In 1986, Nhlapo joined the
General and Allied Workers' Union (GAWU) on the Wits campus. Nhlapo also served as Cosatu's chief negotiator in discussions with government on the restructuring of state assets. He occasionally made attempts to gain high office in Cosatu – in 1997, he entered into a contest with
John Nkadimeng and
Connie September over Nkadimeng's post as Cosatu vice-president, On the latter occasion, Nhlapo was viewed as the favoured candidate of ANC president
Thabo Mbeki. In 2002, Cosatu commissioned a commission of inquiry to investigate various financial and political problems in Nehawu. The commission was staffed by
Senzeni Zokwana of the
National Union of Mineworkers,
Ebrahim Patel of the
Southern African Clothing and Textile Workers Union, and Cosatu officials. Although its findings were not published after the inquiry concluded in 2003, the
Mail & Guardian reported that the commission described Nehawu as highly polarised between two factions: one ANC-aligned faction, clustered around Nhlapo, and another faction aligned to the
South African Communist Party, clustered around
Slovo Majola. At Nehawu's next elective congress in July 2004 in
Pretoria, the left-wing faction won a decisive victory: Nhlapo lost the Nehawu presidency to his former deputy,
Noluthando Mayende-Sibiya, who received 243 votes to his 136. == Legislative career ==