South African defence policy: the rationale and impact of the SANDF’s primary role and conventional force design

The 2015 South African Defence Review set out to reverse the deterioration of South African National Defence Force (SANDF) capabilities. Within the South African Department of Defence (DOD) this deterioration is expressed mainly in terms of a decreasing defence budget, subsequent declining conventional capabilities and obsolete prime mission equipment. Contemporary research and defence expert debates on this theme, point out the disjuncture between policy ends and the available means, with scepticism for an increased defence budget given the DOD’s lack of internal reform and strategy adjustment. One question that remains largely unanswered in the literature regarding the decline of the SANDF, is why both the policy-makers and the SANDF have remained focused on the primary role of the military (defending territorial integrity) accompanied with an unaffordable conventional force design? This question relates to the aim of this paper and is explored by revisiting initial defence policy decisions and compromises that were made in the 1990s. It is argued that the primary role of the SANDF and its conventional force design suited the interests of both the politicians and the military, but that the drawbacks thereof have harshly caught up with the DOD.     

Making a difference in peacekeeping operations: Voices of South African women peacekeepers

Recruiting more women into peacekeeping operations due to the perceived unique contributions they are said to make to missions has been widely advocated by the United Nations (UN) and other agencies as a means to overcome the unintended consequents of deployments – mainly the ongoing reports of sexual abuse of locals by male soldiers. However, taking into account the broader gender debates surrounding women’s contributions to peacekeeping, and by considering the experiences of women in the South African National Defence Force (SANDF), this study reveals the challenges women face in realising these widely advocated contributions. These challenges include the current recruiting processes, the self-perception of female soldiers, the deeply patriarchal ideologies within South African society, and the hyper-masculine culture which overwhelms the military. The study concludes that, for women to be properly utilised, a reassessment of recruitment processes in the SANDF is necessary, gender training should be prioritised, and an androgynous soldier identity should be advocated.     

Pursuing sustainable peace through post-conflict peacebuilding: The case of Sierra Leone

Many of the world's poorest states have experienced violent conflict in the past decades and it is today widely accepted that armed conflicts require sustained efforts that address not only the military, but also the political, humanitarian, economic and social dimensions of conflicts. For some years there has been a growing international concern with and emphasis on peacebuilding programming in the area of conflict resolution and peacekeeping. In Sierra Leone, a country that was engulfed in a brutal civil war for more than ten years, peace was hard won—a peace that would not have been possible without the presence and active post-conflict assistance of the United Nations (UN). However, Sierra Leone remains in a precarious state, being one of the poorest countries in the world, and needs the commitment of the international community in ongoing post-conflict peacebuilding to sustain its delicate peace. This article examines the challenges, extent and achievements of peacebuilding programming in Sierra Leone, and assesses the prospects for sustainable peace in this once war-torn West African state.     

Country survey XII: South Africa

This article examines the relationship between defence expenditure and economic performance in South Africa, both prior to and after that country's first fully democratic election in 1994. Prior to 1994 defence expenditure decisions were largely dominated by non‐economic factors; since then defence spending has declined in reaction to, inter alia, the need to address a number of socio‐economic inequities.

After 1975 in particular, military industrialisation in South Africa placed a disproportionately high burden on the country's industrial resources and natural economic and technical capabilities. However, although this suggests that the opportunity cost of domestic arms production has been fairly high, the country's poor economic and development performance since the mid‐1970s is a function of underlying structural deficiencies and institutional constraints rather than the consequence of inordinately high defence spending levels.     

The practice of strategy: South African defence in stasis

The article concerns the strategy development processes of the South African Department of Defence in South Africa. It intends to identify the probable causes of the observed failure of the South African National Defence Force to develop appropriate departmental policy and military strategy. Military strategy comprises force development, force employment, force deployment and the coordination of these elements in pursuit of national, grand-strategic objectives. (See Dennis M. Drew and Donald M. Snow, Making Twenty-first Century Strategy: An Introduction to Modern National Security Processes and Problems Montgomery, AL: Air University Press, Maxwell Air Force Base, November 2006, 103). Of these four constructs, the article concerns itself only with the first two. The article analyses two complementary approaches to strategy formation: a resource-driven, inside-out model and an interests-driven, outside-in method. The article concludes that the Department is preoccupied with the inside-out method to the lasting detriment of the declared strategic intent of the defence policy.     

