Managing Social Cohesion in diverse communities: Can South Africa draw lessons from United Arab Emirates?

Updated: 13 hours ago

Occasional Paper 7/2025

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This paper is published jointly by

the Inclusive Society Institute and

School of Public Leadership, Stellenbosch University

Inclusive Society Institute

PO Box 12609, Mill Street

Cape Town, 8010

South Africa

235-515 NPO

School of Public Leadership, Stellenbosch University

PO Box 610

Bellville, 7550

South Africa

or by any means without the permission in writing from the Inclusive Society Institute and the School of Public Leadership, Stellenbosch University.

D I S C L A I M E R

Views expressed in this report do not necessarily represent the views of the

Inclusive Society Institute or the School of Public Leadership, Stellenbosch University.

JUNE 2025

Nicola Jo Bergsteedt

(BA Drama; BA Hons Journ; MA Journ; PGDip Futures Studies)

Daryl Swanepoel

Research Fellow, School of Public Leadership, Stellenbosch University

(ND Co Admin; BPAHons; MPA)

This is the third in a series of three occasional papers on managing social cohesion in diverse communities. They explore the mechanisms that Singapore, Finland and the United Arab Emirates have deployed in forging socially cohesive societies within their very different environments. The three papers will ultimately be integrated into a comprehensive synthesis report with the objective of providing a menu of tools for South African policymakers to contemplate for purposes of strengthening their efforts within the South African context.

Abstract

The GovDem Survey of the Inclusive Society Institute has revealed that social cohesion in South Africa has not made sufficient progress post-Apartheid. In fact, the level of cohesion has declined of late, reversing the early gains made at the onset of the democratic order ushered in in 1994. This is worrying given the need for cohesion to underpin peace and security, and economic growth in a country, both of which are at worryingly levels in South Africa.

This occasional paper has as its objective the development of a menu of policy interventions aimed at advancing social cohesion, that the policymakers in South Africa may wish to ponder. The paper forms part of a broader study that explores the practices in other diverse communities, notably Singapore, Finland and the United Arab Emirates (UAE). This paper discusses proposals informed by the UAE case study, notably the Ministry of Tolerance & Co-Existence and the Happiness Programme. It discusses the findings thereof, and advances recommendations for South African policymakers to consider.

1. Introduction

In analysing its extensive 2023 GovDem Survey, the Inclusive Society Institute (ISI), an independent public policy research institute, concluded that thirty years into the new South African dispensation, social cohesion had not advanced to optimal levels. In fact, trends were worrying.

Context

In 1994 South Africa transitioned from Apartheid South Africa, in which the minority white community controlled all political power, to a new democratic dispensation in which universal suffrage ensured that all South African, regardless of race, shared political power in the country. Hopes were high that a rainbow nation could be forged from the divisions of the past (Austin, 2021). South Africa is celebrating its 30 years of democracy during 2024.

In the poll, less than half (48%) of the respondents were of the view that a united nation could be forged out of all the population groups in the country. 31 percent believed it possible. 18 percent did not express a view one way or the other. This sentiment held true across all the major race groups in the country. Only 46 percent of whites believed it feasible, 48% of blacks believed it so, and for Indians and coloureds it was 44 percent and 50 percent respectively (ISI, 2023).

Even more disquieting is the finding that only 39 percent of South Africans believed reconciliation in South Africa is moving in the right direction. This held true across all the race groups, where similar trends existed.

In its definition of social cohesion, the Inclusive Society Institute includes dimensions wider than just race. It also considers religious tolerance, and attitudes towards immigrants, amongst other criteria, as contributors towards social cohesion. The Institute’s recently released South African Social Cohesion Index (SASCI), is built on three pillars: demographic integration, extent of connectivity to the country, and sense of community (ISI, 2024). These pillars respond to the three dimensions of social cohesion as argued by Langer et al. (2017), namely inequality, trust and identity.

Figure 1: Social Cohesion Triangle (Langer et al., 2017)

High levels of inequality, Langer et al. argue, threatens social cohesion in society, in that it erodes relationships, which, in turn, could cause conflict. When trust is missing between members of society, the ability for individuals to collaborate to build the nation is weakened. And a national identity, in contrast to group or ethnic identity, may cause aggressive behaviour amongst members of society to the detriment of stable coexistence.

In South African society, trust amongst the various groups is worryingly high. For example:

In the same GovDem Survey, only 40 percent of White South Africans completely or somewhat trusted their Black compatriots, and similarly only 41 percent Black South Africans completely or somewhat trusted their White compatriots.

