POLICY FRAMEWORK
1. The DoD's most valuable resource is its personnel. Human resource policies are directed at ensuring maximum efficiency, effectiveness, appropriateness, accountability and affordability, and providing job satisfaction, fairness and equity. The members of the DoD shall be non-partisan, subject to the control and oversight of the duly elected and appointed civil authority and obliged to perform all functions and conduct all operations within the parameters of the Constitution, domestc legislation and international humanitarian law and the law on armed conflict.
2. The DoD upholds a non-racial, non-sexist and non-discriminatory institutional culture. The DoD aims to be broadly representative of the human resources available in South Africa.
3. The rights and dignity of all members of the DoD shall be respected but the uniformed members who serve in the SANDF will voluntarily accept limitations of their rights which are reasonable and justifiable within the constraints of military discipline and training and are specified in terms of the Defence Act.
4. The HR practices and policies are based on the broad philosophy that the DoD is managed as a coherent focused entity in which the uniformed component is governed, regulated and administered in terms of the Constitution, the Defence Act, the Military Disciplinary Code, General Regulations and SANDF Orders. The civilian component is similarly managed in terms of the Public Service Act, the Public Service Staff Code and the Public Service Regulations.
5. The SANDF has a full-time and a part-time component. In this chapter, where the human resource practices and policies are similar for both components no special mention is made of the Part-Time Component (PTC) as the ,one force concept' is the overriding principle. Where special measures or issues pertain to each component, a clear indication is given under a separate heading.
COMPOSITION OF THE DoD
6. In terms of Section 224 and 236 of the Interim Constitution (1993), the SANDF at its establishment consisted of
6.1 all members of the South African Defence Force (SADF)
6.2 all members of any defence force forming part of a national territory (ie the former Transkei, Bophuthatswana, Venda and Ciskei defence forces)
6.3 members of a defence force or armed force of a political organisation under whose authority and control it stands, initially only uMkhonto we Sizwe (MK) and later also the Azanian Peoples' Liberation Army (APLA), who entered into an agreement for temporary or permanent appointment, in accordance with normal employment policies and terms and conditions of service.
Composition and size of the SANDF on 1 April 1998
7. Section 236(2) of the 1993 Constitution further stated that any person who was employed by an institution (ie the SADF and the TBVC defence forces) shall continue in such employment.
8. As indicated in Figure 10.1 (Figure 10.1: Schematic Representation of Integrated SANDF and DoD as on 1 April 1998), selection and placement in the case of members of the non-statutory forces (MK and APLA), has brought them into the training and deployment phase as an integral part of the single Regular Force.
9. Adaptations were made to insignia of the old SADF, principally the introduction of a nine point star to designate rank in the place of a castle. Members of statutory forces are permitted to wear their old ribbons and medals and a new series of ribbons and medals have been instituted for previous MK and APLA service respectively.
10. Population group and gender. Figure 10.2 (Figure 10.2: The SANDF Composition (including civilians) per race and gender) indicates population group and gender composition as on 15 February 1997 compared to the original SADF on 26 April 1994.
11. Present composition per rank, population group and gender. In Figure 10.3 (Figure 10.3: SANDF strength per rank, race and gender: 1 April 1998) the present staffing of the SANDF is reflected as on 1 May 1997.
12. Former force distribution. The formal procedure whereby former non-statutory force members enter into an agreement for service in the SANDF has now virtually drawn to a close. A few individuals who are studying overseas may however still exercise their right to apply to enter into service at a later date. The figures shown in Figure 10.4 (Figure 10.4: SANDF Composition by Former Force of origin, including civilians, as on 1 April 1998) refer to members of the DoD per force of origin (civilians included), on 1 May 1997. Since the creation of the SANDF normal recruitment has continued outside the integration process, although in a limited way and mainly in those musterings which could not be staffed adequately through integration. Uniformed members indicated as SANDF therefore do not have a former force connection.
13. Placement in posts. The progress in eliminating the backlog of members involved in bridging and other training specifically related to integration ('integration posts') is reflected in Figure 10.5 (Figure 10.5: Placement of Ex Non-Statutory Forces as on 1 April 1998). Placement in an Arm of Service is followed by bridging training and supplementary training. A career path is mapped out for each member. Members have two chances to succeed in their designated bridging training courses: the Minister of Defence approves the termination of service of members who do not succeed.
