Abstract
This study critically investigated the role of trade unions, specifically the Congress of South African Trade Unions (COSATU), in the formulation of social development policy in post-apartheid South Africa, using the National Health Insurance (NHI) Bill as a focal case. Rooted in the framework of the interest group theory (IGT), the research explored how COSATU operates as both an institutional actor and a mass-based movement in a democratic policymaking environment. Drawing on a qualitative methodology that integrated in-depth interviews and documentary analysis, the study examined the nature, scope, and limitations of COSATU’s influence on policy platforms such as the National Economic Development and Labour Council (NEDLAC).
The findings confirm that trade unions, far from being obsolete, continue to play a pivotal role in shaping redistributive and developmental policy in South Africa. The NHI is shown to be an essential social development policy that is aligned with COSATU’s broader mission to promote equity, universal access to healthcare, and socio-economic transformation. While government mechanisms such as NEDLAC provide formal access to policy formulation, the study revealed that meaningful influence remains conditional and is shaped by institutional responsiveness, internal union capacity, and strategic coalition building.
Through its application of the IGT, this research illustrates how COSATU mobilises institutional access, political alliances, and grassroots support to influence policy. However, its impact is mediated by external constraints and internal challenges, including resource limitations and political fragmentation. Ultimately, this study contributes to a deeper understanding of organised labour’s evolving role in South Africa’s policy ecosystem and highlights the potential and precariousness of participatory governance in advancing social justice.