The Other Edge of Asymmetry: South Africa's Bush War Strategy
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THE OTHER EDGE OF ASYMMETRY: SOUTH AFRICA’S BUSH WAR STRATEGY Helmoed Römer Heitman1 There is much talk today of “asymmetric warfare”, with scant regard for the fact that it is nothing new Guerrilla wars and terrorism have been around since the beginning of armed conflict. Also, few seem to consider that “asymmetry” works both ways There is nothing that is quite as “asymmetric” as a tank driving over an infantryman. It is this latter aspect of “asymmetric warfare” that this article will explore in the context of the “Bush War”. 1. THE SWAPO INTENT SWAPO’s intention would seem to have been to conduct a classic insurgency, opening with “agitprop” and moving through terrorism to guerrilla operations to, if necessary, conventional war. SWAPO operations through the 1970s and 1980s did not, however, at any time progress much beyond the agitprop/terrorism stage, with only a few sporadic efforts to launch actual guerrilla attacks. The initial failure to advance its campaign can be ascribed in large part to its inability to win any real measure of support in Caprivi, to which it had direct access from bases in Zambia, or Kavango, which it could, with some luck, infiltrate through Caprivi or via the southeast of Angola. That inability was, in its turn, largely a function of local dislike and distrust, rather than the result of any good counter- insurgency strategy on the part of the South African Police or, later, Army. SWAPO’s failure to advance to guerrilla warfare after it had gained indirect access to its ethnic home base in Owambo courtesy of UNITA, can be explained away as a result of the logistic difficulty of mounting operations in Owambo from bases in Zambia. Its continued failure to do so after having gained direct access to Owambo from southern Angola after 1976, is more difficult to explain other than as an outcome of successful operations on the part of the South African security forces. Over a period of twelve years (1976 to 1988) SWAPO was unable to conduct a guerrilla campaign in Owambo: • despite Owambo being its ethnic home base; • despite enjoying strong support from the Soviet Union and others; • despite having direct access across a friendly border; • despite terrain that was exceptionally favourable for hit-and-run type guerrilla attacks – no natural border obstacles, no canalising terrain, no high 1 Defence anylist and author. E-mail: [email protected] 1 JOERNAAL/JOURNAL 34(1) Feb. 2009 ground for OPs, ample bush cover, ample surface water during the rainy season; and • despite a rural population living in scattered kraals, easy to access for agitprop or terrorism, and impossible for the security forces to control or protect. That is to say in spite of having everything in its favour, SWAPO’s failure to advance its campaign into the guerrilla warfare stage is, therefore, remarkable. That suggests that the opposing strategy is worthy of study. 2. THE SOUTH AFRICAN RESPONSE The initial South African response was essentially one of standard counter-insurgency strategies and tactics, mainly executed by the Police. That proved effective against the SWAPO efforts in Caprivi and against its initial effort to begin operations in Owambo. Even after SWAPO’s alliance with the newly active UNITA facilitated its access through southern Angola into Owambo, all that really changed was that the Army took over responsibility for security from the Police, primarily because the latter lacked both the strength and the equipment for a more extended campaign. The strategy and tactics did not change noticeably. The focus of operations throughout those years was on routine patrolling, protection of key points and following up, as best possible, attacks by SWAPO groups. The one additional aspect was that the South Africans were able to conduct some operations to the north of the border from almost the beginning: The Police carried out some small-scale raids against SWAPO bases in south-western Zambia, and the Air Force deployed a number of Alouette III helicopters to support the Portuguese forces operating in the south of Angola, thereby also being able to interdict SWAPO movement to some extent. There was also co-operation between the South African and Portuguese intelligence agencies. The overall tenor of South African operations can, however, be characterised as small groups of infantry walking through the bush carrying heavy packs, looking for SWAPO and, more often than not, not finding them. That pedestrian approach was adequate, if not particularly successful, until the MPLA seized power in Angola in 1976. That changed the strategic picture entirely as a result of the new government allowing SWAPO to establish bases in southern Angola. At a stroke SWAPO’s problems of long approach marches and difficult logistic support were solved: Guerrillas could now dash across the border for an agitprop session, to burn a kraal or to lay some mines, and be back in the safety of a properly defended base in Angola long before the opposing infantry could react. The combination of proximity, favourable terrain and an accessible population faced the South African security forces with an almost impossible operational situation. 