Only 48 percent of South Africans completely or somewhat trusted people from a different religion to their own.
Only 43 percent of South Africans completely or somewhat trusted people from different nationalities. Similar trends existed across all the major race groups.
Of particular concern was the finding that 68 percent of South Africans did not trust immigrants from other African countries. So too, some 66 percent did not trust immigrants from overseas. And likewise, similar trends were registered across all the race groups.

(ISI, 2023)

These disappointingly low levels of trust suggest that, as a nation, in terms of demographic integration, South Africa has a long way to go in consolidating social cohesion in the country.

That said, the ISI survey finds that South Africans are slowly starting to forge a nation. Already, 46 percent of South Africans - with similar trends across all race groups - are in favour of associating with compatriots across racial lines, as opposed to only 31 percent who do not like associating with people from different population groups. And already, 52 percent of South Africans – with a similar trend across all race groups – are socialising (entertaining) with compatriots from across racial lines.

Likewise, some 49 percent of South Africans – with similar trends from across all race groups - do attend the church/shul/mosque/religious services of their fellow South Africans.

And 69% of respondents indicated that they wanted a united South Africa.

In considering the second pillar of the ISI’s SASCI, the extent of connectivity to the country, the findings of the survey were equally disappointing. Nine percent of the respondents indicated that they were seriously considering emigrating to another country in the next year or so. Of particular concern was the number of high-income earners and those with tertiary education. Eleven percent of the high-income earners and those with tertiary qualifications were considering emigration. South Africa is experiencing a critical skills shortage across almost all sectors (Business Tech, 2023). For the country to lose more skills and taxpayers would be quite tragic for the country.

The minority communities are the most vulnerable. Fifteen percent and 14 percent of Whites and Indians respectively were considering emigration, as opposed to 8 percent of Black South Africans.

There were two main reasons driving the sentiment:

· A lack of confidence in the ability of the economy to deliver jobs for themselves and their family, and a sense that South Africa was failing. Twenty-five percent of respondents cited work opportunities as the reason for them contemplating emigration, and only 23 percent were confident that their children will be able to become part of the South African labour market and that they will find a good job.

· A sense that South Africa was failing. Twenty one percent of respondents were of the view that the country was failing. Once again, apart from the Coloured community, it was the minority communities – particularly the Indian community – that were most vulnerable. Twenty-three percent of Whites and 41 percent of Indians cited South Africa’s failure as a state as the reason for them considering emigration.

In considering the third pillar of the ISI’s SASCI, namely a sense of community, a far healthier picture emerged. Seventy-five percent of respondents agreed or strongly agreed that it important to get involved in the community in which they lived, 47 percent agreed or strongly agreed that it was important to actively work for the welfare of their community, and 58 percent said that they actively looked for ways in which they could support people that were less fortunate than themselves. Similar trends were registered across all the race groups.

The survey was however silent as to the extent to which the individual race groups involvement extended across demographic lines.

1.1 About the survey

The aforementioned data is drawn from the Inclusive Society Institute’s GovDem Survey, which forms part of IPSOS’ Khayabus Survey, the methodology of which is illustrated in the diagrams contained in Figure 2 below

Figure 2: The IPSOS Khayabus (ISI, 2023)

Against this backdrop one must ask: Is enough being done to promote, nurture and ensure social cohesion in South African society? The country’s National Development Plan (NDP) after all recognises that the strategy set out therein needs to be underpinned by social cohesion (NPC, N.d.).

The NDP argues that “leaders throughout society have to balance the power they hold with responsibility, including…promoting social cohesion”, and that it is necessary to broaden social cohesion and unity while redressing the inequities of the past. “South Africa’s own history and the experiences of other countries”, it says, “show that unity and social cohesion are necessary to meet social and economic objectives”. It also argues that social cohesion in society is necessary to narrow the inequality divide (NPC, N.d.).

The NDP is correct, because in socially cohesive societies, where there is a general absence of underlying social conflict, people work together as one towards the well-being of all in society. It works against exclusion and marginalisation, creates a sense of belonging, promotes trust, and offers its people the opportunity of upward mobility (SFRI, N.d.). It enables people to be engaged in “a common enterprise”, wherein they can face shared challenges as members of the same community (Maxwell, in SFRI. N.d.). It allows society to share equitably in its prosperity, because cohesive societies are politically stable, thereby allowing them to focus on economic growth (Bris, 2014).

