WHITE PAPER ON SOUTH AFRICAN PARTICIPATION IN INTERNATIONAL PEACE MISSIONS

1. WHITE PAPER ON SOUTH AFRICAN PARTICIPATION IN INTERNATIONAL PEACE MISSIONS

2. BRIEFING TO THE JOINT STANDING COMMITTEE ON DEFENCE 26 March 2003

3. WHITE PAPER ON SOUTH AFRICAN PARTICIPATION IN INTERNATIONAL PEACE MISSIONS PROBLEM STATEMENT • Very progressive document. It provides sound policy guidance and procedures required for effective participation in peace missions. It further transversely affects all potential participating departments. • Although above is true, the White Paper has ‘aged’. Events have overtaken some of the policy pronouncements and some legislation has been amended or repealed. As a result, there are aspects of the White Paper that may have to be addressed and possibly amended to ensure future effective DOD participation in these missions.

4. AIM • To propose, from the Department of Defence perspective, possible changes to the White Paper on South African Participation in International Peace Missions, based on experience over the last four years.

5. SCOPE • An overview of the policy pronouncements made in the White Paper. • Identification of issues in the White Paper that worked well during SANDF peace mission deployments over the last four years. • Identification of parts/issues in the White Paper which may need amendment.

6. An overview of the policy pronouncements made in the White Paper

7. Overview of Policy Pronouncements made in the White Paper • Aim of the White Paper. • “To describe the nature of contemporary peace missions and to provide clear and concise inter-departmental policy guidelines on South African participation in such missions”. • The Nature and Scope of Contemporary Peace Missions. • background, history, terminology and definitions in peace missions. • roles of civilians, the military and civilian police. • provides the basis and background for participation in peace missions. • describes the multifunctional nature of modern peace missions.

8. Overview of Policy Pronouncements made in the White Paper (cont’d) • The International Mandate for Conducting Peace Missions. • Adherence to international legal requirements. • process of mandating as well as endorsement of peace missions on the grand strategic (international) level. • The endorsement of operations in terms of Chapter VIII of the UN Charter ( i.e. on regional (AU).

9. Overview of Policy Pronouncements made in the White Paper (cont’d) • South African Philosophy on Participation in Peace Missions • ‘South Africa’s foreign policy, as an important component of this definition of national interest, is based on six key principles’: • A commitment to the promotion of human rights. • A commitment to the promotion of democracy. • A commitment to justice and international law in the conduct of relations between nations. • A commitment to international peace and to internationally agreed- upon mechanisms for the resolution of conflicts. • A commitment to the interests of Africa in world affairs. • A commitment to economic development through regional and international co-operation in an inter-dependent world.

10. Overview of Policy Pronouncements made in the White Paper (cont’d) • In the South African national interest to assist peoples who suffer from famine, political repression, natural disasters and the scourge of violent conflict. South Africa may thus provide civilian assistance and armed forces in common international efforts when properly authorised by international authorities to help in such efforts.“ • "Although South Africa acknowledges its global responsibilities, the prioritisation afforded Africa in South African foreign policy makes Africa the prime focus of future engagements. South Africa has an obvious interest in preserving regional peace and stability in order to promote trade and development and to avoid the spill-over effects of conflicts in the neighbourhood.“

11. Overview of Policy Pronouncements made in the White Paper (cont’d) • South Africa’s Potential Contributions to Peace Missions. • UN Standby Arrangements System (UNSAS) • Civilian Resources • Police Resources • Military Resources

12. Overview of Policy Pronouncements made in the White Paper (cont’d) • Military Resources. • Potential contributions in the White Paper is taken from the Defence Review and "provides for participation in peace support operations at the level of up to one infantry battalion group". • The Defence Review states that participation in peace support operations is a secondary function of the SA Army’s Rapid Deployment Ground Force, and that two battalion groups will be prepared for participation in peacekeeping operations (with the understanding that only one battalion group will be deployed at a time, with the other held in readiness for rotation). • Where participation in operations with a Chapter VII mandate is required, the capabilities of the mechanised and parachute forces may also be used. Other possible contributions include UN Military Observers, Staff Officers and Liaison Officers.

13. Overview of Policy Pronouncements made in the White Paper (cont’d) • Principles Governing South African Participation in Peace Missions. • A Clear International Mandate. • The mandate for a mission is obtained through a UN Security Council Resolution. • The mandate for the peace mission in question must be clear and agreed to between the UN, regional bodies (where applicable), the host country and conflicting parties and contributing countries. • Sufficient Means. • South Africa will not commit itself to participating in any peace mission which is patently under-resourced and which does not have sufficient means to achieve the set mandate.

