plays the part which belongs to the Crown in Great Britain. He is the nominal head of the executive, summoning and proroguing the Legislature, appointing and dismissing ministers, and exercising, upon the advice of his ministers, the prerogative of pardon. There is a cabinet of five persons, including the heads of the chief administrative departments, who are the practical executive of the Colony, and are responsible to the Legislature, in which they sit, and at whose pleasure they hold their offices. There is a Legislature consisting of two houses—an Assembly, whose membership was raised in December, 1898, from seventy-nine to ninety-five, and a Legislative Council, with twenty-three members, besides the Chief Justice, who is ex officio President. In Cape Colony (for of the arrangements in Natal I have spoken in a previous chapter) both houses are elected on the same franchise—a low one; but the districts for the election of members of the Council are much larger, and therefore fewer, than the Assembly districts, so the former body is a small and the latter a comparatively numerous one.[76] The rights and powers of both houses are theoretically the same, save that money bills originate in the Assembly; but the Assembly is far more powerful, for the ministry holds office only so long as it has the support of a majority in that body, whereas it need not regard a hostile vote in the Council. Either the English or the Dutch language may be used in debate. Ministers have the right of speaking in both houses, but can, of course, vote only in the one of which they are members by popular election. If it happens that there is no minister who has a seat in the Council (as was the case in 1896), it is usual for the cabinet to allot one to be present in and look after that chamber for the day.

This cabinet system, as it is called, works pretty smoothly, on lines similar to that English original whence it is copied. The most interesting peculiarity is the Cape method of forming the smaller House. In England the Upper House is composed of hereditary members; in the Canadian confederation, of members nominated for life—both of them methods which are quite indefensible in theory. Here, however, we find the same plan as that which prevails in the States of the North American Union, all of which have senates elected on the same franchise, and for the same term, as the larger house, but in more extensive districts, so as to make the number of members of the senate or second chamber smaller. Regarding the merits of the Cape scheme, I heard different views expressed. Nobody seemed opposed in principle to the division of the Legislature into two houses, but many condemned the existing Council as being usually composed of second-rate men, and apt to be obstructive in its tendencies. Some thought the Council was a useful part of the scheme of government, because it interposed delay in legislation and gave time for reflection and further debate. One point came out pretty clearly. No difficulty is deemed to arise from the fact that there exist two popularly elected houses equally entitled to control the administration,[77] for custom has settled that the Assembly or larger house is that whose vote determines the life of a ministry. But it follows from this circumstance that the most able and ambitious men desire a seat in the more powerful chamber, leaving the smaller house to those of less mark. This is the exact reverse of what has happened in the United States; where a seat in the Senate is more desired than one in the House; but it is a natural result of the diverse arrangements of the two countries, for in the Federal Government the Senate has some powers which the House of Representatives does not enjoy, while in each of the several States of the Union, although the powers of the two houses are almost the same, the smaller number of each Senate secures for a senator somewhat greater importance than a member of the larger body enjoys. The Cape Colony plan of letting a minister speak in both houses works very well, and may deserve to be imitated in England, where the fact that the head of a department can explain his policy only to his own House has sometimes caused inconvenience.

So much for the machinery. Now let us note the chief points in which the circumstances of Cape Colony and of Natal (for in these respects both Colonies are alike) differ from those of the other self-governing Colonies of Britain.

The population is not homogeneous as regards race, but consists of two stocks, English and Dutch. These stocks are not, as in Canada, locally separate, but dwell intermixed, though the Dutch element predominates in the western province and in the interior generally, the English in the eastern province and at the Kimberley diamond-fields.

The population is homogeneous as regards religion, for nearly all are Protestants, and Protestants of much the same type. Race difference has fortunately not been complicated, as in Canada, by ecclesiastical antagonisms.

The population is homogeneous as respects material interests, for it is wholly agricultural and pastoral, except a few merchants and artisans in the seaports, and a few miners at Kimberley and in Namaqualand. Four-fifths of it are practically rural, for the interests of the small towns are identical with those of the surrounding country.

The population is not only rural, but scattered more thinly over a vast area than in any other British Colony, except north-western Canada, and parts of Australasia. In Natal there are only two white men to the square mile, and in Cape Colony less than two. Nor is this sparseness incidental, as in North America, to the early days of settlement. It is due to a physical condition—the condition of the soil—which is likely to continue.

Below the white citizens, who are the ruling race, there lies a thick stratum of coloured population numerically larger, and likely to remain so, because it performs all the unskilled labour of the country. Here is a condition which, though present in some of the Southern States of America, is fortunately absent from all the self-governing Colonies of Britain, and indeed caused Jamaica to be, some time ago, withdrawn from that category.

The conjunction of these circumstances marks off South Africa as a very peculiar country, where we may expect to find a correspondingly peculiar political situation. Comparing it to other Colonies, we may say that the Cape and Natal resemble Canada in the fact that there are two European races present, and resemble the Southern States of America in having a large mass of coloured people beneath the whites. But South Africa is in other respects unlike both; and although situated in the southern hemisphere, it bears little resemblance to Australia.

Now let us see how the circumstances above described have determined the political issues that have arisen in Cape Colony.