It is therefore encouraging that the National Planning Commission recently proposed the establishment of a Social Cohesion and Reconciliation Council with the objective of developing and monitoring strategies for the promotion of tolerance and the embracing of diversity …for the emergence of a shared South Africa identity and pride” (NPC, 2023).

Some progress has been made in setting up the structures and mechanisms to advance the goal of social cohesion in South Africa.

The Commission for the Promotion and Protection of the Rights of Cultural, Religious and Linguistic Communities (CRL Rights Commission) has been established in terms of Chapter 9 of the South African Constitution. The primary objectives of the CRL Commission is “(a) to promote respect for the rights of cultural, religious and linguistic communities; (b) to promote and develop peace, friendship, humanity, tolerance and national unity among cultural, religious and linguistic communities, on the basis of equality, non-discrimination and free association; and (c) to recommend the establishment or recognition, in accordance with national legislation, of a cultural or other council or councils for a community or communities in South Africa” (RSA, 1996).

Since its establishment the CRL Commission has tackled several topics that impede social cohesion. The full list of reports contained on the CRL Commission’s official website include:
The commercialisation of religion and the abuse of people’s belief systems.
Challenges that lead to deaths and injuries at initiation schools in South Africa;
The reuse of graves by local governments: Seeking a solution to the violation of cultural and religious rights of communities through the reuse of graves by local governments;
Ukuthwala (the abduction that involves kidnapping a girl or a young woman by a man and his friends or peers to compel the girl or young woman's family to endorse marriage negotiations).
The use of official languages by organs of state.
Violations of religious rights by members/congregants of church missions; and
Civil unrest in Phoenix that allegedly resulted in racially motivated deaths.

(CRL Commission, N.d.)

Scrutinisation of the annual and other reports will suggest that the bulk of the Commission’s work has been limited and reactive in nature. No wonder given that the Commission’s annual budget in the 2021/22 financial year amounted to a mere R46,4 million rand (CRL Commission, N.d.). Given the extent of the work needed to tackle the social cohesion deficit, the commission has not been adequately resourced to properly carry out their work.

So too, the Department of Sport, Arts and Culture (DSAC), is mandated to lead nation building and social cohesion through social transformation, but the unit tasked to carry out this mandate is inadequately resourced. The DSAC social cohesion programme includes activities such as the celebration of national days, advocacy platforms on social cohesion, and community conversations (DSAC, N.d.). The unit tasked with carrying out the social cohesion mandate comprises four members of staff (Anon., 2023) and the annual budget for 2024/5 amounts to mere R59,8 million (Treasury, 2024).

On paper it suggests that the government is committed to securing social cohesion in South Africa. It forms an integral part of the NDP, a constitutionally committed commission has been established to promote and protect the rights of the country’s diverse communities, and DSAC has established programmes aimed at promoting social cohesion in South Africa. The lived reality tells a different story: activities are few and limited in nature, the programmes are wholly under-resourced and as evidenced in the ISI’s GovDem Survey, the level of social cohesion is disappointingly low.

What to do?

There are many other countries around the world that have/are faced/facing social cohesion challenges. Three come to mind, each with different mechanisms to nurture and promote social cohesion within their societies. These are Singapore, Finland and the United Arab Emirates (UAE), which is the focus of this paper. The UAE experience may hold lessons for South Africa, the exploration of which is the object of this dissertation.

1.2 Research question and methodology

The departure points of this study, based on the empirical evidence contained in the Inclusive Society Institute’s GovDem Survey, as highlighted in the introductory chapter, is that:

Social cohesion, of which, in the South African context, nation-building and reconciliation are crucial elements, is not at an acceptable level.
South Africans desire a united nation in which the different communities that compose the nation can work together to build a common future.
The South African Constitution places a high premium on a non-discriminatory environment underpinned by social cohesion.
That all three spheres of government, that is the executive, legislative and judicial spheres, at its heart, recognise and promote the ideals of the Constitution, that is a united and reconciled South Africa culminating in a socially cohesive society.
That the current structures, programmes and resources allocated by the authorities have not yet – thirty years since the transition from Apartheid - delivered the desired level of social cohesion in South Africa.

It recognises the importance of social cohesion in any society that wishes for harmony, stability and prosperity. Thus, more needs to be done to promote such.

What that is, is an open question.

In a case study, the United Arab Emirates model for managing diversity and social cohesion is examined. It aims to provide new options for South Africa’s policymakers to contemplate, by identifying a set of practices that do not currently form part of the South African toolset.