‘Fighting for peace’

In Africa, most of the present conflicts are civil, intra-state wars where belligerent groups use guerrilla tactics to achieve various political, economic or ideological objectives. The atrocities and the effect of these on-going wars on innocent civilians, human suffering, poverty and development are beyond comprehension. Not surprisingly, the majority of current peace operations are in Africa, with more than 70 countries contributing forces to these conflict zones. On the continent, South Africa has come to assume a leading role in peace operations and is now a major troop-contributing country to UN and AU missions. In the past 11 years, the South African National Defence Force (SANDF) has taken part in no fewer than 14 peace missions. This article provides a brief background of the conflicts in Burundi, the Democratic Republic of Congo (DRC) and Sudan, the different United Nations (UN) and African Union (AU) mandates under which peacekeepers had to operate as well as their objectives, and the extent of South Africa's involvement in the various missions. In the last section, the major challenges, that these operations have posed are highlighted.     

The right place at the right time,or the right person in the right place?

South Africa's military has, since the First World War, been an oft-used and effective tool in the conduct of South African foreign policy, but this role has not always translated into power for Defence Department principals in its formulation. South African Defence Ministers for most of the country's history have played a minor role in the making of foreign policy; despite a change in this dynamic between approximately 1975–1990, the post-apartheid era has once again seen a diminishment of Defence's power in this arena. This article examines why Defence Ministers have generally been such weak players, with an eye toward disaggregating whether this was a product of interpersonal relationships with Cabinet and – most importantly – the Head of State, or whether this influence (or lack thereof) was more a function of South Africa's international standing. While determining who has influence on this process is difficult given the primacy of the national leader in making foreign policy and a lack of insider accounts by participants in the process, this article relies upon several interviews with participants and knowledgeable observers that help illuminate the process and Defence's role in it.     

THE NEPAD AFRICAN PEER REVIEW MECHANISM

The idea of establishing a permanent Pan-African army has for long caught the imagination of Africans as a potential solution to many of their continent's manifold security problems. This feature tracks the quest for a Pan-African military force through the past five decades covering the feeble attempts of Africa's freedom fighters to join forces, the repeated failure to establish an African High Command (AHC) in the early years of decolonisation, the subsequent inability of the Organisation of African Unity (OAU) Defence Commission to agree on a common defence structure, and the various fruitless initiatives of the international community to set up a Pan-African peacekeeping force in the 1990s. On the basis of this retrospective journey, the article argues that the African Union's current initiative to establish an African Standby Force (ASF) based on five regionally administered standby brigades should be seen in the tradition of this long quest and not as a groundbreaking new conceptual development, as argued by some. It further contends that even though the ASF is conceptually closer to the Standby Arrangement of the United Nations (UNSAS) than to a Pan-African army as envisioned by leading Pan-Africanists such as Kwame Nkrumah, it nonetheless marks a substantial development in Africa's continental self-emancipation which should be greeted and supported by Africans and the international community alike.     

Corporate performance and military production in South Africa

With the end of the Cold War and apartheid, a process of demilitarisation and dramatic cuts in military spending has marked the transition to democracy in South Africa. Between 1989 and 1997 the South African defence budget was cut by more than 50% in real terms, with most of the cuts coming from the procurement budget, which was cut by nearly 70% in real terms during the same period. These cuts have had a significant impact on the country's defence industrial base. However, there has been surprisingly little research on the changes to defence companies that have taken place since the late 1980s. This paper makes a start at rectifying that deficiency by providing an analysis of the restructuring of the major defence‐dependent companies over the period 1988–97. It uses a number of financial ratios and other measures of corporate performance to compare their experience with non‐defence companies in the rest of the South African economy during the same period.     

AFRICAN REGIONAL ORGANISATION' PEACE OPERATIONS

This paper reviews recent developments among African regional organisations in undertaking peacekeeping operations, as well as in preparing for future missions. It focuses on those that have been the most active: the Organisation of African Unity/African Union, the Economic Community of West African States and the Southern African Development Community. The paper goes on to briefly describe and analyse the activities of the French, UK, and US capacity-building programmes designed to develop African peacekeeping capacities. The author then identifies some specific concerns and recommends actions to help meet today's challenges. The paper concludes with a short analysis of African organisations' capacities and proclivities to provide a peacekeeping force for Sudan.     