14. Overview of Policy Pronouncements made in the White Paper (cont’d) • A Domestic Mandate and Budget. • Parliament plays a critical role in securing approval for South African participation in international peace missions. • In all cases, Parliament must authorise finances for South African participation in peace missions. • In all cases, the Department of Foreign Affairs will take the lead in securing finances for South African participation in specific peace missions. • The Department of Finance, on instruction from either the President or the Deputy President, will authorise the necessary funds. • The Department of Defence and the Department of Safety and Security will be responsible for budgeting for and meeting the pre-deployment costs, as well as a six-month post-deployment cost of the potential contribution earmarked for each department.

15. Overview of Policy Pronouncements made in the White Paper (cont’d) • Volunteerism. • Principle was based on the "old" Defence Act which provided that SANDF personnel may only be compelled to serve outside the borders of the RSA "in time of war ... against the enemy". • This however will change with the proclamation of the new Defence Act. • Clear Entry and Exit Criteria. • Political decision-makers to be reasonably assured that South African involvement will not be open-ended and that such involvement will not be regarded as part of a larger diplomatic or political failure on the part of contributing nations.

16. Overview of Policy Pronouncements made in the White Paper (cont’d) • Regional Co-operation. South Africa will continue to co-operate with regional partners, especially those within the SADC, in enhancing its capacity to participate in international peace missions. • Foreign Assistance. South Africa will continue to welcome offers of assistance, particularly those that may expedite and add to the quality of the type of contributions to international peace missions outlined in the White Paper.

17. Overview of Policy Pronouncements made in the White Paper (cont’d) • Procedures for the Deployment of South African Personnel • Permanent Mission to UNreceives request to contribute a military contingent to a peace mission. • Extra-territorial deployment of South African forces in fulfilment of an international obligation will, interms of Constitution, require the authorisation of the President. • President, acting on advise from the Minister of Foreign Affairs and theMinister of Defence, decide in principle whether or not to authorise deployment . This should be done on the basis of a Cabinet Memorandum jointly prepared and submitted by the Minister of Foreign Affairs and the appropriate Ministry and/or Ministries concerned and approved by the Cabinet. • Procedures which should be followed prior to tabling a proposal in Parliament for ratifying the participation of a South African military contingent in a particular peace support operation, are discussed in detail.

18. Overview of Policy Pronouncements made in the White Paper (cont’d) • The terms of reference with the UN (Memorandum of Understanding and the Status of Forces Agreement between the UN and the host nation) as well as the procedures are laid down in the White Paper. • Once agreement has been concluded to participate in a peace support operation, the DFA will have lead responsibility for overseeing and coordinating continuing RSA involvement in the operation at a national and international level.

19. Overview of Policy Pronouncements made in the White Paper (cont’d) • The DOD will have lead responsibility for the management and oversight of the operational deployment and maintenance of the South African military forces in a peace mission. This will be done in regular and close liaison with other state departments and will be coordinated via the establishment of a Joint Peace Operations Coordinating Committee within the Department of Foreign Affairs, or as determined by the President. • South African participation in international PSOs is always voluntary, and troops can be withdrawn at any stage of the operation subject to the details of the agreement between the UN (or other relevant international organisations) and South Africa.

20. Identification of issues in the White Paper that worked well during SANDF peace mission deployments over the last four years

21. Issues That Worked Well During SANDF Deployments Over the Last Four Years • Initial Participation of the DOD in Peace Missions • Started off well and placed on the map by the SANDF's deployment of observers to Ethiopia and Eritrea as well as the placing of a Military Liaison Officer in Kampala as part of MONUC Phase I. • Prioritisation Afforded Africa in South African Foreign Policy. • A Clear International Mandate. • In all cases of SANDF's participation in peace missions, international mandate was obtained. • A Domestic Mandate and Budget. • A national mandate for participation in all the SANDF missions was obtained according to the guidelines laid down in the White Paper. • (Budgeting issue will be dealt with later).

22. Issues That Worked Well During SANDF Deployments Over the Last Four Years • Clear Entry and Exit Criteria. • The entry and exit criteria for participation in all the peace missions were included in the Cabinet Memoranda for decision and confirmation by Cabinet • Procedures for the Deployment of South African Personnel. • From DOD perspective, viewed as the most important part in terms of the policy to be followed for peace mission deployments. • Clear and Concise Inter-departmental Policy Guidelines on South African Participation. • Before the requirement for South Africa's participation in MONUC Phase I was communicated to the DOD via DFA, the planning and establishment of a national structure for the co-ordination of these missions was done. Close co-operation was ensured between the DOD and DFA

23. Issues That Worked Well During SANDF Deployments Over the Last Four Years • SANDF Deployment for Non-traditional and Specialised Tasks/ Requirements. • Most of the tasks addressed in the White Paper pertain to traditional peacekeeping. • MONUC Phase II – specialised. Burundi – non-traditional. • Sufficient Early Warning. • For the planning and deployment of the military in a peace mission, sufficient political early warning and intent is of the utmost importance. • Involvement of DOD planners and National Treasury at early stage.