2. The United Arab Emirates Case Study

2.1. Introduction

In today's globalised world, countries are confronted with significant challenges in nurturing social cohesion and tolerance among their diverse populations. Due to its extensive expatriate community that comprises more than 200 nationalities, the United Arab Emirates (UAE) stands out as a unique model. This paper explores the frameworks and programmes deployed by the UAE in order to promote tolerance and social cohesion through its Ministry of Tolerance and Coexistence, and the Happiness Programme. And it considers how these insights may inform similar initiatives in South Africa. The need for social cohesion is underscored by the reality that societies are becoming increasingly diverse due to globalisation, migration, and changing demographics. For post-apartheid South Africa, where previous policies enforced racial division and inequality, the quest for a unified and inclusive society is both a challenge and an imperative.

2.2. Historical Context

To appreciate forming the Ministry of Tolerance and Coexistence in the UAE, it is important to understand the historical context of the country. It comprises seven Emirates:, namely, Abu Dhabi, Dubai, Sharjah, Ajman, Umm Al-Quwain, Fujairah, and Ras Al Khaimah. Prior to its unification in 1971, each of the Emirates had distinct identities which were rooted in shared cultures, traditions, religions, and heritage (Salah, 2024).

Since unification the country has development rapidly, and, together with its phenomenal economic growth, it has attracted expatriates from many diverse countries. This has led to its demographic transformation. The influx of various nationalities since the twentieth century, has resulted in the drastically altered social fabric of the nation. Whilst the diversification brought the richness of different cultures, it also raised the questions as how to maintain social harmony (Salah, 2024).

The majority of residents in the UAE now hail from abroad, which has led to the UAE government's recognition of the importance of ensuring that the Emiratis and the expatriates need to coexist peacefully and productively. This recognition has led to the establishment of the Ministry of Tolerance and Coexistence. It was a strategic response to these developments, since the government needed to foster an environment of mutual respect and understanding among the different communities inhabiting the UAE and considered it crucial for social stability. Its creation signified a proactive approach to potential friction arising from cultural and linguistic differences (Salah, 2024).

2.3. The background to the need for promoting

tolerance in the UAE

The UAE is a multi-national and multi-cultural society. The Emirati nationals make up just 10% of the population. The vast majority are expatriates, who have relocated to the UAE from various countries in search of opportunity and a better life (Olimat, 2025).

Expatriates number around 9 million and the Emirati only around 2 million. Accordingly, the UAE hosts a vast array of cultures, languages and traditions. This has created a unique demographic landscape that has brought about both opportunities for enrichment and challenges in terms of social cohesion (Salah, 2024).

The UAE government has recognised the importance of promoting tolerance and understanding among its varied population. As a nation, the UAE has shifted its focus toward fostering a harmonious society where individuals from different backgrounds can coexist peacefully. This recognition led to the establishment of the Ministry of Tolerance and Coexistence, which focuses on initiatives that foster respect and acceptance among the of myriad cultures present in the nation. This ministry’s initiatives have been designed to address the challenges posed by diversity whilst simultaneously harnessing the potential that such diversity offers (Olimat).

2.4. The Ministry of Tolerance

The Ministry of Tolerance and Coexistence was founded in 2016 and is tasked with promoting the values of tolerance, inclusiveness, and social cohesion within the UAE. The ministry's formation testifies to the UAE's commitment to addressing the issues which can emerge in a multicultural society, such as prejudice and discrimination (Olimat, 2025).

The Ministry of Tolerance functions on several principles:

Promotion of Cultural Understanding: The ministry implements programmes aimed at promoting awareness and appreciation of the various cultures that exist within the UAE. Initiatives have been designed to promote and encourage dialogue and understanding between the Emiratis and the expatriates with regard to their traditions, values, and beliefs.
Development of Comprehensive Policies: The ministry has formulated a range of policies that support a culture of tolerance in schools, workplaces, and communities
Engaging the Community: Community engagement is important for ensuring the success of initiatives aimed at promoting tolerance. The ministry therefore focuses on outreach programmes that involve various stakeholders, including local communities, businesses, schools, and non-governmental organisations (NGOs).
Monitoring and Evaluation: The ministry assesses the impact of its initiatives through surveys and studies that evaluate the levels of tolerance and cohabitation among residents. This data helps in refining and enhancing programs.

(Olimat, 2025).

