Project1 12/18/07 1:09 PM Page 1 SOUTHERN AFRICA: BUILDING AN EFFECTIVE SECURITY AND GOVERNANCE ARCHITECTURE FOR THE 21ST CENTURY CENTRE FOR CONFLICT RESOLUTION CAPE TOWN, SOUTH AFRICA POLICY ADVISORY GROUP SEMINAR REPORT 29 AND 30 MAY 2007, WHITE SANDS HOTEL, DAR ES SALAAM, TANZANIA Vol 24-Final 12/18/07 1:04 PM Page 1 SOUTHERN AFRICA: BUILDING AN EFFECTIVE SECURITY AND GOVERNANCE ARCHITECTURE FOR THE 21ST CENTURY POLICY ADVISORY GROUP SEMINAR WHITE SANDS HOTEL, DAR ES SALAAM, TANZANIA 29 AND 30 MAY 2007 ORGANISED BY THE CENTRE FOR CONFLICT RESOLUTION, CAPE TOWN, SOUTH AFRICA SEMINAR REPORT RAPPORTEURS ANGELA NDINGA-MUVUMBA AND ROBYN PHAROAH Vol 24-Final 12/18/07 1:04 PM Page 2 Vol 24-Final 12/18/07 1:04 PM Page 3 Table of Contents Acknowledgments, CCR and the Rapporteurs 5 Executive Summary 6 1. Introduction 11 2. Southern Africa’s Security and Governance Architecture 14 3. Southern Africa’s Governance Challenges: Democratisation and Elections 16 4. The Role of SADC in Addressing Regional Peace and Security Concerns 19 5. Peacemaking and Peacebuilding in the SADC Region 22 6. SADC, Gender and Peacebuilding 24 7. Food Security in Southern Africa 27 8. Tackling the Challenge of HIV/AIDS in Southern Africa 32 9. Conclusion and Policy Recommendations 36 Annexes I. Agenda 39 II. List of Participants 42 III. List of Acronyms 45 DESIGN: KULT CREATIVE, CAPE TOWN, SOUTH AFRICA EDITOR: YAZEED FAKIER, CENTRE FOR CONFLICT RESOLUTION, CAPE TOWN, SOUTH AFRICA PHOTOGRAPHS: ANDREW GOZBET, DAR ES SALAAM, TANZANIA SOUTHERN AFRICA: BUILDING AN EFFECTIVE SECURITY AND GOVERNANCE ARCHITECTURE FOR THE 21ST CENTURY 3 Vol 24-Final 12/18/07 1:04 PM Page 4 Vol 24-Final 12/18/07 1:04 PM Page 5 Acknowledgements The Centre for Conflict Resolution (CCR), Cape Town, South Africa, would like to thank the governments of Denmark, the Netherlands, Sweden, and Finland; the United Kingdom’s (UK) Department for International Development (DFID); and the Rockefeller Brothers Fund (RBF) for their generous support that made possible the holding of the policy seminar in Dar es Salaam, Tanzania, on 29 and 30 May 2007. About the Centre for Conflict Resolution (CCR) The Centre for Conflict Resolution is affiliated with the University of Cape Town (UCT) in South Africa. Established in 1968, the organisation has wide-ranging experience in conflict interventions in the Western Cape and southern Africa and is working increasingly on a pan-continental basis to strengthen the conflict management capacity of Africa’s regional organisations, as well as on policy research on South Africa’s role in Africa; the United Nations’ (UN) role in Africa; African Union (AU)/New Partnership for Africa’s Development (NEPAD) relations; and HIV/AIDS and Security. The Rapporteurs Ms Angela Ndinga-Muvumba is a Senior Researcher at the Centre for Conflict Resolution, Cape Town, South Africa. Ms Robyn Pharoah is a former researcher at the Institute for Security Studies (ISS) in Tshwane (Pretoria), and a consultant based in Cape Town, South Africa. SOUTHERN AFRICA: BUILDING AN EFFECTIVE SECURITY AND GOVERNANCE ARCHITECTURE FOR THE 21ST CENTURY 5 Vol 24-Final 12/18/07 1:04 PM Page 6 Executive Summary The Centre for Conflict Resolution (CCR), Cape Town, South Africa, a pan-African research and training institution affiliated with the University of Cape Town (UCT), held a policy advisory group seminar in Dar es Salaam, Tanzania, on 29 and 30 May 2007 on the theme “SADC: Building an Effective Security and Governance Architecture for the Twenty-First Century”. The main objective of the meeting was to convene a group of regional experts to assist the South African Development Community (SADC) Executive Secretary, Tomaz Augusto Salomão, in further developing his four-year vision for the organisation. The seminar also sought to enhance the efforts of the SADC Organ on Politics, Defence and Security Co-operation (OPDSC) troika – Namibia, Tanzania, and Angola – to advance security, governance and development initiatives in the sub-region. The meeting involved the government of Tanzania as the chair of the SADC Organ between 2006 and 2007. SADC and its member states have already established policy, institutional and programmatic measures to address many of its complex human and conventional security challenges. Given the importance of its facilitative role, maintaining and strengthening the Gaborone-based secretariat’s capacity will be critical to making progress in the implementation of SADC’s governance, security and development commitments. In 2001, SADC began restructuring its secretariat in order to enhance its institutional capacity and to streamline its bureaucracy. Since then, the secretariat has shifted its focus from project management to policy formulation and harmonisation through