A FOREIGN POLICY HANDBOOK An Overview of South African Foreign Policy in Context FOr PArliAment 2014 B d e l t r te o r W Af er rica • Bett A FOREIGN POLICY HANDBOOK An Overview of South Africa’s Foreign Policy in Context FOr PArliAment 2014 Acknowledgments the institute for Global Dialogue associated with Unisa would like to acknowledge the Friedrich-ebert-Stiftung (FeS) for their support for the institute’s parliamentary diplomacy research. Appreciation is also expressed to ms lineo mosala, Content Adviser for the Portfolio Committee on international relations and Cooperation, for her assistance and guidance in making this document possible. Project team Dr Siphamandla Zondi (iGD) Dr lesley masters (iGD) mr Wayne Jumat (iGD) ms romi reinecke (FeS) mr robert Boldt (FeS) layout Clara mupopiwa iSBn 978-0-620-62445-9 CONTENTS 1. INTRODUCTION 2. SOUTH 3. AN OVERVIEW OF 05 - 06 AFRICA’S SOUTH AFRICA’S FOREIGN FOREIGN Policy Policy 1994-2014 07 - 12 13 -21 4. SOUTH 5. DEVelopMents 6. Concepts AFRICA’S FOREIGN IN diploMacy 33 - 37 Policy AND its 27 - 32 Stakeholders 22 - 26 7. SOUTH AFRICA, 8. ACRONYMS AND 9. Contact International ABBREViations Details for Organisations 48 SELECTED AND DepartMents PLUrilateralisM 49 - 56 38 - 46 10. List OF KEY 11. ABOUT RESOURCES THE IGD 55 - 56 57 - 59 1 INTRODUCTION An Overview of South African Foreign Policy 1994-2014 he Parliament of South Africa has a proud tradition of engagement in South Africa’s foreign policy. The Portfolio Committee on International Relations and Cooperation (the Committee) Thas been engaged in debate on numerous issues, from human rights to economic diplomacy, in shaping South Africa’s approach towards international relations. As the new Committee begins the work of parliamentary oversight, there is an opportunity to reflect on the first two decades of post- apartheid South Africa’s foreign policy. Due to the dynamic nature of international • Unpack developments in international diplomacy relations, this handbook does not attempt to build a South African understanding; to capture all the nuances in South Africa’s • Highlight concepts, acronyms and abbreviations international engagement, but provide an within the field of International Relations. overview of the evolution of South Africa’s foreign policy and international diplomatic trends. In developing this handbook the Institute for Global Dialogue (IGD), supported by the NOTE Friedrich-Ebert-Stiftung (FES), hopes to address the practical needs of parliamentarians as they engage with foreign policy. This handbook Throughout the handbook you will highlights developments in South Africa’s foreign also find ‘snapshots’ that explain key policy (1994-2014), recent diplomatic issue areas, elements linked to South Africa’s and aims to provide clarity on key concepts. foreign policy. What IS THE PUrpose OF THIS FOREIGN Policy HANDBOOK? This handbook should equip incoming Committee Members with relevant information enabling them to engage critically in the foreign policy debates and processes. In particular this handbook aims to assist assist the Committee in: • Understanding South Africa’s foreign policy aims and objectives as well as the challenge of balancing principles and practice; • Provide a concise overview of the progress in South Africa’s international engagement since the transition to democracy; A foreign policy handbook 5 NOTES 6 A foreign policy handbook SOUTH AFRICA’S 2 FOREIGN Policy 2.1. Aims and Objectives 2.2. Balancing Principles and Practice A foreign policy handbook 7 South Africa’s Foreign Policy oreign policy analysis is typically concerned with the relations of states. In today’s international system this includes navigating a complex array of issues and actors. This section begins by Flooking at what constitutes South Africa’s foreign policy aims, objectives and principles, or the elements that provide the basis for assessing the successes and challenges from 1994-2014. 2.1. AIMS AND The strategic objectives: OBJECTIVES Objectives are specific goals through which an What are the aims and objectives of overall vision will be achieved over a term of South Africa’s Foreign Policy? government, usually 5-7 years, depending of the constitutional provision of each country. The aims and objectives of South Africa’s foreign In South Africa, the following objectives have policy are set out in statements made by the been identified: President of South Africa, the Minister and Deputy • Through bilateral and multilateral interactions, Ministers of the Department for International to protect and promote South Africa’s national Relations and Cooperation (DIRCO). These are interests and values; further contained in DIRCO’s annual reports, • Protect South Africa’s sovereignty and territorial strategic