14. An Integration Committee (IC), on which all Arms of Service, representatives of all former forces and functional staff divisions are represented, has met regularly since the formation of the SANDF, to oversee the integration process on a day to day basis. The proceedings of the IC have been characterised by a practical approach to solving the myriad problems associated with integration.
15. A Parliamentary Integration Oversight Committee (PIOC) of the Joint Parliamentary Standing Committee for Defence has been regularly briefed by the DoD on the integration process and has also visited units of the SANDF to monitor progress. Special taskings and instructions from the PIOC have received immediate attention in the SANDF. Both the IC and the PIOC will continue to monitor the integration process for the foreseeable future.
16. The SANDF has to become broadly representative of the population that it serves, as soon as possible. The SANDF has introduced 'fast tracking' for those individual members who display potential to qualify sooner than would normally be the case. This will be achieved by the priority placement of identified members on qualifying courses in a succession of posts in order to gain the necessary experience.
17. A team of British military officers has been assigned to assess (and then to validate) syllabi and standards, to monitor training and selection and to advise and adjudicate in the case of disputes between the integrating forces. The British Military Advisory and Training Team (BMATT) is evaluating SANDF training and selection standards in terms of their experience of international military standards. As members of placement and training boards, they also assess and validate the criteria against which individuals are placed to undergo bridging training and evaluate the competencies and qualifications of individuals. The commander of BMATT periodically reports to the Minister and the Deputy Minister.
Demobilisation
18. In terms of Section 224(2)(c) read with 236 8 (d) of the 1993 Constitution all members of MK and APLA whose names appear on a Certified Personnel Register or Namelist respectively, were eligible to enter into an agreement to serve in the SANDF if they met certain criteria. To cater for those members who were unable or unwilling to serve in the SANDF due to advanced age, ill health or other reasons as well as those cadres who had found alternative employment, a Demobilisation Act was approved by Parliament and signed into law on 1 December 1996. This retrospectively authorised previously paid demobilisation benefits. It stipulated that the demobilisation should be concluded within one year. Figure 10.6.a. (Figure 10.6.a: Categories and Commensurate Gratuities in respect of Demobilisation) denotes gratuities payable.
19. The statistics presented in Figure 10.6.b (Figure 10.6.b: Amounts involved and the number of persons in the respective categories who have benefited from demobilisation) indicate the amounts involved and the number of people in the respective categories who had benefited from this dispensation by 1 May 1997.
STAFFING THE SANDF
Service Systems
20. When determining how available human resources can be utilised in the military, the force design, structure and technological level of the force needs to be considered.
21. Drawing from the concepts in Chapters 2 and 8 of the Defence Review, the following are human resource determinants:
21.1 Notwithstanding the imperative for high technology in certain fields as elaborated in Chapter 3 of this review, there is a requirement for a low technology, human resource-intensive, mobile army of regulars, capable of safeguarding extensive terrain on a continuous basis.
21.2 The requirement for capable junior leaders who can command small groups of military personnel effectively is clear, due to the characteristics of low intensity operations in outlying deployments, ie border patrols.
21.3 The present low military threat in the region, coupled with the reconstruction and development priority, restricts military expenditure.
21.4 The possibility that the security situation could change for the worse in a relatively short time cannot be discounted. Therefore although the Regular Force should be relatively small it should be backed up by a sufficiently large Part-Time Concept to augment the military capability at relatively short notice.
21.5 The technologically advanced nature of modern weaponry requires highly skilled groupings in all Arms of Service. This expertise is not available and has to be developed in a selected group of recruits. The development and retention of this personnel component is extremely costly.
22. DoD human resource procurement policy is not based on conscription, but on voluntary military service. Policy in this regard is based on a mixed system of career options.
22.1 A small number of the highest ranking leader group in both the officer corps and the other ranks, with long experience and extensive training, serve until a retirement age.
22.2 Lower ranks have limited periods of service coupled to their rank level and possibly also their age.
22.3 Large numbers at the lowest rank levels serve fÜor a short, fixed, limited period.
22.4 Recruiting for the long term and the medium term is principally (but not exclusively) from the short term component. Recruitment directly into the medium term is essential to attract tertiary qualified personnel for the officer corps.