2.4.1. The role, structure and functions of the Ministry of Tolerance

and Coexistence

The UAE's Ministry of Tolerance and Coexistence is the country's authority which is dedicated to promoting tolerance, coexistence and respect among its diverse communities. Its work extends beyond mere toleration. It also seeks to promote an understanding and appreciation amongst its citizens for the various cultures that make up the nation.

Outreach and community engagement

Central to the ministry's strategy is community outreach. By engaging with the different cultural groups and organisations, the ministry endeavours to bridge the gaps between the various cultures. These engagements comprise activities such as the hosting of cultural events, forums and workshops, which are intended to facilitate dialogue and cultural exchanges.

The initiatives help to demystify the different customs and traditions of the various communities, which allows for a greater appreciation among community members. Moreover, the ministry focuses on providing platforms that are inclusive and wherein individuals can express their cultural identities. This helps to promote a better understanding between the various ethnic and religious groups. The approach reinforces the idea of diversity being a strength as opposed to being a challenge.
Education as a tool for promoting tolerance

Education is the basis on which of the ministry's mission has been developed. By integrating concepts of tolerance and coexistence into school curricula, the ministry inculcates these values in future generations. Educational workshops and training programmes shed light on the importance of intercultural understanding to both students and educators. This is done in collaboration with educational institutions. Through such collaboration, the ministry develops the resources needed to promote awareness about the diverse cultures within the UAE. These educational initiatives are intended to prepare students to thrive in a multicultural environment and to embrace diversity from a young age.
Legislative provisions

In order to achieve its objectives, the ministry operates within a robust legislative environment. The government has developed laws that are aimed at promoting tolerance and respect among its citizens and residents. The laws provide the foundation for the ministry's actions and initiatives.

Apart from the obvious laws establishing the Ministry of Tolerance & Coexistence, specific laws have been decreed to protect everyone in the UAE, via a solid legislative ground for the environment of tolerance, co-existence and acceptance. For example, the “Federal Law by Decree No (34) of 2023 Concerning Combating Discrimination, Hatred and Extremism” aims to fights discrimination against individuals or groups based on religion, caste, doctrine, race, colour or ethnic origin (UAE, 2023).

So too, Article 25 of the UAE’s highest law, the Constitution, states that “All individuals are equal before the law, and there is no discrimination between citizens of the Union on the basis of origin, nationality, religious belief or social status” (UAE, 1971).
Framework of tolerance

The ministry’s has established guidelines and policies to prohibit discrimination based on race, nationality, or religion. Legal provisions create a safeguard for individuals belonging to minority groups, thereby ensuring their rights are protected under the law. Additional regulations also encourage businesses and other organisations to adopt practices that promote inclusiveness. By promoting a culture of respect in workplaces and public spaces, the ministry helps to nurture a society that embraces diversity and fosters understanding among its members.
Organisational structure and resources

The ministry has a well-defined organisational structure in order to facilitate the effective implementation of its initiatives. In follows a multi-faceted approach so that it can address the various aspects of tolerance and coexistence in a comprehensive manner.
Departments and their activities

The ministry has various departments. Each department is tasked with a specific responsibility, such as cultural integration, the development of coexistence regulations, and community outreach.
Cultural integration programmes aimed at promoting mutual understanding and appreciation between Emiratis and expatriates are designed to facilitate cultural exchanges.
Education initiatives focus on developing programmes and resources aimed at embedding tolerance-related topics into school curricula and community workshops.
Through community engagement, outreach initiatives that actively involve diverse cultural communities in events, discussions, and collaborative projects are developed.
Facilitated workplace dialogues: The goal is to promote a spirit of inclusiveness and cooperation amongst workers from different backgrounds and nationalities within the workplace. The Ministry started rolling out these workshops within the government departments. Now that most government departments have been covered, it is looking to implement similar workshops within the private sector.
Legislative Affairs: This department focuses on ensuring that rules, guidelines, and regulations promote a culture of inclusivity and respect across the nation.(Salah, 2024)
Resources allocated to the ministry stem from both governmental budgets and partnerships with private organisations and non-profits. By collaborating with various stakeholders, the ministry expands its capacity to implement effective programmes that resonate with the community's needs (Salah, 2024).

2.4.2. Successes, challenges and important Initiatives

Since establishing of the ministry, the UAE has seen considerable progress in the furthering of a tolerant and inclusive society. Several initiatives and events have contributed to this achievement (Salah, 2024).

