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South Africa's Voting Behaviour in the United Nations, 1994-2008

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South Africa's Voting Behaviour in the United Nations, 1994-2008 SOUTH AFRICA’S VOTING BEHAVIOUR IN THE UNITED NATIONS, 1994-2008. by SUZANNE ELIZABETH GRAHAM THESIS Submitted in partial fulfilment of the requirements for the degree DOCTOR OF LITERATURE AND PHILOSOPHY in POLITICS at the UNIVERSITY OF JOHANNESBURG SUPERVISOR: PROF DJ GELDENHUYS JANUARY 2013 i DECLARATION I hereby declare that the thesis submitted for the D Litt et Phil degree in Politics to the University of Johannesburg, apart from the help recognised, is my own work and has not been formerly submitted to another university for a degree. Suzanne Elizabeth Graham January 2013 ii SUMMARY This study places on record South Africa‟s UN voting data from 1994 to 2008. It also investigates consistency in terms of South Africa‟s declared foreign policy and its actual voting practices at the UN during that period. The voting data and related speeches are drawn from the UN‟s Index to Speeches available through the UN Documentation Centre as well as from an examination of the recorded votes in the UN Index to Proceedings and the United Nations Bibliographic Information System (UNBISnet) – the two main databases concerning voting records in the UN and found in the Dag Hammarskjold online library. Using its own three-step model of voting behaviour, the study traces South Africa‟s declared foreign policy on selected issues in the first step; the Republic‟s voting actions on the issues in the second step, and then interpretations of the voting actions taken in the final step. By organising the voting data in this way, the study intends to make the examination of South Africa‟s voting behaviour within this multilateral forum more manageable. The model is applied to four themes identified as prominent within South Africa‟s foreign policy in the years under review. A table is also employed to assess if the voting is inconsistent, partly consistent or consistent with the declared policy under review. The Republic‟s voting behaviour is examined with regard to the following four themes: the promotion of human rights and democracy; disarmament and related non-proliferation issues; the advancement of African interests and the consolidation of the African Agenda within the context of North-South relations, and reform of the UN and the promotion of equitable global governance. The study concludes that between 1994 and 2008 there was congruity between South Africa‟s declared foreign policy and its UN voting behaviour in most respects. The Republic was mostly consistent on issues of UN reform, followed by the promotion of African interests, then disarmament issues and lastly with regard to human rights and democracy promotion. It is evident that South Africa has stumbled at times and sidelined certain principles, human rights promotion in specific countries most especially. It could be said that South Africa‟s foreign policy evolved from one unsure how to deal with human rights issues at the UN, to one rooted firmly in nurturing solidarity with its Southern partners in Africa and the rest of the world. This reflects a young democracy finding its way in the multilateral organisation and attempting to balance external expectations of the Republic with its foreign policy priorities. Overall South Africa demonstrated a fair commitment to its declared foreign policy, and principles, in its UN voting behaviour. iii ACKNOWLEDGEMENTS I would like to thank the following people for their kindness, support and encouragement: Professor Deon Geldenhuys, my supervisor and invaluable work colleague. Your interest in the topic, and readiness to offer advice and guidance at every turn, gave me the willpower to undertake this journey. Our frequent discussions over coffee and „a full English‟ also proved to be an essential part of this process. Professor Pieter Fourie for his friendship during trying times. Professor Chris Landsberg and Mrs Rae Israel at the Department of Politics at the University of Johannesburg for their good-natured teasing about getting the job done! Zelda Geldenhuys of the University of Johannesburg library. The UJ Faculty of Humanities, especially Professor Ronel Johl and Professor Lionel Posthumus, for their support. Claudia Forster-Towne and Auriel Niemack for their efforts to scout out „vanished‟ sources in the early days of this work and Professor Craig Mackenzie for his editing assistance. Rachel, Lucian, Miska and Michael: my niece and nephews who were all born during