2 Heitman • The other edge of asymmetry: South Africa’s Bush War strategy The result was an escalation of attacks in Owambo and sufficient optimism on the part of SWAPO by 1978 to plan a very large-scale incursion into the then South- West Africa with the intention of disrupting the elections scheduled for December of that year, on which South Africa had staked much of its strategy for ridding itself of the SWA albatross in a reasonable period of time and in an acceptable manner. The South Africans had already begun to reconsider their approach to dealing with the SWAPO insurgency, mainly focussed on “winning hearts and minds” on one hand and on improving response times on the other, albeit without too much imagination being shown in that respect. Thoughts of building a “Morice Line” along the 450 km or so of open land border were rejected as being far too costly and requiring too many troops to be effective. There was, thus, clearly a need to come up with a better idea. The key impetus for a new strategy was provided by intelligence of SWAPO’s plans for a large-scale incursion during 1978. 3. A NEW STRATEGY: OFFENCE IS THE BEST DEFENCE The basis for the new offensive strategy had been laid by shallow area reconnaissance and disruption operations, some of which saw the light infantry of 32 Battalion carry out what amounted to guerrilla operations against SWAPO in its supposed safe areas. A further building block was the establishment of the Army’s first true mechanised force – Combat Group Juliet – as a counter to any Angolan Army adventures in the border area. Juliet saw its first action when it carried out a follow-up operation in the wake of one of SWAPO’s few successful guerrilla attacks, during which the guerrillas captured a Sapper who had been stationed at an outlying water point. This was in itself an example that the South African Army was not yet fully “up to speed” in its conduct of the war. 3.1 Pre-emption The impending large-scale incursion into Owambo gave the South Africans pause for thought. Given the nature of the terrain, it would be impossible to stop SWAPO at the border. There could also be no question of allowing them to rampage in Owambo. The one remaining option was to pre-empt the incursion. That pre-emption took the form of Operation Reindeer, which stands out for a number of reasons: • It was the first major cross-border or “external” operation against SWAPO. • It was the first operation against a SWAPO base deep inside Angola. • It saw the first air assault operation ever launched by the SADF. • Reindeer had four main elements: 3 JOERNAAL/JOURNAL 34(1) Feb. 2009 • An air assault against the main headquarters, logistic and training centre of the Peoples Liberation Army of Namibia (PLAN) at Cassinga, some 250 km inside Angola, carried out by a reinforced composite parachute battalion. • An attack by a mechanised infantry battalion group (Combat Group Juliet – the later 61 Mechanised Battalion Group) against a complex of forward SWAPO bases in the vicinity of Chetequera, some 30 km inside Angola. • Attacks by two infantry battalions with armoured car and artillery support against forward SWAPO bases in the vicinity of Chatua and Dombondala, some 10 to 15 km inside Angola. • An attack by 32 Battalion (light infantry) with artillery support against SWAPO forward bases in the vicinity of Henhombe, some 15 to 20 km inside Angola. None of Reindeer went quite as planned. The air assault suffered near disaster, as such operations tend to, and the ground attacks suffered their share of delays that enabled some guerrillas to escape, although their bases were razed and quantities of weapons, equipment and stores were lost. The overall effect, however, was shattering: Some 859 guerrillas killed, 202 captured and at least 340 wounded, and valuable intelligence was gained from the documents captured at Cassinga. Also, many of the killed were experienced guerrillas who could not quickly or easily be replaced. The effect of that became visible over the course of the year, when SWAPO’s casualty rate increased as a result of having to employ larger groups of mainly inexperienced guerrillas with a few experienced ones to hold them together. The attacking forces lost six soldiers killed, four of them at Cassinga. The planned large-scale guerrilla incursion never took place. By 1979, however, SWAPO had recovered to a considerable extent, and was preparing for large-scale infiltration of Owambo, as well as having concentrated large numbers of guerrillas for a new attempt to open Caprivi as an active front.