LABOR AND DEMOCRACY IN NAMIBIA, 1971-1996. Gretchen Bauer. Athens: Ohio University Press, 1998. pp. 229 . Cloth: $34.95; Paper: $17.95.

The literature on democratic transitions occurring in many African countries has recently moved from comprehensive studies of the transition process (i.e., elections, national conferences, constitutions, etc.) to detailed case studies of democratic survival. A secondary focus has been on the role civil society can play in the democratization process, particularly in democratic consolidation. Labor and Democracy in Namibia, 1971-1996, both analytical and documentary in style, provides a critical case study for this growing body of literature by examining the involvement of labor movements in the struggle for democracy in Namibia.

Bauer draws on materials not widely available before independence in 1990 and on interviews with political leaders, community activists, trade unionists, and employers. She has two aims. The first is to provide a current description as well as trace the historical origins and development of unions, the central labor movement, and industrial relations in Namibia. Within this frame of reference, the author examines various influences on the labor movement, relations between unions and employees, attitudes of employees and employers toward unionism, the role of the state, and the political and industrial strategies of the unions. In particular, the author examines the industrial strike of 1970-1971, which was to ultimately shape industrial relations in Namibia.

The second aim of the book is to describe how the labor movement in Namibia can generate strong, autonomous, organizations which then play a major role in building and safeguarding democracy in Namibia. However, in the first years of independence, labor appears to be in a weakened and precarious position, thus diminishing the prospects for the successful consolidation of democracy in Namibia. The reasons for this weakness lie in the skewed nature of the economy and the legacy of labor policies produced by oppressive colonial and apartheid regimes. This weakness is also attributed to the close affiliation of the major trade union federation in Namibia, the National Union of Namibian Workers (NUNW), with the nationalist political party South West Africa Peoples Organization (SWAPO).

Not everyone will agree with Bauer's arguments and conclusions, particularly members of the central labor movement. The book suggests that they decided to subordinate the unions to the nationalist struggle and postpone development efforts until after independence. A more detailed analysis of how this issue affected consolidation efforts would help clarify a potentially controversial conclusion. Although democracy and democratic consolidation features in the title, the book includes little discussion on democratic consolidation at the conceptual level. For example, what factors assist or impede democratic transition? Near the beginning of this book, Bauer asserts that Namibia has brighter prospects for the consolidation of democracy than any other country in Africa. There is no reasoned account to this optimism. In specific terms, what will it take to consolidate Namibia's nascent democracy? Perhaps, with these and related issues more fully addressed, Bauer's conclusions on the role of labor in Namibia would appear less controversial.

This work should be manifestly situated within the labor relations literature, and latently situated within the democratic discourse. Except for the last chapter and a brief highlight in the introductory chapter, the book is a complete documentary analysis of labor, employer, SWAPO, and state relations in the colonial period and early years of independence. Very little attention is given to the political vanguard role that labor unions often play in the democratization process. Rather, this book shows how labor unions in Namibia have used their relative power (through strikes and violence) to play a traditional role (to improve the terms and conditions of employment). The author points to this as part of the overall strategy for national liberation.

This book is very well written and organized, but its greatest strength lies in demonstrating the value of interviews and the participant observation method for social research. This is especially true for Africa, where most scholars on democracy churn out quantitatively informed books. The findings of these studies are, in many cases, at variance with the reality on the ground. The interviews employed by Bauer provide for a more balanced account and analysis. Students (graduate and undergraduate), teachers, labor leaders, and general interest readers seeking a clear discussion on the role of labor movements in Africa will find this work useful and beneficial.

Osaore Aideyan
Department of Politics
Claremont Graduate University