One of the major successes of the ministry is the promotion of national events that celebrate diversity, such as the 'International Day for Tolerance'. These events highlight the importance of tolerance but they also engage various communities in a manner that brings them together to share experiences and learn from each other.

Additionally, the ministry's partnership with organisations and institutions has resulted in numerous programmes aimed at youth, empowering them to take an active role in promoting tolerance among their peers. Workshops emphasising leadership and interfaith dialogue have proven successful in encouraging young people to appreciate diversity, and to respect their fellow citizens (Salah, 2024).

Despite these successes, the complex nature of cultural integration, management of differing viewpoints, misunderstanding, friction, and even hostility, have meant that challenges still remain (Salah, 2024).

The ministry must navigate these challenges with sensitivity, recognising that some individuals may struggle to adapt to a multicultural society. The ministry is also tasked with addressing concerns surrounding cultural appropriation and the respect of traditions while promoting their integration. Striving for an equilibrium between preserving cultural identities and promoting a unified national identity is an ongoing challenge that requires thoughtful consideration (Salah, 2024).

2.4.3. Governance and stakeholder engagement

Governance within the Ministry of Tolerance and Coexistence emphasises collaboration, transparency and accountability. The ministry operates in partnership with various governmental and non-governmental entities, fostering open lines of communication among stakeholders.

Stakeholder collaboration

Engagement with community representatives, civil society organisations, and international entities is crucial in shaping the ministry's policies and initiatives. Through consultation with stakeholders, the ministry ensures that diverse perspectives are included in its programmes, thereby allowing for more effective solutions. This collaborative governance model also helps build trust between communities and governmental institutions. When various stakeholders feel involved in the decision-making process, they are more likely to support initiatives that aim to bolster social cohesion.
Community resilience and responses to global events

The ministry is not only tasked with promoting tolerance but it is also tasked with responding to challenges brought on by global events, such as economic crises, geopolitical tensions, or humanitarian crises.
(Salah, 2024)

During challenging times, the ministry's response has been crucial in reinforcing the values of respect and understanding among communities. For instance, during the COVID-19 pandemic, the ministry organised initiatives aimed at countering misinformation and fostering a spirit of cooperation between communities. By emphasising shared experiences, the ministry helped to mitigate divisions and reinforce social bonds (Salah, 2024).

The ministry also actively participates in dialogues related to global issues, such as climate change, migration, and human rights. These interactions not only position the UAE as a responsible global citizen but also demonstrate the country's commitment to fostering a culture of tolerance that transcends geographic boundaries (Salah, 2024).

2.4.4. Future directions

As the UAE continues to evolve and grow, so too does the role of the Ministry of Tolerance and Coexistence, which needs to be poised to adapt its strategies to meet changing and emerging challenges and opportunities that arise within the multicultural landscape.

Innovation in engagement

It is envisaged that future initiatives leverage technology in order to reach a broader audience and to engage individuals in innovative ways. Digital platforms can facilitate virtual cultural exchanges, social campaigns, and online educational resources, making it easier for communities to connect and interact. Moreover, the ministry may focus on strengthening its partnerships with private sector organisations and universities to develop more tailored programmes that target specific cultural groups or demographics. By aligning their initiatives with the needs of particular communities, the ministry can foster deeper connections and encourage wider participation.
Fostering Inter-religious dialogue

In an increasingly interconnected global environment, inter-religious dialogue is vital for promoting understanding and respect among diverse faiths. The ministry is likely to expand its efforts in this area by organising interfaith events, building bridges between religious leaders and communities, and creating platforms for dialogue that emphasise common values. By nurturing inter-religious understanding, the ministry can further reinforce its core mission of fostering a harmonious society that embraces diversity.
(Salah, 2024)

2.5. The Happiness Programme

Closely aligned with the work of the Ministry of Tolerance and Coexistence, is the UAE's Happiness Programme. The programme has as its objective the creation of an environment in which all residents feel valued and included.

The programme recognises that happiness and social well-being are deeply interconnected. A happy society is one where individuals respect and support each other. The programme therefore encourages government departments and entities to think creatively about how they can enhance the lives of individuals in the UAE. Happiness more often than not leads to a better understanding and acceptance of others, which in turn promotes a more tolerant society (Olimat, 2025).