a centralised structure in four directorates: Trade, Industry, Finance and Investment (TIFI); Food, Agriculture and Natural Resources (FANR); Infrastructure and Services (IS); and Social and Human Development, and Special Programmes (SHD). The secretariat also houses specialist units in policy and strategic planning, legal affairs, finance and gender. These reforms were designed to facilitate southern Africa’s policy development, implementation and evaluation. Yet, despite these strategic steps, the SADC secretariat must still address human and financial resource constraints in order fully to be able to operationalise its activities. Finally, since co-operation will be central to harnessing and enhancing SADC’s resources, the secretariat must improve its co-ordination with development partners and civil society actors. The Dar es Salaam policy advisory seminar brought together SADC’s Executive Secretary, Tomaz Augusto Salomão, and senior staff from the SADC secretariat; Bernard Membe, the Foreign Minister of Tanzania; and Major-General Charles Namoloh, the Defence Minister of Namibia; with about 30 senior policymakers, scholars, and representatives of civil society from the SADC region. The policy advisory group addressed six key issues: 1. SADC’s Governance Challenges: Democratisation and Elections; 2. The Role of SADC in Addressing Regional Peace and Security Concerns; 3. Peacemaking and Peacebuilding in the SADC Region; 4. SADC, Gender and Peacebuilding; 5. Food Security in Southern Africa; and 6. Tackling HIV/AIDS Challenges in Southern Africa. 6 SOUTHERN AFRICA: BUILDING AN EFFECTIVE SECURITY AND GOVERNANCE ARCHITECTURE FOR THE 21ST CENTURY Vol 24-Final 12/18/07 1:04 PM Page 7 1. SADC’s Governance Challenges: Democratisation and Elections In the last two decades, southern African countries have made great strides in achieving more democratic modes of governance. However, the democratic systems in many SADC countries face several governance challenges such as weak institutional capacity; poor quality of elections that adhere to democratic principles only superficially; inadequate participation in democratic processes, particularly by civil society; weak service delivery; and corruption in the public sector. There is therefore a need to move beyond focusing simply on elections as an indicator of democracy, to nurturing political cultures that are capable of addressing governance as well as development issues – particularly poverty. Several existing SADC policy instruments provide a sound platform for improving governance, such as the Strategic Indicative Plan of the Organ (SIPO) on Politics, Defence, and Security Co-operation of 2004; the Regional Indicative Strategic Development Plan (RISDP) of 2003; the 2004 Principles and Guidelines for Governing Democratic Elections adopted by SADC; and the Parliamentary Forum Norms and Standards established by SADC parliamentarians in 2001. The capacity to operationalise such instruments, however, remains limited, and implementation by member states is poor. The SADC secretariat can contribute to improved governance in the sub-region by advancing the policy prescriptions set out in the RISDP and SIPO, while enabling institutions such as the SADC National Commissions to engage more effectively with member states around the value of democratic principles. 2. The Role of SADC in Addressing Regional Peace and Security Concerns The establishment of SADC’s Standby Brigade (SADCBRIG) and its civilian component for the AU’s African Standby Force (ASF) to be established by 2010 – in addition to the prospect of greater SADC involvement in Pan- African and international peace support operations – requires that southern African countries both meet the United Nations’ (UN) requirements for troop-contributing countries, and grapple with the multi-dimensional nature of modern peace operations. In addition to mechanisms to support co-ordinated action in regional policy on peace and security issues, SADC will need to put in place and strengthen its security instruments to ensure consistent and judicious decision-making on the part of its member states. SIPO and other key policy instruments, such as the 2001 Protocol on Politics, Defence and Security Co-operation and the 2003 SADC Mutual Defence Pact, also need to be further developed from policy into coherent programmes of implementation and monitoring. Finally, measures need to be taken to build the policy and management capacity of member states’ departments of defence, foreign affairs, public security and intelligence, as well as to ensure that the SADC Organ on Politics, Defence, and Security Co-operation has sufficient resources and capacity to drive the consolidation, implementation and monitoring of SADC’s instruments on peace and