Security and Democracy in Southern Africa This page intentionally left blank WITS UNIVERSITY PRESS • SECURITY AND DEMOCRACY IN SOUTHERN AFRICA • FOURTH POSITIVE PROOF • 27 AUGUST 2007 The Wits P&DM Governance Series The Wits P&DM Governance Series explores the challenges and politics of governance and service delivery in unequal and limited resource contexts such as South and Southern Africa, by publishing relevant scholarly re- search. By focusing on comparative public administration, institutional economics, development and good governance issues, the series aims to contribute to the development of a knowledge base to inform governance policies and practices in Southern Africa. Titles will address neither pure political science/sociology nor mechanical old-style public administra- tion, but rather the dynamic interfaces between public-policy analysis and decision-making, and the actual implementation and evaluation of these through a variety of institutions, organisations and social processes. Security and Democracy in Southern Africa edited by Gavin Cawthra, Andre du Pisani and Abillah Omari, is the second book in this series. The State of the State: Institutional Transformation, Capacity and Political Change in South Africa was published in 2006. This page intentionally left blank Security and Democracy in Southern Africa Edited by Gavin Cawthra, Andre du Pisani and Abillah Omari Edited by Gavin Cawthra, Andre du Pisani and Abillah Omari International Development Research Centre Ottawa • Cairo • Dakar • Montevideo • Nairobi • New Delhi • Singapore Wits University Press 1 Jan Smuts Avenue Johannesburg 2001 South Africa http://witspress.wits.ac.za ISBN 978-1-86814-453-2 © Gavin Cawthra, Andre du Pisani, Abillah Omari 2007 First printed 2007 A copublication of the International Development Research Centre PO Box 8500 TheOttawa, Wits P&DM Canada Governance K1G 3H9 Series is an initiative of Wits [email protected] Press / www.idrc.caand the Graduate School of Public and eISBN 978-1-55250-436-0 Development Management, University of the Witwatersrand. This publication has been made possible by a research grant from the International Development Research Centre (IDRC), Ottawa, Canada and a publication subsidy from the Frederich Ebert Stiftung, Maputo, Mozambique. The Wits P&DM Governance Series is an initiative of Wits University Press and the Graduate School of Public and Development Management, University of the Witwatersrand. This publication has been made possible by a research grant from the International Development Research Centre T(IDRC), Ottawa, Canada and a publication subsidy from the Frederich Ebert Stiftung, Maputo, Mozambique. All rights reserved. No part of this publication may be reproduced, stored in a retrieval system, or transmitted in any form or by any means, electronic, mechanical, photocopying, recording or otherwise, without the express permission, in writing, of both the author and the publishers. Typesetting and reproduction by Positive Proof, Johannesburg, South Africa Cover design by Hybridesign, Johannesburg, South Africa Cover photograph by Cedric Nunn, africapictures.net Printed and bound by Paarl Print, Paarl, South Africa A WITS UNIVERSITY PRESS • SECURITY AND DEMOCRACY IN SOUTHERN AFRICA • FOURTH POSITIVE PROOF • 27 AUGUST 2007 Contents Preface viii Acronyms and Abbreviations xi Chapter 1: Democratic Governance and Security: A Conceptual Exploration, by Andre du Pisani 1 Chapter 2: Comparative Perspectives on Regional Security Co-operation among Developing Countries, by Gavin Cawthra 23 Chapter 3: Southern African Security in Historical Perspective, by Abillah H. Omari and Paulino Macaringue 45 Chapter 4: Botswana, by Mpho G. Molomo, Zibani Maundeni, Bertha Osei-Hwedie, Ian Taylor, and Shelly Whitman 61 Chapter 5: Lesotho, by Khabele Matlosa 80 Chapter 6: Mauritius, by Gavin Cawthra 98 Chapter 7: Mozambique, by Anicia Lalá 108 Chapter 8: Namibia, by Bill Lindeke, Phanuel Kaapama, and Leslie Blaauw 123 Chapter 9: Seychelles, by Anthoni van Nieuwkerk and William M. Bell 142 Chapter 10: South Africa, by Maxi Schoeman 155 Chapter 11: Swaziland, by Joseph Bheki Mzizi 172 Chapter 12: Tanzania, by Mohammed Omar Maundi 192 Chapter 13: Zambia, by Bizeck Jube Phiri 206 Chapter 14: Zimbabwe, by Ken D. Manungo 221 Chapter 15: Conclusions, by Gavin Cawthra, Khabele Matlosa, and Anthoni van Nieuwkerk 233 Appendix 1: Research Briefing: Democratic Governance and Common Security in Southern Africa 250 Appendix 2: The Southern African Defence and Security Management Network 254 Bibliography 262 Index 282 FOURTH POSITIVE PROOF • 27 AUGUST 2007 Preface This book had its genesis in two observations: that democratisation has been the major political trend in Southern Africa since the end of apartheid