Not Much Else Mandela Could Do : South African legend offers dual voting system to calm all groups

The new South Africa must remain governable after apartheid if democracy is to take root. The next president, very probably Nelson Mandela, cannot afford constant attacks from blacks or whites who fear domination by his African National Congress. Better to resolve these conflicts before the April elections solidify the transfer of power but perhaps trigger a permanent Balkanization.

The most difficult challenge remains how to placate an unlikely but powerful alliance of spoilers: thousands of secession-minded Zulus and white right-wing extremists who demand their own independent nations and plan to boycott the balloting. They must be included in the process.

Mandela is not inflexible. Although the hugely popular leader need not compromise to be elected, he must make concessions to discourage bloody divides if he is to govern effectively. He acknowledges that “we must treat the threat of civil war seriously.” To discourage further violence, he must foster participation in the new democracy by South Africans who do not pledge allegiance to his ANC.

Mandela is now willing to hold two separate votes, one to elect national leaders and the other to pick regional leaders. The twin votes would replace the proposed single vote that would have given the ANC an advantage in both national and regional races. The double balloting would allow Zulus, for example, a greater say in how their region would be governed. It is a practical move. But is it enough?

President Frederik W. de Klerk thinks the compromise is sufficient to clear the way for all parties to participate in the April balloting. He plans to recall Parliament the first week of March to rule on the ANC’s latest concession.

President Clinton, who was briefed by Mandela Friday, supports the change and indicates that Washington will continue to work to persuade all groups to participate in the April elections. Perhaps Clinton should speak directly to Mandela’s old rival, Mangosuthu Gatsha Buthelezi, the Zulu chief who runs KwaZulu, the quasi-independent Zulu homeland, and leads the Zulu-based Inkatha Freedom Party. He remains unplacated. Buthelezi fears a clean sweep by the ANC despite the election proposal that would give Zulus a greater voice in their area. However, the negotiating isn’t over.

Once again Mandela proves just how shrewd a politician he is. He has compromised with groups that his primary constituency, particularly the more militant wing of the ANC, views as enemies. Against the militants’ wishes he will try to accommodate the Zulus who do not support him--in the same way that he has accommodated the white men who were his jailers.

If, as expected, Mandela becomes president, he will be the president of all South Africans. He already is demonstrating how to govern a united nation.