22.5 This is the staffing strategy preferred in most modern defence forces, for example, in Australia, the UK, the USA and Canada. Countries in Europe which are switching from a conscript system at present, eg France and Belgium, are also contemplating a similar staffing strategy.
23. Parliament should consider imposing a liability to serve in a state of national defence. Notwithstanding the imperative to train sufficient personnel, former specialist defence personnel will be required to serve, by recommendation of Parliament, for a limited period of time, also during a time of peace, in exceptonal circumstances, where the capacity of the SANDF is insufficient.
Staffing Flow
24. Figure 10.7 (Figure 10.7: Staffing flow within the SANDF) below indicates how the uniformed component of the force, both full-time and part-time, is structured in one force and procurement, utilisation and a reserve form a coherent whole. The concepts are explained in full below.
25. One Force. Although members of the Part-Time Component serve on the basis of a daily pay rate, compared to the Full-Time Force's monthly rate, there are no other differences in their standard of training and equipment. The two components are trained and equipped to operate as one force. Relative strengths of each component are reflected in Figure 10.8.
26. Only persons who are 17 years old and who will be turning 18 in their first year of service are allowed to enter service in uniform in the SANDF. They cannot be taken into active combat or the front-line until they have turned 18.
27. A Grade 10 or commensurate technical qualification is considered for service in the military but it is more cost effective to recruit for the Regular Force from the Recruits Training Pool where Grade 12 is the minimum qualification. Minimum medical standards with which applicants have to comply are prescribed for each mustering.
Full-Time Force
28. The full-time staff of the DoD consists of 77,76 per cent Regular uniformed service personnel and 21,85 per cent civilians. (The balance of 0,39% is the remnant of the uniformed Auxiliary Service which has been allowed to atrophy naturally.) Both these branches serve in 128 different Personnel Administrative Standards (PAS) although 94,5 per cent of the uniformed branch serve as Military Practitioners. Each PAS has its prescribed entry and promotion standards coupled to pay and salary gradings.
29. A South African may enter into the Full-time Force of the SANDF in any one of the service systems through the following channels, if selected:
29.1 A recruits training pool (known as the Voluntary Military Service) for untrained recruits without any previous military experience.
29.2 Orientation training for professionally qualified individuals in specific occupational categories.
30. The present Flexible Service System for the Full-Time uniform component consists of three distinct parts:
30.1 Short Term Service. The maximum term of service in this system is six years consisting of three terms of two years each. In this way force levels can be increased or decreased swiftly to predetermned operational requirements. The system is suitable for ranks and musterings in the occupational class Military Practitioner. The post structure primarily makes provision for combat services and training is focused on combat training skills. Investment per member is limited, except for junior leaders who are earmarked to serve more than one term. Members who are earmarked for bridging courses to attain certain enrolment standards must undergo it in this system. This system serves as a selection medium and feeder for the Medium Term Service. It has a high turnover to maintain youthfulness and offers only temporary career opportunities. It is suitable for school leavers: the maximum age for enrolment is 27 years.
30.2 The large number of former non-statutory force members who were initially placed in this system have up to now not had the benefit of a structured career path. The migration of these members from the Short Term Service to the Medium Term and the Long Term Service is enjoying continued attention. Figure 10.9 reflects the number of non-statutory force members who were originally appointed to the Short Term Service and are now serving in the Medium and Long Term Service as at 01 May 97.
30.3 Medium Term Service. The aim of this system is to procure Human Resources for the middle management echelon to facilitate upward mobility. With the exception of members in specialist classifications the first term is between three and ten years, although consecutive terms may be entered into on specific conditions, subject to a selection process. This system also prepares a member for a permanent appointment in the long term service. The training offered is advanced.
30.4 Long Term Service. The top echelon of the SANDF is eventually staffed from this system.
Part-time Component
31. The Part-time Component consists of conventionals and territorials. Entry into this component can take place through the channels as indicated in Figure 10.7 by means of a negotiation process between the SANDF and the individual, to determine the availability for service for a specified period. Four categories of service are available as indicated in Figure 10.7.
32. The Part-Time Component is staffed as follows:
32.1 Members of the Reserves who have completed their previous military commitments, but who are willing to volunteer for further service.
32.2 Members who leave the Full-Time Component at the end of their contract and who wish to be enlisted in the Part-Time Component through the negotiation process.
