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A New Role for a Future South AFrican Defence Force
INTRODUCTION
The constitutional reform process set in motion by President F.W. de Klerk at the beginning of 1990 has, after three years, reached a stage where it may, by all indications, be viewed as irreversible. Given the inevitability of major political changes in South Africa, the question being asked by military personnel, observers and analysts alike is: what role or roles would in future be assigned by a new democratically elected government to the defence force? The pertinence of this question arises from the fact that it is generally accepted that a conventional military attack by South Africa's neighbours or other states further afield, seems highly improbable for the rest of this century and even for some time into the next century.
Although the issue of future defence roles for South Africa is one of great importance, it has thusfar received only limited attention. However, a notable exeption in this regard has been the work of the Institute for Defence Policy (IDP). In a study conducted during 1992, the institute identified a number of roles that may in future be assigned to a South African defence force (Cilliers, 1992: 3). Although the IDP deserves full praise for its valuable and timeous contribution, it touched only briefly on an extremely important role, namely support of United Nations (UN) peacekeeping operations.
The aim of this article is to expand on the idea of a possible role for a future South African defence force in support of UN peacekeeping operations and, more specifically, to highlight the benefits for South Africa that may emanate from such a role. The topic will be addressed in two parts. Firstly, the important place that UN peacekeeping will occupy in the new international system will be described. Secondly, the specific benefits for a new South Africa that may emanate from such a supportive role will be outlined.
THE IMPORTANCE OF United nations PEACEKEEPING IN THE EMERGING NEW INTERNATIONAL SYSTEM
There is almost complete agreement among political scientists that of all the decisive political events that have occurred since the Second World War, none had a more profound effect on the structure of the international system than the demise of the Soviet Union. Mainly as a result of this development the United States of America (USA) was, almost overnight, elevated to such an unassailable position of power and influence that no other state or grouping of states could effectively challenge its hegemony. Indeed, such was the magnitude of the change that some observers have already characterised the structure of the new international system as one of unipolar configuration, or a one superpower world (Talbott, 1992: 41).
Given the emergence of a new type of international system in which the USA largely determines the agenda, lays down the rules, determines whether the 'playing field' is even and provides the referees (Holsti, 1992: 13), the question arises whether the USA will in future also police the new world. Paradoxical as it may seem, all indications are that the USA is not interested in endorsing the idea of "global unilateralism" or world policeman (Talbott, 1992: 41). The USA has obviously studied history well and will consequently avoid the pitfalls of world policing that have befallen previous superpowers. However, it should be explained that, although the USA does not intend performing the role of policeman in the emerging international system, it has every intention of subscribing to the concept of "collective internationalism" or the establishment of coalitions of states sanctioned by the UN to deal with major regional conflicts (Talbott, 1992: 41).
Furthermore, it should be emphasised that, for the USA in particular, sanction by an international organisation before it intervenes in a major regional conflict has been a longstanding requirement of policy. Ever since the early days of the Cold War the USA has been in favour of the development of international organisations that can help to bring about international peace and security. The assumption behind this approach was that global interests and democratic values are more likely to thrive if they are left in the hands of international organisations bolstered by strong norms, agreements and institutions, than they are in a world of conflict and strife (UNA-USA, 1985: iv).
In view of the USA's long history of support for international organisations as a means of maintaining global peace and security, it can safely be predicted that in future the USA will use its dominant position in the new international system to strengthen the role of such organisations, especially that of the UN. In this regard, it is interesting to note that a proposal has recently been made in terms of which the USA should formally amend its national security policy to make provision for a strong role for the UN. In an article in the March 1992 edition of Comparative Strategy entitled, Policing the New World Order: An Alternative Strategy, it is suggested that the USA should reformulate its national security policy to allow, firstly, for the elevation of the role of the UN as the world's policeman. Secondly, support is proposed for the establishment of a permanent UN peacemaking force which would provide it, as well as the international community, with a short-notice military employment capability and would, at the same time, lower the USA's profile as the world's policeman in the new world order (Huddleston, 1992: 1).
Although it is not clear at this stage whether the USA will heed these proposals, there are clear indications that, together with other important allies and actors, it is prepared to assign to the UN a more meaningful role in the maintenance of international peace and security. Among these indications are the following:
- The appeal in January 1993 by the former American president, George Bush, that the USA should use military force in future only in concert with the UN, but not be the world's policeman (Ogden, 1993: 21).
- The statement by General Colin Powell, the present Chairman of the American Joint Chiefs of Staff, that he would like to see the Military Staff Committee of the UN Security Council be made "more relevant" (Talbot, 1992: 41).
- The increase in the number of UN peacekeeping operations in recent years. Since 1988 the UN has launched 14 peacekeeping operations, compared to only 13 during the previous 40 years. The total number of troops presently serving in UN peacekeeping forces exceeds 90 000 (Serrill, 1993: 18).
- The imposition of economic sanctions by the Security Council against Libya, Iraq and the former Yugoslavia.
- The authorisation, by the Security Council, for the USA and its allies to intervene militarily during the crises in the Persian Gulf and in Somalia.
- The tacit acceptance, by the USA and an growing number of states, of a new legal norm which states that intervention and interference in other states' internal affairs are legitimate if those actions have the prior approval of a collective body or international organisation, or if that body or organisation itself assumes such a task (Holsti, 1992: 224).