24. Parts of the White Paper which could be Considered for Amendment

25. Parts/issues in the White Paper which could be Amended • Background (Par 1.1). • The background and general approach to peace missions needs updating to include new approach of the AU, South Africa's position in the AU and its priority commitment towards Africa regarding the resolution of conflicts. • Regional and Sub-regional Mandates (Par 2.1) • The change in the region's structures and approach towards the resolution of conflict in Africa should be included in this paragraph • The new AU structures for the resolution of conflicts (peace missions) • The influence of the SADC Defence Pact on sub-regional conflict resolution to be included

26. Parts/issues in the White Paper which could be Amended • Clear Liaison Channels • Liaison between the military planners and the UN DPKO (as well as AU planners in future) at the earliest possible stages of the planning is important. In part 3.1 of the White Paper it is stated "To facilitate early involvement in the planning process, the UN should maintain liaison with national military headquarters as soon as it considers involving a particular country in an operation“ • Although this channel must be established through the NOCPM, such liaison between planners forms the basis for successful deployments • (The placement of a military liaison officer in the RSA Mission to the UN in New York and at the AU may be seen as part of the solution). • Peace Missions and National Interests (Par 4.2). • This part reflects the RSA's foreign policy and its prioritisation afforded Africa. NEPAD principles will have to be included and supported in updating this part of the White Paper.

27. Parts/issues in the White Paper which could be Amended • Standby Arrangements (Par 5.1) • To include South Africa's commitments (as approved by Cabinet and Parliament) towards the international (UNSAS), regional (AU) and sub-regional (SADC) environments • Military Resources (Par 5.4) • This part of the White Paper needs updating in terms of the SANDF's participation in peace missions over the last four years • The general approach of the SANDF for participation in peace missions will have to be reviewed according to the Force Employment Strategy

28. Parts/issues in the White Paper which could be Amended • Level and Size of Contribution and Sufficient Means (Par 6.1 and 6.3) • These paragraphs should be reviewed to address the possibilities of over-extension of capabilities, including civilian and other contributions. The importance of selective engagement to participate in specific missions, weighed against the RSA's national interests should form the basis for decision on the size of a contribution • (A suggestion is that the ceiling of military contribution be determined by the RSA's foreign strategy as well as the Defence Strategy. This will have to be determined on an annual basis to reach consensus on the availability of means per financial year.

29. Parts/issues in the White Paper which could be Amended • Domestic Mandate and Budget (Par 6.4) • Peace missions are by its very nature extremely expensive. White Paper states that Departments should include the funding for participation in peace missions in their annual budget. • The PFMA does not allow for Departments to budget for a contingency. Such unplanned and unforeseen expenditure should be made visible in the Adjustment Budget. In case of Burundi – special Appropriation Bill. • It is suggested that this part of the White Paper be re-evaluated and a policy be formulated, in co-operation with National Treasury, to address the gap in terms of budgeting for participation in peace missions.

30. PARTS/ISSUES IN THE WHITE PAPER WHICH NEED AMENDMENT (cont’d) • Volunteerism (Par 6.5) • The Defence Bill, soon to become the new Defence Act, will change the present paragraph on volunteerism significantly. • Entry and Exit Criteria (Par 6.6) • Drawn up and submitted by the members of the NOCPM. It is important to identify a required political end-state for a mission and implies political guidance and formulation of written criteria • This will contribute significantly in the planning and decision-making phase for participation in any mission. • Regional Co-operation (Par 6.7) • The paragraph needs amendment in terms of the AU structures for the resolution of conflict

31. Inclusion of Issues not Addressed in the White Paper • Humanitarian Assistance. • Requirement exists that a process/policy be included in the White Paper to address this issue or that a separate policy be formulated to deal with this issue. • Legal Framework for Participation in Peace Missions. • Suggested that this issue be addressed and considered for inclusion in the White Paper in order to provide a legal basis for participation in peace missions.

32. Inclusion of Issues not Addressed in the White Paper • Training Facilities and Capabilities. • That the RSA must have its own national facility and capacity to deal with mission specific training. Policy guidelines and resource allocation in this regard should be included in the White Paper for decision. • Allowances and Taxation. • Guidelines and policy should exist to address the issues in terms of equal allowances for deployed personnel as well as the taxation thereof.

33. QUESTIONS?