32.3 Direct entry from outside the military environment. Modular training for new recruits takes place on a decentralised basis.
33. Upon leaving the Part-Time Component the individual's particulars will be transferred to the Reserves as indicated in Figure 10.7.
Reserves
34. The Reserves should be divided into three groups (see figure 10.7) - regular, conscript and voluntary.
34.1 Regular Reserves. If a member leaves the Full-Time Component and, for whatever reason, does not enlist in the Part-Time Component, such a member's personal particulars are placed on the Regular Reserve. This is done for record purposes until the individual reaches the age of 65 years.
34.2 Voluntary Reserve. The Voluntary Reserve should consist of members who exit from the Recruits' Training Pool or the Part-time Component of the SANDF as is shown on the accompanying diagram. Their personal particulars are placed in the envisaged Voluntary Reserve for record purposes.
35. Reserves are only viable if accurate records are kept. It is therefore essential that the organisation of data in these suggested manageable components be approved. It is recommended that the SANDF maintains records of all personnel who have previously served in whatever capacity with a view to facilitating their service in the Part-Time Component and ultimately in a voluntary reserve. If sufficient consensus can be reached in this regard, an appropriate amendment will be included in the new draft of the Defence Act which will be brought before Parliament for consideration in due course.
Civilians in the DoD
36. Civilians, who comprise nearly 23 pe cent of the personnel employed in the DoD, serve in terms of the Public Service Act. The breakdown of civilian employees is indicated in Figure 10.9.
| Post Class | Africans | Whites | Coloureds | Asians | Total | Total | |||||
|---|---|---|---|---|---|---|---|---|---|---|---|
| M | F | M | F | M | F | M | F | M | F | ||
| Dir Gen | 0 | 0 | 1 | 0 | 0 | 0 | 0 | 0 | 1 | 0 | 1 |
| Dep Dir Gen | 2 | 0 | 0 | 0 | 0 | 0 | 0 | 0 | 2 | 0 | 2 |
| Chief JDir | 0 | 0 | 5 | 2 | 0 | 0 | 1 | 0 | 6 | 2 | 8 |
| Dir | 3 | 1 | 18 | 0 | 0 | 0 | 1 | 0 | 22 | 1 | 23 |
| Dep Dir | 7 | 4 | 58 | 39 | 2 | 2 | 7 | 5 | 74 | 50 | 124 |
| Asst Dir | 4 | 4 | 97 | 108 | 8 | 1 | 2 | 2 | 111 | 115 | 226 |
| Lower Gradings* | 7261 | 3115 | 857 | 3984 | 2904 | 1217 | 34 | 41 | 11056 | 8358 | 19414 |
| Total | 7277 | 3124 | 1036 | 4133 | 2914 | 1220 | 45 | 48 | 11272 | 8526 | 19798 |
| * Civilians in the DoD lower than Assistant Director serve in 439 differentiated post classes. | |||||||||||
37. The higher level civilian component has increased substantially since the creation of the Defence Secretariat. The potential for a greater number of affirmative action appointments increases as the civilian component expands, as it is expected to do. The traditional military service staffing policy of ,bottom-up' is not necessarily applicable, as civilian expertise can be acquired for specific appointments for specialist services eg auditors, medical doctors, language practitioners.
38. The career opportunities for civilians in the DoD have previously been limited. There are however many posts at base depots and headquarters where civilian appointees could prove to be less costly and well suited to fulfil the function. The development of civilian career possibilities within the DoD will continue to receive attention without in any way affecting operational readiness. A Director Civilian Career Management has recently been appointed for this purpose.
FUTURE SIZE, COMPOSITION AND MANAGEMENT OF THE DoD
Size and Composition
39. The appropriate number of serving members and employees of the DoD can be calculated in terms of the following:
39.1 The force design and number of troops required to perform the designated functions (see Chapter 8).
39.2 The organisation of the Department to achieve maximum cost efficiency yet ensuring effectiveness. One aspect of this is the re-engineering of the SANDF combat: support ratio to optimise the number of combat and command elements. This is being investigated via a range of management interventions.
39.3 In 1996/97 the defence expenditure was as indicated in Figure 10.11
39.4 A further determinant is what proportion of the total budget is spent on personnel. One suggested target is that personnel, operating costs and capital renewal could each receive approximately 40 per cent, 30 per cent and 30 per cent of the total appropriation respectively. (See Figure 10.12.)