- The proposal by the secretary-general of the UN, Boutros Boutros-Ghali, during 1992 that the peacekeeping capability of the UN be strengthened by the creation of a special peacekeeping fund, the establishment of standby forces by member states to be rapidly deployed by the Security Council in an emergency and the stockpiling of reserve supplies at strategic places around the world (Boutros-Ghali, 1992: 89 - 102).
- The authorisation of UN peacekeeping forces in Somalia to use force against certain factions.
Thus all indications are that in future the UN will be strengthened. As a direct consequence, all member states, including a new South Africa, will be left with a severely restricted latitude of choice regarding support for its peacekeeping activities.
BENEFITS FOR SOUTH AFRICA IN A SUPPORTIVE ROLE IN UNITED NATIONS PEACEKEEPING OPERATIONS
When, in future, South Africa is called upon to contribute toward the peacekeeping operations of the UN, it should not hesitate because considerable benefits may emanate from such a role. The most important of these benefits are described below.
Enhancement of International Prestige
South Africa has, over the years during which the policy of apartheid was applied, fallen into international disrepute. However, by participating in future peacekeeping operations of the UN, the country would contribute to the restoration of its image and enhance its prestige because those countries who do take part in the peacekeeping activities of the UN are normally held in high esteem by other states.
Re-admittance to the International Community
Also due to the policy of apartheid pursued by successive governments, South Africa has, through the years, been isolated to such an extent that, until recently, it could only be described as a pariah state. By supporting future UN efforts to control international conflict by means of peacekeeping operations, South Africa will not only visibly demonstrate its resolve in leaving behind past policies, but will also communicate its desire to be re-admitted as a fully-fledged member of the international community.
Reconciliation with Fellow African States
For many decades the relations between South Africa and other African states were characterised by unreserved hostility. By participating in the peace-promoting activities of the UN in future, South Africa may find it easier to convince these states of its sincere intentions of future friendship, reconciliation, and good neighbourliness.
Enhancem ent of Military Professionalism and Expertise
It is generally accepted that the military professionalism required for peacekeeping operations is of a different nature to the professionalism required of regular military personnel. As the International Peace Academy (IPA, 1984: 260) correctly points out, peacekeeping calls for an adjustment of attitude and approach by soldiers to a different set of circumstances from those they would normally find on the battlefield; an adjustment to suit the needs of a peaceable intervention rather than of an enforcement action and those of total involvement with the civilian population rather than isolation from society. Thus the expertise and military professionalism of South African defence personnel could be significantly enhanced if a sizeable number are trained in the skills that are required for international peacekeeping.
Improvement of Intra-national and Intra-force Cohesion
South African society is characterised by sharp divisions and rifts and, as a result, there is almost a complete absence of common bonds and loyalties. By allowing members of a representative defence force to participate in such laudable activities as preserving international peace, much can be done to unite the country and unite the defence force. Consequently, such activities may also contribute to efforts in the difficult process of nation-building confronting a new government.
Confirmation of Non-aggressive Posture
The South African government has, on numerous occasions in the past, as a result of its military operations across international borders, been accused of acts of aggression and efforts to destabilise its neighbours. Participation in the UN's peacekeeping activities by a future South African government will visibly demonstrate to its neighbours, and to the world at large, that previous provocative policies have been abandoned in favour of a new co-operative and non-aggressive approach.
Diversion of Defence Force Focus
Up to now, large numbers of defence force personnel have been deployed to assist the police in the maintenance of law and order. This practice not only caused dissatisfaction and unease among large sections of the defence force, but also invited harsh criticism from certain segments of the population and from abroad. Participation in future peacekeeping operations of the UN would alter this state of affairs because it would not only give the defence force a legitimate external role, but would also assist in diverting its focus away from the domestic political situation. A further positive consequence would be that the maintenance of law and order would necessarily be left in the hands of those whose primary responsibility it is, namely the police.
Confirmation of Status as Regional Power
For many decades South Africa has had the capacity to act as a regional power. However, as a result of its poor relations with other states in the region this role was never realised. By participating in the future peacekeeping operations of the UN, South Africa would not only demonstrate its desire to restore disrupted relations with fellow African states, but would also take a positive step towards taking its rightful place as regional leader.
CONCLUSION
The demise of the Soviet Union left structural power in the international system solely in the hands of the USA. However, despite expectations to the contrary, all indications are that the USA is not prepared unilaterally to dictate the course of international affairs. Instead, it favours the strengthening of the UN so that it can police the new world. The frequency with which the UN has launched peacekeeping operations in recent times is a clear indication that this process is under way.
Members of the UN can in future expect to come under strong pressure to lend their support to the organisation's peacekeeping operations. The government of a new South Africa should take note of this development because it too will be called upon by the UN to assist in its peace-keeping efforts. Given the significant benefits to be derived from participation in those operations, there should be no reason for a new government not to accept a supportive role.
BIBLIOGRAPHY
B Boutros-Ghali, Empowering the United Nations, Foreign Affairs, Vol 72, no 5, 1992.
J K Cilliers, The Military in a Changing South Africa, South African Defence Review, Issue No 1, 1992.
K J Holsti, International Politics. A Framework for Analysis, Sixth Edition, Prentice-Hall International.
L D Huddleston, Policing the New World Order: An Alternative Strategy, Comparative Strategy, Vol 11, No 1, January - March, 1992.
C Ogden, Getting Serious, Time, January 18, 1993.
M Serrill, Under Fire, Time, January 18, 1993.
S Talbott, Peacekeeping Loves Company, Time, May 18, 1992.
UNA-USA, Keeping the Peace in Troubled Times, Final Report, The Multilateral Project, United Nations Association of the United States of America, 1985.
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