Discussion Paper 4/2019 South Africa’s Changing Role in Global Development Structures – Being in Them but Not Always of Them Elizabeth Sidiropoulos South Africa’s changing role in global development structures – being in them but not always of them Elizabeth Sidiropoulos Bonn 2019 Discussion Paper / Deutsches Institut für Entwicklungspolitik ISSN (Print) 1860-0441 ISSN (Online) 2512-8698 Die deutsche Nationalbibliothek verzeichnet diese Publikation in der Deutschen Nationalbibliografie; detaillierte bibliografische Daten sind im Internet über http://dnb.d-nb.de abrufbar. The Deutsche Nationalbibliothek lists this publication in the Deutsche Nationalbibliografie; detailed bibliographic data is available in the Internet at http://dnb.d-nb.de. ISBN 978-3-96021-095-5 (printed edition) DOI:10.23661/dp4.2019 Printed on eco-friendly, certified paper Elizabeth Sidiropoulos is the Chief Executive of South African Institute of International Affairs (SAIIA). E-Mail: [email protected] Published with financial support from the Federal Ministry for Economic Cooperation and Development (BMZ). © Deutsches Institut für Entwicklungspolitik gGmbH Tulpenfeld 6, 53113 Bonn +49 (0)228 94927-0 +49 (0)228 94927-130 Email: [email protected] www.die-gdi.de Acknowledgments The author would like to thank Stephan Klingebiel and Heiner Janus at the German Development Institute / Deutsches Institut für Entwicklungspolitik (DIE) for their very useful comments on earlier drafts of the paper, which have improved it greatly; Carmel Rawhani for her research assistance in the early phase of this paper; and Neuma Grobbelaar at the South African Institute of International Affairs (SAIIA) for her valuable insights and comments. In addition, Alexandra Begg and Iolandi Pool at SAIIA provided generous support with the references. Elizabeth Sidiropoulos Contents Acknowledgements Abbreviations Executive summary 1 1 Introduction 5 2 Global development in a fractured world 6 2.1 Global development processes in 21st century 7 2.1.1 The UN streams in development 7 2.1.2 The DAC stream: from Rome to Busan 8 2.1.3 Other development processes 8 2.1.4 Much ado about principles 9 2.1.5 Global Partnerships: contrasting the GPEDC with the SDGs 11 2.1.6 South-South Cooperation (SSC) and global development 12 3 South Africa and the international system 15 3.1 Positioning African development in global fora: the Mbeki period 15 3.2 Playing with giants: the Zuma period 16 3.3 The African National Congress, global development and South-South Cooperation 18 3.4 Participation in global development fora 20 3.4.1 The OECD processes 21 3.4.2 UN processes 24 3.4.3 Clubs 27 4 Resonance or dissonance in Africa? 32 4.1 The NEPAD Agency 33 4.1.1 Adopting common positions: the African Platform for Development Effectiveness 33 4.2 Agenda 2063 36 4.3 Global voice and representation 37 4.3.1 UN processes 37 4.3.2 The GPEDC process 39 4.4 African states and South-South Cooperation 42 5 Conclusions 43 References 47 Tables Table 1: Global development forums and South African government departments responsible 21 Abbreviations AAAP Addis Ababa Action Plan AAG African Advisory Group ANC African National Congress APDev African Platform for Development Effectiveness APRM African Peer Review Mechanism AU African Union BEPS base erosion and profit-shifting BRICS Brazil, Russia, India, China, South Africa CAP Common African Position on the post-2015 Development Agenda CBDR Common But Differentiated Responsibilities CRFs Country Results Frameworks DIRCO Department of International Relations and Cooperation (South Africa) DRM domestic resource mobilisation DWG Development Working Group (G20) ECOSOC United Nations Economic and Social Council EME emerging market economy FfD Financing for Development (United Nations) G20 Group of 20 G77 + China Group of 77 plus China GDP gross domestic product GNI gross national income GPI Global Partnership Initiatives (GPIs) GPEDC Global Partnership for Effective Development Co-operation HLM High Level Meeting HLPF High Level Political Forum IATF Inter-Agency Task Force on Financing for Development (United Nations) IBSA India, Brazil, South Africa Dialogue Forum IFFs illicit financial flows IGN inter-governmental negotiations IMF International Monetary Fund LICs low-income countries MDGs Millennium Development Goals MICs middle-income countries NATO North Atlantic Treaty Organization NEPAD New Partnership for Africa’s Development (African Union) NDPs National Development Plans NT National Treasury (South Africa) ODA official development assistance OECD-DAC Organisation for Economic Co-operation and Development − Development Assistance Committee OWG Open Working Group PBIG Post-Busan Interim Group SA South Africa/South African SAIIA South African Institute of