39.5 In terms of the present budget allocation and the average personnel cost per individual a figure of approximately 70 000 is considered a viable Full-Time personnel component for the DoD. A reduced support to combat ratio will have to be achieved through transformation to sustain Force Design 2 as detailed in Chapter 8 of this review. This would accord with the type of force design envisaged and would allow for an appropriate distribution between personnel, operating and capital costs. This would also be an appropriate and sustainable benchmark, allowing for sufficient capital renewal.
Down-Sizing
40. As anticipated during the negotiations that led to the formation of the SANDF, the integrated Regular Force exceeds the numbers required for the tasks which the SANDF has to perform in a low threat scenario and is unaffordable, especially in the light of the reconstruction and development needs of the country. It is therefore necessary that the force is down-sized.
41. When trying to determine a formula for down-sizing, it is essential to ensure that the former statutory and non-statutory forces achieve an equitable representation. A proposed formula for down-sizing would result in the composition reflected in Figure 10.12 (Figure 10.12: Down-sizing using Representivity by Former Force as the proposed formula in the SANDF (not necessarily per Arm of Service)). Due regard shall, however, be given to the maintenance of technological expertise.
42. Personnel strengths have been increasing through successive intakes of non-statutory personnel, the negotiated intake of a planned 2 000 persons from the Kwa-Zulu Self-Protection Force, and the selection of a young leader group from the Voluntary Military Service (recruits training pool). However normal attrition through resignation, retirement and death has been taking place all the time.
43. Voluntary Severance. The down-sizing of the DoD has been facilitated by the Voluntary Severance Initiative which has been available throughout the Public Service and for which uniformed members have also been allowed to apply. This mechanism is much cheaper than forced retrenchment. The calculation of the severance package does not make it a viable option for members and employees with limited years of pensionable service. Figure 10.13 (Figure 10.13: Voluntary severance applications approved between 31 August 1996 and 1 April 1998) reflects the numbers of approved applications for severance (to 1 May 1997).
44. Contract expiration. As explained in the staffing concept for the Regulars, the cheapest method of rapidly scaling down the Full-Time Component is not to re-enlist short term members when their contracts expire. Recruits should enter the force in the knowledge that only a small percentage of the intake may be offered the opportunity to re-enlist if they qualify. This would facilitate the scaling up and down of the SANDF and would be a suitable way of strengthening the Part-Time Compoent and the Reserves, as well as justifying the existence of a comparatively large training capacity.
45. At present, the Minister must approve all non-renewals of short term contracts. A board, on which a BMATT representative also serves, makes recommendations to the Minister according to a set of criteria. Most of the recommendations for not re-enlisting members concern those members who have adverse disciplinary records.
46. Employer-initiated retrenchment. The Interim Constitution (1993) provided for three phases in the process of creating the SANDF, namely integration, consolidation and rationalisation. The staggered integration process has resulted in an overlap with the consolidation phase. During this latter phase all members are being given the opportunity to prepare themselves for posts in the new structure. The identification of members for retrenchment will be done in a fair and equitable manner which will satisfy the goals of representativeness, affirmative action and equal opportunities and ensure that the SANDF is seen to be legitimate and representative of the total South African population. Efficiency considerations, for example scientifically based assessments of potential; rank/age appropriateness and non-transferability (area-boundness) will also be taken into account.
47. It is envisaged that the bulk of retrenchments will take place before the year 2000. Right-sizing processes are usually preceded by uncertainty and misconception among personnel. Accurate and effective communication will therefore be actively pursued throughout the DoD.
48. Mechanisms already instituted. A Personnel Rationalisation Work Group (PRWG) has been established in order to oversee the rationalization process from within the DoD. The composition of the PRWG includes all constituent forces and a representative of the Secretary for Defence and BMATT, and is aimed at ensuring a transparent process within the framework of fair labour practices. This work group has recently instituted a sub-work group to make proposals regarding regionalised psychological and social support to members and their families who are to be affected by the rationalisation process. A special Consultation Forum has been established to liaise with employee organisations about civilian members who could be affected by the rationalisation process.