the time it took me to complete this work and whose endless enthusiasm for playing helped keep me sane along the way. My brothers Antony and Richard and sisters-in-law, Ilonka and Robyn, for their patience and cheerful support. Justin van der Merwe for the valuable discussions and for his friendship and constant encouragement. My Mom and Dad and Jim for their unwavering belief and optimism. My twin sister Vicky who saw me through every step of my doctorate, literally, as we sat across the table from each other, and as she worked on completing her doctorate simultaneously. iv CONTENTS PAGE CHAPTER ONE: INTRODUCTION AND ANALYTICAL FRAMEWORK 1 1.1. Background 1 1.2. Purpose and contribution of the study 3 1.3. Literature review 5 1.4. Analytical framework and research methodology 7 1.4.1. Step 1: declared foreign policy 10 1.4.2. Step 2: voting action 11 1.4.3. Step 3: interpretations of voting action: government views and observers‟ views 13 1.5. Conceptualisation for contextual relevance 15 1.5.1. Multilateralism and multilateral diplomacy 15 1.5.2. Acting in the UN 18 1.5.2.1. State roles at the UN 18 1.5.2.2. Permanent missions and delegations 21 1.5.3. UN voting 25 1.6. Structure of the research 30 1.7. Conclusion 31 CHAPTER TWO: SOUTH AFRICA’S FOREIGN POLICY: PINPOINTING PRINCIPLES AND THEMES 34 2.1. Introduction 34 2.2. Conceptualising foreign policy 34 2.3. South Africa‟s foreign policy, 1994-2008 38 2.3.1. Principles 39 2.3.2. Themes 44 2.3.2.1. The promotion of human rights and democracy 44 2.3.2.2. Disarmament and related non-proliferation issues 49 2.3.2.3. The advancement of African interests and the consolidation of the African Agenda within the context of North-South relations 55 2.3.2.4. Reform of the UN and the promotion of equitable global governance 59 2.4. Conclusion 64 CHAPTER THREE: SOUTH AFRICA’S VOTING ON HUMAN RIGHTS AND DEMOCRACY ISSUES AT THE UN 66 3.1. Introduction 66 3.2. Human rights at the UN: a background review 67 3.3. South Africa and human rights at the UN 71 3.3.1. South Africa‟s voting actions 75 3.3.1.1. Votes on country-specific situations 77 3.3.1.1.1. Voting at the UNSC 82 3.3.1.2. Votes on thematic issues in the UNGA and UNCHR/HRC 84 v 3.3.2. Interpretations of voting action: government views and observers‟ views 97 3.3.2.1. Explanations of South Africa‟s votes on country-specific situations 102 3.3.2.2. Explanations of South Africa‟s votes on thematic issues 115 3.4. Conclusion 119 CHAPTER FOUR: SOUTH AFRICA’S VOTING ON DISARMAMENT AND NON PROLIFERATION ISSUES AT THE UN 122 4.1. Introduction 122 4.2. Disarmament and non-proliferation at the UN 124 4.3. South Africa‟s disarmament policy and voting on nuclear controls at the UN 128 4.3.1. Voting actions at the UN 133 4.3.1.1. Votes on nuclear disarmament and non-proliferation issues134 4.3.1.2. Biological and chemical weapons 140 4.3.1.3. Conventional weapons issues 141 4.3.1.4. Regional disarmament and security 145 4.3.1.5. Related disarmament measures and international security 147 4.3.1.6. Outer space 150 4.3.1.7. Institutional aspects of disarmament 150 4.3.2. Voting action at the UNSC 154 4.4. Interpretations of voting action: government views and observers‟ views 155 4.4.1. Nuclear non-proliferation 155 4.4.2. Anti-personnel landmines 159 4.4.3. Arms sales 161 4.4.4. The UNSC 165 4.5. Conclusion 169 CHAPTER FIVE: ADVANCING AFRICAN INTERESTS AND CONSOLIDATING THE AFRICAN AGENDA WITHIN THE CONTEXT OF NORTH- SOUTH RELATIONS 172 5.1. Introduction 172 5.2. The emergence of a Southern bloc at the UN 173 5.3. South Africa at the UN: champion of Africa and the South? 180 5.3.1. Voting at the UNGA 188 5.3.1.1. Votes on issues related to South Africa‟s African Agenda 189 5.3.1.2. UNGA Second Committee votes 191 5.3.1.3. UNGA Fourth Committee votes 194 5.3.1.4. UNGA Plenary votes 196 5.3.2. Voting at the UNSC 197 5.4. Interpretations of voting action: government views and observers‟ views 202 5.4.1. NEPAD and the Situation in Africa 204 5.4.2. South Africa and South-South cooperation 206 5.4.3. The UNSC 209 5.5. Conclusion 211 vi CHAPTER SIX: SOUTH AFRICA’S VOTING ON REFORMING THE UN AND PROMOTING EQUITABLE GLOBAL GOVERNANCE 214 6.1. Introduction 214 6.2. The reform agenda at the UN: a summary 216 6.3. South Africa and reform at the UN 222 6.3.1. South Africa‟s voting behaviour 226 6.3.1.1. UNGA Fifth Committee votes 227 6.3.1.2. UNGA Sixth Committee votes 238 6.3.1.3. UNGA Plenary votes 240 6.3.1.4. Equitable financial global governance: UN resolutions on the BWIs 251 6.4. Interpretations of voting action: government views and observers‟ views 253 6.4.1.
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