International Affairs SDGs Sustainable Development Goals SSC South-South Cooperation UN United Nations UNDCF United Nations Development Cooperation Forum UNGA United Nations General Assembly USD United States dollar WP-EFF Working Party on Aid Effectiveness (OECD) WSSD World Summit on Sustainable Development South Africa’s changing role in global development structures – being in them but not always of them Executive summary Since it threw off the mantle of pariah-hood and re-joined the international community in 1994, South Africa has not only sought to address its own significant socio-economic challenges, that were a legacy of apartheid, but equally, to stake a place for itself in the global development debates and structures. The democratically elected government led by the African National Congress (ANC) from 1994 onwards aimed to transform South African society and to work towards reforming the superstructure of the international system, which also impacted on poverty and inequality in poor countries, not just domestic factors. In his first “State of the Nation” address in South Africa’s Parliament in 1994, President Nelson Mandela equated the freedom of the individual, which had just been attained in South Africa politically but not socio-economically, to the restoration of human dignity. He said: “My government’s commitment to create a people-centred society of liberty binds us to the pursuit of the goals of freedom from want, freedom from hunger, freedom from deprivation, freedom from ignorance, freedom from suppression and freedom from fear” (Mandela, 1994, para. 21). A few years later, opening the World Summit on Sustainable Development in Johannesburg in August 2002, President Mbeki reminded the assembled delegates that: Our common and decisive victory against domestic apartheid confirms that you, the peoples of the world, have both the responsibility and the possibility to achieve a decisive victory against global apartheid. Out of Johannesburg and out of Africa, must emerge something new that takes the world forward away from the entrenchment of global apartheid, to the realisation of the goals of sustainable development. (Mbeki, 2002, para. 24, emphasis added) The end of the Cold War removed the ideological camps of the first, second and third world, but not the disparities between the industrialised and the developing world. From the Millennium Development Goals and the World Summit on Sustainable Development to the most recent and ambitious global social compact contained in the Sustainable Development Goals, these initiatives sought to address the huge developmental challenges facing the developing world. South Africa has been active in all of these United Nations processes as well as in others that are aimed at addressing the significant inequalities between and within countries. This paper explores how South Africa’s engagement in global development structures has evolved since 1994. When South Africa re-entered the international community, many in the North considered the country as one that espoused a similar world view to theirs. What they did not sufficiently appreciate was the ANC’s own historical philosophical underpinnings, which aimed to reaffirm South Africa’s place in the Global South and African firmament after the end of apartheid. This understanding is necessary in the context of South Africa’s priorities over the last 25 years, not least in the development debates. The paper begins by discussing the evolving global development landscape of the 21st century. The last two decades have seen significant attempts to develop global norms that reflected the desire to create a more just world and tackle the serious developmental challenges faced by many developing countries. The paper explores these initiatives and divides them broadly into three streams – those undertaken by the United Nations, those German Development Institute / Deutsches Institut für Entwicklungspolitik (DIE) 1 Elizabeth Sidiropoulos begun by the Organisation for Economic Co-operation and Development − Development Assistance Committee (OECD-DAC), and those that may be understood as part of club governance processes. The Millennium Development Goals (MDGs), the Financing for Development conferences, the Sustainable Development Goals (SDGs) and the United Nations Development Cooperation Forum fall under the first stream. The various OECD- DAC High Level Forums, which culminated in Busan in 2011 and led to the establishment of the Global Partnership for Effective Development Co-operation (GPEDC), form part of the second stream. The G20, the BRICS (Brazil, Russia, India, China, South Africa) and IBSA (India, Brazil, South Africa Dialogue Forum), (and the broader South-South Cooperation initiatives) fall under the