49. Various procedures relating to down-sizing are already in place:
49.1 The broad process has been designed by the DoD, and was accepted by Cabinet in 1995.
49.2 An identificationprocedure for retrenchment has been designed and employee organisations consulted.
49.3 An intra departmental representation/appeal procedure has been designed and employee organisations consulted.
49.4 The administrative procedure for a Special Tribunal sitting as a Labour Appeal Court in terms of Section 237 of the Interim Constitution(1993) has been established. The tribunal will determine any claims stemming from the retrenchment of a member or employee.
50. Principles governing retrenchment. The approach to down-sizing will be guided by the following principles:
50.1. The selection criteria, used for deciding who will be retrenched, should be as objective as possible.
50.2 No member shall be considered for retrenchment while disciplinary action against the member concerned is contemplated, or is in progress, or he/she is detained pending disciplinary action, suspended from service, or is serving a sentence of detention for a first offence.
50.3 Consistency in the application of a general SANDF policy shall be maintained in the DoD.
50.4 Members who are still participating in bridging training, while the retrenchment process takes place, shall not be considered for separation unless the member is not capable of performing at the required level to meet the course requirements.
50.5 Irrespective of his/her period of service in the SANDF, all members and employees shall be entitled to at least one month's notice prior to their last day of service in the SANDF.
51. Increase of Pension Benefits. Ex-non-statutory force members who entered into an agreement for service in the SANDF and who are either unsuccessful in meeting the required standard of training or who wish to terminate their service for whatever reason, or who cannot be retained in service any longer, have had very little time to accrue a sizeable pension pay-out. Amounts similar to the demobilisation benefits of their former comrades could be utilized to buy back pension for serving members.
52. It is recommended that Parliament give serious attention to approving such an enhancement of members' termination of service benefit. The amount would have to be especially appropriated outside the Defence budget.
REPRESENTIVITY
53. Former Force. The SANDF has endeavoured to eliminate any difference in the standard of training and performance among its members as speedily as possible. Cohesion is one of the principle success factors in any armed force. It is therefore suggested that as soon as the right sizing of the force has been achieved representativeness per former force should not be further monitored.
54. Population Group. The population group composition of the SANDF was artificially manipulated in the past as a result of the staffing policy of the apartheid era. It is thus a consequence of history that differentiation on the grounds of race has skewed representativeness. The White Paper has made the specific pronouncement that the SANDF should be broadly representative of the South African population.
55. Figure 10.14 (Figure 10.14: Present population mix of the SANDF as on 1 May 1997) indicates the present population group mix within the DoD. In Figure 10.15 (Figure 10.15: Future population mix of the SANDF) the possible population mix which could exist if rationalization were to follow expected guidelines.
56. In Figure 10.16 (Figure 10.16: Present population mix in the DoD ito Officers, NCOs and Privates as on 1 April 1998) the present population group mix in the Regulars of the SANDF is reflected. From these figures it is clear that although the integration process has had some effect in changing the imbalances of the past, the challenge for the future lies in implementing policies which will achieve representativeness in all ranks which broadly reflects the demographics of the country.
57. Gender. Figure 10.17(Figure 10.17: DoD and SANDF by gender as on 1 April 1998) indicates the percentages of men and women in the DoD and the SANDF respectively.
58. Non-discrimination in respect of Gender. In the former SADF women were not eligible to serve in all musterings or corps. This restriction has been removed and women can now serve in all uniformed posts throughout the SANDF. The elimination of backlogs in the training of women especially for command positions in combat related musterings is receiving attention.
59. Problems associated with retaining the services of women to bring them in line for senior appointments include aspects such as day-care for young children and family disruption when both parents are serving members and have to attend long courses or be deployed away from home. The requirement to supply pre-study material long before the start of a course to give parents with full home care responsibilities enough time to prepare adequately has been identified. These problems are receiving serious attention within the DoD.
60. Any unfair discriminatory practices or attitudes, past and present, involving women employed in the DoD shall be identified and dealt with as a high priority.
61. More training facilities for women, especially at the lowest level, should be made available to increase the number of recruits in order to compensate for the inevitable loss rate so that the number of senior women can be increased.
AFFIRMATIVE ACTION, EQUAL OPPORTUNITY AND MANAGEMENT OF DIVERSITY
62. Affirmative action and equal opportunity are fundamental principles of public sector transformation as reflected in the White Paper on the Transformation of the Public Service. These principles are particularly applicable in the DoD as they are essential for the operational readiness of the SANDF.