2.5.1. Key aspects of the Happiness Programme

The key aspects of the programme are:

Public interface design: Initiatives have been tailored to enhance user experiences with public services. The government aims to ensure that citizen engagement with government services is positive since it fosters a sense of belonging and good interaction between the state and its citizens.
By working with the private sector, businesses are encouraged to adopt practices that promote workplace happiness. Happy workers positively impact attitudes in communities.
Mental Health Awareness: Mental well-being is recognised as a core component of happiness. Programmes addressing mental health stigma and promoting services play a vital role in community health.
(Olimat, 2025)

2.5.2. The programmes and initiatives of the Happiness Programme

The programme employs several initiatives which are aimed at enhancing tolerance and happiness in the community. Often overlapping with those of the Ministry of Tolerance and Co-Existence's, they include:

A cultural awareness programme that involves educational activities tailored to facilitate understanding among different cultural groups. Through workshops and events, shared values and common goals are emphasised to break down barriers between communities. For example, cultural exchange workshops allow residents to engage with art, music, cuisine, and customs from different cultures so as to create empathy and understanding amongst them.
Public campaigns that highlight stories of multiculturalism, that reflect the nation’s values, and which encourage unity among residents are regularly implemented. The UAE has implemented national campaigns that promote coexistence: Campaigns reminding residents of the dignity of every individual, respect across communities, and historical situations of cooperation help mitigate prejudice and foster a collective identity.
Engagement with Youth

The youth are engaged through programmes that promote volunteerism, cultural exchange and civic responsibility. This is done so as to instill the principles of tolerance and understanding at a young age. In so doing, future generations that value inclusivity are cultivated. The youth programme includes activities such as community service days, and interschool cultural events. Furthermore, youth councils provide platforms for young people to contribute to the social dialogue.
International cooperation

The UAE actively seeks to promote its tolerance initiatives on a global scale. This it does by engaging international organisations and by participating in global dialogues called to address tolerance. It aims to position itself on global platforms as a leader in promoting peace, and cultural understanding and tolerance.
The role of policy and infrastructure

The UAE’s approach to governance significantly contributes to social cohesion. It is of the view that the effectiveness of its infrastructure - from advanced technology in government services to a robust legal system - creates an environment of assurance for residents. Seamless and quality public service experiences nurtures and promotes trust in government - trust which is vital for social stability. The satisfaction with government services is often cited as a major factor in residents’ overall happiness.
Government services and technology

To improve access to all necessary services for residents, the UAE government harnesses technology that promotes transparency and efficiency. The availability of online portals for government services allows residents to conveniently interact with government departments and entities. Processes are more efficient and barriers are removed. Enhanced administrative practices ensure responsiveness to community needs.
Rule of law and civic responsibility

The country's firm adherence to the rule of law has a positive impact on the fabric of society. The legal and judicial systems are designed to ensure fairness and equity, which creates a sense of security for residents in that they better understand their rights and responsibilities. When grievances arise, mechanisms for resolution reinforce the norms of civic order and mutual respect. With clear legal frameworks in place, citizens know that conflicts will be resolved efficiently and equitably. This creates confidence in the judicial system. and because residents can expect justice and fairness to prevail when disputes occur, community interactions tend to be civil
(Olimat, 2025)

2.5.3. Evaluating Social Cohesion in the UAE

There seems to be a dearth of empirical research measuring social cohesion and the impact of the UAE's tolerance programme's on it. Nevertheless, anecdotal evidence suggests a positive trend. In various surveys conducted by government bodies, the perception of safety and acceptance among residents is highlighted. This would indicate that tolerance is indeed part of the cultural fabric of the UAE (Olimat, 2025).

Listening to community members’ experiences provides insights into the successes and challenges of ongoing initiatives. Feedback from citizens indicate increasing levels of cultural exchange, participation in community events, and general acceptance of diversity (Olimat, 2025).

Surveys focusing on perceptions of security and community engagement also suggest an increased sense of belonging among residents. The heightened sense of safety seems crucial, since it encourages individuals to participate fully in social and cultural events. This participation promotes a deeper connection to the UAE as a shared home for all its citizens (Olimat, 2025).

3. Conclusion and recommendations

The journey toward tolerance and social cohesion is of the highest importance for social stability in both the UAE and South Africa. Drawing lessons from the UAE's model can provide valuable insights into initiatives that could be effectively adapted for a South African context. Therefore, a society founded on mutual respect and understanding needs to be constructed through strategic thinking, collaborative actions, and the development of innovative solutions.

To cultivate a culture of tolerance is not merely a governmental responsibility but a shared societal one that requires participation from all citizens.