GUNS AND BUTTER

Having developed an arms industry of extraordinary depth and breath of capacity, the advent of the De Klerk presidency in 1989 dramatically affected the South African military establishment and its defence industry as budgets were slashed, procurement came to a standstill and the industry was reorganized. Subsequent majority rule did not auger well for the defence industry, yet, a decade later, by 2004, the armaments industry was not only thriving, but had managed to embed itself in the long-term security vision of the state. Key moments in this process was the inclusive and consultative development of the South African White Paper on Defence in 1996, the Defence Review in 1998, and a White Paper on South African Defence Related Industries the following year. Today the relationship between the industry and the government is again close and South Africa's arms producers constitute an interesting combination of intertwined public and private sector entities, ranging from Armscor, Denel and Defencetek in the public sector to private arms producers embedded in large industrial groupings and a heterogeneous host of smaller autonomous enterprises.     

Brazilian National Defence Policy: foreign policy,national security,economic growth,and technological innovation

ABSTRACT

With the world’s ninth largest economy and comprising nearly 60% of South America’s GDP, 47% of its territory, and 49% of its population, Brazil has become a regional power and an important actor in world affairs over recent decades. This scenario has led the government to re-evaluate its role in the world order, resulting in the enactment of the National Defence Policy, whose objective was to consolidate the country as a regional power while at the same time addressing national security issues, promoting economic development through a series of defence programmes, restructuring the defence industrial base, fostering innovation through technology and knowledge transfer to Brazil, and indigenous research and development. However, the policy’s implementation suffers from several challenges discussed in this article, which may test the capability and competence of Brazilian policymakers, military, industrialists, and other individuals and organisations involved in its implementation.     

Influence without power? Reframing British concepts of military intervention after 10 years of counterinsurgency

British attitudes towards military intervention following the campaigns in Iraq and Afghanistan have undergone what appears to be considerable change. Parliament has voted against the use of Britain's armed forces in Syria and the public are unenthused by overseas engagement. Conscious of the costs and the challenges posed by the use of British military power the government has been busy revamping the way it approaches crises overseas. The result is a set of policies that apparently heralds a new direction in foreign policy. This new direction is encapsulated in the Building Stability Overseas Strategy (BSOS) and the more recent International Defence Engagement Strategy (IDES). Both BSOS and IDES set out the basis for avoiding major deployments to overseas conflict and instead refocuses effort on defence diplomacy, working with and through overseas governments and partners, early warning, pre-conflict prevention and post-conflict reconstruction. Developing a number of themes that reach from across the Cold War to more contemporary discussions of British strategy, the goal of this special edition is to take into account a number of perspectives that place BSOS and IDES in their historical and strategic context. These papers suggest that using defence diplomacy is and will remain an extremely imprecise lever that needs to be carefully managed if it is to remain a democratically accountable tool of foreign policy.     

The Czech defence and security industry: taking the pulse to an ailing man

ABSTRACT

The paper summarises the evolution of the iron triangle of the mutual relationships amongst the ministry of defence, defence industry, and the political elite in the post-communist Czech Republic in 1990-2020. The essay stresses the oddness of this relationship. On the one hand, the government is bound by a partnership to the Defence and Security Industry Association of the Czech Republic (DSIA), a lobbying group of more than 100 organisations that conduct business in defence and security sector in Czechia. Yet, since its creation in 2000, this assemblage of industries within DSIA's market position is falling, in fact. Neither political parties in power, nor the governments have been able to support national defence industry through the small military. Just a few DSIA national members are able to compete internationally with their cutting-edge products. Others have evolved into middlemen trading intime-expired Czechoslovak equipment retired from the Czech Armed Forces.     

Factors influencing military recruitment in South Africa: the voices of Cape Town high school learners

This research sets out to establish how the youth in South Africa view military service, and what factors affect the ability of the South African National Defence Force (SANDF) to attract suitable recruits to staff its modern, technologically advanced military. Due to high levels of youth unemployment, South Africa has sufficient persons volunteering for military service. The problem lies with recruiting sufficient quality personnel with the right profile and abilities. To establish what affects enlistment, focus group discussions were conducted with learners from eight schools to determine what influences their career choices, what deters them from or attracts them to military service, their perception of the military profession, their knowledge of the military, and the influence of factors such as race and gender. The conclusion is reached that the SANDF is not considered an employer of choice due to poor service conditions, a decline in the prestige of the military, unfavourable aspects associated with military culture, a growing ‘knowledge gap’ and disconnect between the military and South African society, the estrangement of certain race groups, and the masculine nature of the military. These aspects need to be addressed if the SANDF wishes to attract learners with good academic credentials.     