63. Members of the SANDF are challenged to adapt their lifestyle, attitudes and behaviour to a specific military culture. The SANDF will have to gradually evolve an acceptable military culture in which all members, irrespective of their own culture, can coexist, and in which operational readiness can be assured.
64. A work group on civic education has produced six educational modules for implementation at all levels within the DoD. One of one of these modules concerns the management of cultural diversity (see paragraph 93).
65. The newly-established Chief Directorate Equal Opportunity and Affirmative Action in the DoD will be responsible for managing Equal Opportunity and Affirmative Action training, monitoring and implementation and dealing speedily and effectively with cases of discrimination. Active and ongoing awareness training for all employees but especially for officers commanding will be systematically introduced throughout the DoD.
66. The Department has also established a work group on Equal Opportunity and Affirmative Action, which is in the process of formulating policy in line with the provisions in the White Paper on Defence. In addition, training modules have been introduced on all courses to make all DoD personnel conscious of what constitutes discriminatory or offensive behaviour towards other members of the Department. The DoD will not tolerate discrimination, victimisation or harassment, irrespective of the rank or position of the perpetrator(s). The Equal Opportunity Policy shall also contain specific prescripts concerning sexual harassment which will have to be strictly complied with by all employees.
Language
67. The DoD Work Group on language is considering language policy for the department. Such a policy will have to strike a delicate balance between the operational requirements and the constitutional provisions on language.
68. The need for a 'thread' or 'link' language in the command and control environment appears to be a sine qua non for operational efficiency. The following will have to feature prominently in a projected language plan:
68.1 The promotion of multilingualism in the Department, in respect of the national and regional languages.
68.2 The training and utilization of language facilitators (interpreters, translators), particularly in the training environment.
68.3 The provision of an adequate language service in the Department.
68.4 Continuous monitoring, review and revision of the policy in the light of national policy and changing circumstances.
68.5 Continuous liaison with other state departments, NGOs and the Pan South African Language Board.
69. Departmental language policy will be practical and future oriented with thorough language planning and monitoring components. Planning to ensure maximum efficiency in communication irrespective of the language or combination of languages being used will be an ongoing task in the DoD. Members of the department will be sensitized to equity and to the fact that language diversity is to be considered an advantage rather than a disadvantage. Mechanisms will be introduced to ensure effective and clear communication.
Religion
70. The Defence White Paper states: 'In accordance with the Constitution, the SANDF shall respect the right of its members to freedom of conscience, religion, thought, belief and opinion; it shall promote freedom of religion; and it shall cater for the different religious views of its members on an interdenominational basis. Religious observances shall be conducted on an equitable basis, and attendance at such observances shall be free and voluntary. The Chaplains' Service shall regulate religious policy and practice in accordance with departmental policy and in consultation with the Religious Advisory Board which represent different faiths'.
71. The Religious Advisory Boards represent various religious bodies. They advise on religious policy and monitor the ministry to their members. Advisory Boards have been formed for the Christian, Islamic and Hindu faiths, and the African Independent/indigenous churches. The existing Jewish Board of Deputies represents all Jewish interests. These Boards meet regularly. In addition each religious body (ie denomination) is entitled to address its concerns on religious matters independently.
72. Since the large majority of defence personnel are religious and the individual has a constitutional right to the exercise of religion, religious observance is accommodated in the highly regulated life of military personnel and forms part of ceremonials. Such religious observance is sensitively planned and conducted to cater for religious diversity.
73. Since all religious observance is free and voluntary, the opportunity of non participation in religious observance is allowed and addressed. The freedom of religion principle allows for a number of alternative approaches and these were narrowed down to the following two:
73.1 To have a parade with religious observance for a homogeneous religious group.
73.2 Where religious diversity is prevalent, a minute of silence may be given for personal prayer or meditation.
74. The equality clause of the 1996 Constitution (Section 9(3), (4)), stipulates that the state may not discriminate against anyone, inter alia on the basis of sexual orientation. This is reiterated in the White Paper on Defence. The Work Group on Equal Opportunity and Affirmative Action is formulating policy proposals to enforce these provisions. Such policy will include the following provisions:
74.1 Appointment and promotion will depend on ability, competence and potential of individuals and will not take unrelated sexual orientation factors into account.
