Title: WHITE PAPER ON SOUTH AFRICAN PARTICIPATION IN INTERNATIONAL PEACE MISSIONS
1WHITE PAPER ON SOUTH AFRICAN PARTICIPATION IN
INTERNATIONAL PEACE MISSIONS
2BRIEFING TO THE JOINT STANDING COMMITTEE ON
DEFENCE
3WHITE 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amended or repealed.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.
4AIM
- 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.
5SCOPE
- 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.
6An overview of the policy pronouncements made in
the White Paper
7Overview 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.
8Overview 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).
9Overview 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.
10Overview 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.
11Overview 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
12Overview 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.
13Overview 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.
14Overview 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.
15Overview 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.
16Overview 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. -
17Overview 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.
18Overview 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.
19Overview 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.
20Identification of issues in the White Paper that
worked well during SANDF peace mission
deployments over the last four years
21Issues 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).
22Issues 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 -
23Issues 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.
24Parts of the White Paper which could be
Considered for Amendment
25Parts/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 -
26Parts/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.
27Parts/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
28Parts/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.
29Parts/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.
30PARTS/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
31Inclusion 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.
32Inclusion 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