plans, and policy documents such as integrity; the 1996 Discussion Document on South Africa’s • Contribute to the formulation of international Foreign Policy and the 2011 draft White Paper on law and enhance respect for its provisions; South Africa’s Foreign Policy (The Diplomacy of • Promote multilateralism in order to secure a Ubuntu). rules-based international system. The aims: In broad terms, South Africa’s foreign policy guides the country’s international engagement aimed at creating a better South Africa, The Constitution ‘contributing to a better and safer Africa, and and Foreign Policy a better world’. Foreign policy aims to enable a country to draw benefits and advantages The supreme law of the Republic of South from its participation in international affairs. Africa is the Constitution (1996) and all In many cases, especially among developing law or conduct that is inconsistent with countries, foreign policy also seeks to reform the it is invalid. The President is responsible international system to enable them to benefit for South Africa’s foreign policy with from changing international circumstances. regards to appointing heads of South Africa’s diplomatic missions, receiving foreign heads of diplomatic missions, conducting inter-state relations and entering into international agreements. 8 A foreign policy handbook The Minister of International Relations nership for Africa’s Development (NEPAD) and Cooperation (the Minister), in accor- programmes related to priority sectors and dance with his/her Cabinet portfolio re- support the Presidential Infrastructure Cham- sponsibilities, is mandated and entrusted pioning Initiative (PICI). with the formulation, promotion and ex- • Contribute to the processes for the peaceful ecution of South Africa’s foreign policy. resolution of conflicts, peace missions; All aspects of South Africa’s international election observer missions; and Post-Conflict relations are part of the responsibility of Reconstruction and Development (PCRD). the Minister, in consultation with the • Provide technical and development coopera- President and the Cabinet. tion through capacity-building, skills transfer (Constitution of the Republic of South Africa, No. 108 and project funding to identified countries. of 1996) (2) Strengthen Political and Economic Integration of SADC Strategic Priorities: • Contribute to SADC processes, in order to cre- ate an enabling environment that is supportive In foreign policy, strategic priorities provide a of political and economic integration as well framework for policy implementation. as the effective functioning of the regional or- ganisation. The strategic priorities for South Africa are in the form of concentric circles, with Africa in the inner circle, followed by the global South, then the global North and global multilateralism. The current priorities are as follows: What is South Africa’s National (1) Enhance the African Agenda and Interest? Sustainable Development: ‘South Africa’s national interests are • Promote democracy, good governance, human rooted in our Constitution and our rights, peace and security, and sustainable history - spelling out the values we development on the African continent. This aspire to - which we also wish to is achieved through identified processes, propagate through our foreign policy debates and resolutions, aligned to agendas practices.’ and schedules of multilateral institutions, (Minister Maite Nkoana-Mashbane 2010). particularly the structures and processes of the African Union (AU), inclusive of the African ‘[T]he main pillars of South Africa’s Peer Review Mechanism (APRM). national interest are: • Contribute through deployment of person- • first, to ensure the stability of the nel and annual financial contribution to the Republic, its constitutional order strengthening of mechanisms and structures and its institutions; of the AU and the Southern African Develop- • second, to create an environment ment Community (SADC). in which South Africans are and • Advance the implementation of the New Part- A foreign policy handbook 9 South Africa’s Foreign Policy feel secure, and are free from want sustainable development; and hunger; • Respect, promote, protect and fulfill human • third, prioritise the sustainable rights, within an equitable rules-based growth and development of the multilateral system, according to agendas and South African economy; schedules of multilateral institutions; • fourth, prioritize the sustainable • Advocate for the reform of global governance growth and development of the institutions and their secretariats to better Southern African (SADC) region; address the needs of developing countries; • fifth, commit ourselves to working • Provide legal and policy advice to government for a stable African