In South Africa, embracing diversity as a strength rather than a division is essential for holistic national growth. Building a cohesive society rooted in appreciation and respect will lay the foundation for a brighter future where tolerance reigns, enabling all citizens to feel they have a place in their shared national identity.

The world is grappling with rising intolerance and conflict. So the importance of learning from models of successful integration cannot be overstated. By focusing on building communities where individuals embrace differences while recognising shared humanity, we can create pathways toward a more peaceful and harmonious future for all.

By continuously updating policies, fostering intercultural dialogues, and by encouraging engagement at all levels of society, nations can work collaboratively toward a common goal of tolerance — with the ultimate aim of enriching human experience and promoting a culture of acceptance and understanding across the globe.

The establishment of the Ministry of Tolerance and Coexistence, and the introduction of the Happiness Programme, have been significant steps towards nurturing a more tolerant and happy society. One that accepts diversity and promotes social cohesion and harmony. Through sustained community engagement, sound legislation, educational initiatives, and innovative responses to world challenges, the ministry is playing a critical and essential role in fulfilling the UAE's commitment to coexistence and mutual respect.

Whilst the journey toward achieving a fully tolerant and harmonious society is ongoing, the continuous efforts of the Ministry of Tolerance and Coexistence and the Happiness Programme affirm its dedication to ensuring that individuals from all walks of life feel valued and respected.

The UAE is a model to other nations needing to manage their diverse communities and to promote social cohesion. As the complexities of cultural diversity is grappled with around the globe, the principles and practices established by the Ministry of Tolerance and Coexistence serve as a guide for creating inclusive societies. By nurturing the values of tolerance, coexistence, and harmony, the ministry contributes to the nation's internal social fabric. It also positions itself as a global leader in promoting harmonious relationships among diverse populations.

Through its ongoing commitment to the promotion of tolerance, and by creating understanding and respect amongst the different cultures and communities calling the UAE their home, the country's national identity is enhanced.

3.1. Insights for South Africa

South Africa, has a complex history of division and inequality. It can therefore can benefit from the UAE's experiences of promoting social cohesion, since it remains a central challenge requiring initiatives to promote understanding among its diverse communities. The cultural landscape of South Africa is rich, and leveraging this diversity can create a vibrant nation rooted in mutual respect.

The establishing of a structure for tolerance, coexistence and happiness

South Africa should consider the establishment of a dedicated institution or the expansion of the mandates of the existing constitutional Chapter 9 institutions, for purposes of designing and implementing social cohesion programmes alike to those of the UAE. This will help focus efforts aimed at fostering social cohesion in the country. Similarly, a national body with the authority to coordinate social cohesion, tolerance and harmony initiatives could ensure that the various stakeholders involved in the development and implementation that policies are linked. This will encourage its effective implementation at all levels.
Cultural awareness programmes

Implementing comprehensive educational programmes that encourage cultural exchange can promote respect and tolerance among South African communities. Collaborations between schools, community organisations, business and local governments are crucial in implementing these initiatives. Programmes should emphasise the contributions of various cultural groups to South African history and development, highlighting shared values and experiences. Through interactive workshops, local festivals, and shared storytelling events, communities can build bridges of understanding.
Implementing public campaigns and community engagement

Through the implementation of public campaigns that celebrate diversity and shared values, prejudice is eased and inclusivity promoted. They can highlight success stories of intercultural friendships, shared community projects, and mutual support among different groups. The engagement initiatives should involve the various stakeholders, such as businesses, educational institutions, and civil society, in order to strengthen the reach and effectiveness of the campaigns. Incorporating voices from diverse backgrounds ensures that the public relates to and invests in the changes being made.
The utilisation of technology

By leveraging technology to improve access to government services, trust in public institutions is built. This ultimately contributes to greater civic responsibility among citizens. Similarly, enhanced digital platforms for community engagement enables feedback and connection in real time, thereby allowing residents to effectively articulate their needs and concerns. Online platforms can be used to share best practices, facilitate dialogue, and create virtual spaces for cultural exchange, and for broadening the community’s engagement radius.
Youth Engagement

The targeting of young people with programmes aimed at promoting leadership, service, and community involvement can help engender a culture of tolerance and understanding for future generations. Providing mentorship programmes that connect youth from diverse backgrounds can promote understanding and collaboration. Education plays a central role in shaping perspectives. Schools can implement curricula celebrating diversity while emphasising the importance of understanding, empathy, and civic duty.

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This paper is published jointly by

the Inclusive Society Institute and

School of Public Leadership, Stellenbosch University