and the termination of the Cold War (albeit an uneven democratisation that in some cases has even been reversed); and, that like many regions or sub- regions, Southern Africa has embarked on a major project of multinational co-operation, including in the security field. These observations led to two questions, which is what this book is all about. The first was essentially about the relationship (if any) between the dynamics of democratisation and democratic practices (or lack of them) and national security perceptions and practices in Southern African states. The second was whether this has had any effect on approaches to the regional security project. We leave it to the reader to judge whether we have answered these questions, but a summary of the findings is attempted in the conclusion. The research project from which this book resulted was almost as much about process as findings. It was a project of the Southern African Defence and Security Management (SADSEM) Network, a grouping of tertiary institutions in ten countries that works on common research and capacity- building programmes for the democratic management of defence and security in the region, both within and between states (see Appendix 2). The research was supported by a three-year grant from the International Development Research Centre (IDRC), Canada. After common terms of reference had been agreed, three conceptual chapters were written: on democracy and security; on security co-operation in a comparative context; and on the background of conflict, co-operation and democratisation in the Southern African Development Centre (SADC). Next, country studies were commissioned. We initially hoped to cover all the 14 member states of SADC, but as the project advanced this was whittled down to 11. In particular, Angola and the DRC, which at the time the research was initiated were still involved in civil wars, proved difficult to accommodate in the research framework.1 In many Southern African countries, research into defence and security matters is still very sensitive and the researchers often had to tread delicately in seeking to knock on and open doors, but in most cases governments were co-operative. viii Preface Partly because the SADSEM Network is committed to developing indigenous capacities for researching and managing security, and partly because we are tired of being written about rather than writing about ourselves, in virtually all cases nationals of the countries concerned were commissioned to carry out the research. In some countries, small teams of researchers collaborated as part of the effort to build local capacities. A small team of international advisors also participated in the process.2 The team of researchers met on three occasions to peer-review the outputs and to see whether a common picture was emerging. These meetings, in Maputo and Johannesburg, were supported by the Friedrich Ebert Stiftung (FES), and were also made possible by core support to the SADSEM Network by Danida. As a further quality control measure, the project was externally evaluated in mid-term and on completion.3 At the final meeting, officials from governments and non-governmental organisations attended and were able to make inputs, along with the international advisory team. Further workshops were held in Botswana, Mozambique and South Africa, where lively discussions on the findings took place between academics, government officials and civil society representatives. Some policy recommenda tions were derived as a result, which were written up as a policy paper and disseminated through the region (see Appendix 1). This book is a product in a very real way of the whole SADSEM Network. The Network partners constituted a management committee and oversaw it from its beginnings as an idea to its completion. In this process many colleagues, both in Southern Africa and abroad, participated. We thank them all, as well as the main donors – IDRC which sponsored the research, Danida which provides core funding to SADSEM, and the FES which sponsored two of the formative workshops as well as the production of the book. Nevertheless, the editors alone are responsible for the final product. Gavin Cawthra, Andre du Pisani and Abillah Omari ix Security and Democracy in Southern Africa ENDNOTES 1 Seychelles left SADC after the research had been commissioned but the chapter has nevertheless been retained; Madagascar joined later so was not covered; and a paper was not finalised for Malawi. 2 Eboe Hutchful (Ghana), Robin Luckham (UK, and an honorary African), and Bjoern Moeller (Denmark, who participated in terms of a Danida-funded twinning agreement between the SADSEM Network and the Danish Institute for International Studies). 3 The mid-term evaluation was carried out by