WHITE PAPER ON SOUTH AFRICAN PARTICIPATION IN INTERNATIONAL PEACE MISSIONS

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WHITE PAPER ON SOUTH AFRICAN PARTICIPATION IN
INTERNATIONAL PEACE MISSIONS
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BRIEFING TO THE JOINT STANDING COMMITTEE ON
DEFENCE

• 26 March 2003

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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  amended or repealed.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.

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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.

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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.

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

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Overview of Policy Pronouncements made in the
White Paper (contd)

• 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).
  

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Overview of Policy Pronouncements made in the
White Paper (contd)

• South African Philosophy on Participation in
  Peace Missions
• South Africas 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.

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Overview of Policy Pronouncements made in the
White Paper (contd)

• 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.

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Overview of Policy Pronouncements made in the
White Paper (contd)

• South Africas Potential Contributions to Peace
  Missions.
• UN Standby Arrangements System (UNSAS)
• Civilian Resources
• Police Resources
• Military Resources

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Overview of Policy Pronouncements made in the
White Paper (contd)

• 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 Armys 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.

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Overview of Policy Pronouncements made in the
White Paper (contd)

• 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.

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Overview of Policy Pronouncements made in the
White Paper (contd)

• 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.

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Overview of Policy Pronouncements made in the
White Paper (contd)

• 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.

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Overview of Policy Pronouncements made in the
White Paper (contd)

• 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.

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Overview of Policy Pronouncements made in the
White Paper (contd)

• Procedures for the Deployment of South African
  Personnel
• Permanent Mission to UN receives request to
  contribute a military contingent to a peace
  mission.
• Extra-territorial deployment of South African
  forces in fulfilment of an international
  obligation will, in terms of Constitution,
  require the authorisation of the President.
• President, acting on advise from the Minister of
  Foreign Affairs and the Minister 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.

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Overview of Policy Pronouncements made in the
White Paper (contd)

• 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.
  

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Overview of Policy Pronouncements made in the
White Paper (contd)

• 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.

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

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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

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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.

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Parts of the White Paper which could be
Considered for Amendment
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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

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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.

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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

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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.

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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.

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PARTS/ISSUES IN THE WHITE PAPER WHICH NEED
AMENDMENT (contd)

• 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

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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.

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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.

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• QUESTIONS?