Feeding the Lion: China and defence development in African states

ABSTRACT

In analysing trends in Chinese defence engagement and their impact on defence development in African states, it is important to consider both China's changing policy priorities and its capabilities for the provision of defence support. China's international ambitions and its economic development contribute to its emergence as a key supporter of defence capability development in Africa, occupying a crucial niche as a provider of support, particularly arms transfers, appropriate to evolving local requirements. The economic and politico-military imperatives driving China's engagement of Africa, which stem from its economic reforms and re-emergence as a great power, are facilitating defence modernisation by accelerating the introduction of modern arms in substantial quantities. The commercial importance of arms exports and the growing importance of strategic ties strongly situate China to help sustain processes of defence capability development in African states over the long term.     

Mandated defence offsets: can they ever deliver?

Defence offsets are elements of defence procurement deals additional to the primary content. Offsets are usually expected to yield technological or industrial benefits to the purchasing country (e.g. countertrade, technology transfers, or additional jobs) and military buyers often require suppliers to make offsets available “cost-free.” The authors argued previously that such strategies achieve little of value to buyers that lack market power and are unnecessary otherwise, since purchasers with the market power to extract more value for money from foreign suppliers can do so anyway. This article also focuses on the supply side of offset deals. The USA is the world's largest defence offsets supplier but the US government opposes offsets demands as economically inefficient and trade distorting. Even if offsets are inefficient and trade distorting, they may still benefit a materiel-exporting country such as the USA as they may induce exports and create associated benefits for the offsets provider.     

Past as prologue: USMC small wars doctrine

Africa is arguably the most important regional setting for United Nations peacekeeping challenges. In the 1990s, extensive efforts have been made by the United Nations in the fleld of peacekeeping with the speciflc aim of reducing the levels of conflicts on the continent. Another significant development relates to the fact that organisations in Africa have started to feature as important peacekeeping instruments in recent years as it is increasingly being accepted that there is a need for such institutions to take care of their own security requirements. However, a key issue at stake is the need to achieve greater consistency with regard to third-party intervention in African conflicts. A look at the more glaring examples of multinational operations in the name of peace and security gives a sense of the magnitude and difficulties often experienced during such endeavours. In addition, both past and current operations have brought to light certain perspectives and lessons that require careful analysis and study. In this article, an overview is given of some of the perils and challenges associated with multinational operations in the realm of peace and security. Specifically, the focus is on Africa and on key issues and challenges regarding the strategic and operational management of such operations in view of the need to consider a more integrated approach towards multinational operations in support of peace and security in Africa.     

The rhetoric and practice of the international responsibility to prevent mass atrocities: Reflections on South Africa’s peacebuilding role in South Sudan (2005–2013)

While global consensus on the meaning and application of the responsibility to protect (R2P) principle remains tenuous, there is little contention among major actors that the development of the norm should prioritise the prevention of mass atrocities. In particular, Brazil, Russia, India, China and South Africa (BRICS) – which have a role to play that is vital to the future development of R2P as a global norm but which continue to express reservations about the intent and application of the doctrine – have been strong advocates of the preventive aspects of the principle. This rhetorical consensus, however, belies the conceptual and practical challenges that are associated with the prevention of mass atrocities. In this paper, the example of South Africa’s post-conflict reconstruction and development (PCRD) interventions in South Sudan from 2005 to 2013 is used to reflect on the role of external actors in supporting conflict-affected states to implement the preventive aspects of R2P. It is argued that while South Africa, like other BRICS countries, has used the rhetoric that atrocity prevention should be at the core of R2P to legitimise its opposition to military intervention for humanitarian purposes, it has struggled to back this rhetoric with coherent strategies and concrete actions to prevent mass atrocity crimes within its sphere of influence. The gap between rhetoric and practice in the preventive aspects of R2P is not unique to South Africa, but highlights fundamental difficulties inherent to global efforts to prevent mass atrocities.     

South Africa's threat environment: a guide for the National Planning Commission

Abstract

The mandate of South Africa's recently appointed National Planning Commission includes addressing ‘defence and security matters’. This article seeks to outline the central elements of the threat environment facing South Africa in the foreseeable future. It is argued that South Africa faces no meaningful existential threat from conventional military forces but that its security forces will need to be prepared to address possible raids and attacks by conventional military forces both on home soil and on vital interests beyond the nation's borders. Other threats highlighted include the threats posed by potential insurgencies, by terrorism, and by crime, social unrest and banditry. Also addressed is the danger of so-called hybrid threats, in which two or more of the single threat types outlined here are combined. Finally, the article challenges the National Planning Commission to rethink South Africa's policy on peace operations in the light of the need to ensure the safety and security of the nation's citizenry.