74.2 Harassment on the grounds of sexual orientation will not be tolerated. Mechanisms will be established to deal with any incidents.
74.3 Education and training programmes will ensure that all members of the SANDF and all employees of the DoD are sensitised to issues of discrimination and sexual orientation.
74.5 The DoD will take cognisance of any possible changes made in Public Service benefits pertaining to same-sex partnerships, e.g. in respect of housing loans and pension benefits. At present, specific benefits such as free medical treatment for a same-sex partner or transfer arrangements taking same-sex couples into consideration are not formal policy.
EDUCATION AND TRAINING
75. The White Paper on Defence has established the broad parameters within which education and training will take place in the SANDF. Within this normative and qualitative framework, the following guidelines apply:
75.1 Training shall be competency based as far as practicable.
75.2 Training shall be based on sound educational technology principles.
75.3 Training will be used to improve the individuals performance and not as a disciplinary tool.
75.4 Training in the SANDF will recognise the dignity of the individual and will be conducted in an environment conducive to learning.
75.5 Training in the SANDF shall be based on clearly identified training needs, linked to work or international standards. The SANDF's training course content is being scientifically developed through course design.
75.6 All training will be reviewed periodically to make it more cost effective while maintaining or improving standards. Options include combining of training facilities, providing training on an agency basis or providing common training at joint schools.
76. Since April 1994 the SANDF has experienced an abnormal training load due to the integration of the seven constituent forces, especially with regard to bridging training. As at October 1996, over 16 800 members had completed or were engaged in bridging training although this overload was expected to decline from 1997 onwards as integration training was completed. Training is, however, the main focus of SANDF activities when operational deployments are low.
77. Training is directed towards equipping its members with the necessary skills, knowledge and attitudes for service in the SANDF. Effective force preparation is the firstand foremost consideration when determining the content, scope and cost of training. However provision will be made to obtain accreditation for training within the framework of the South African Qualification Authority (SAQA), including training obtained outside of South Africa. As the SANDF is committed to providing the individual member with the greatest mobility in the work environment, it has established a Defence Training Board which will be affiliated to SAQA, thereby gaining access to the National Qualification Framework (NQF).
78. Each member of the SANDF has an equal opportunity of attending applicable scheduled courses. Training is hierarchically structured to allow for career development. Training shall therefore qualify an individual to rise to the highest level within his/her ability. In order to make training accessible to those previously educationally disadvantaged, programmes are introduced to enable those who display potential to qualify on the applicable courses.
79. The SANDF currently presents over 2 000 formal courses per year, ranging from military development courses to war fighting skills training, some lasting a week while others last a year or more. In addition the SANDF also trains a large proportion of its personnel in industry-related skills. While the starting level for most courses is at Grade 12, some senior courses are presented on the level of a post-graduate degree.
80. The question of standards within the SANDF has various meanings amongst the different stakeholders. Training standards in the SANDF will be measured in three dimensions.
80.1 The first dimension is that derived from the competency (based on the operational requirement) to do work, ie that which is required of a person to perform a given operational mission.
80.2 The second dimension refers to internationally verifiable standards, which is particularly important to ensure inter-operability, for example in peace support operations.
80.3 The final dimension refers to statutory standards, ie those that are laid down by statutory bodies, such as medical councils, or international bodies, such as the International Civil Aviation Organisation (ICAO). Those members of the SANDF who are to be engaged in these types of work will be trained to the standards set by those statutory or international bodies.
81. The SANDF is committed to improving the standard of training. To achieve this it will institute specific programmes:
81.1 A possible drop in training competencies resulting from the currently unfavourable instructor/student ratio will be overcome by utilising those members who have completed their bridging training as instructors.
81.2 The SANDF will develop programmes aimed at retaining instructors to stem currently unacceptably high losses.
81.3 The SANDF will endeavour to gain additional recognition for the skills and workload of instructors. To this end the Chief of the SANDF has instructed a special work group to investigate the role and functioning of the instructor cadre.
81.4 The SANDF is to review its instructor training programme to bring it up to date with the latest developments in educational technology while ensuring that any instructor qualification accords with the standards set by the National Training Board.
81.5 The SANDF will also improve the standard of training by ensuring that training courses are scientifically developed. In this regard the SANDF will upgrade its educational technology skills through the SANDF College for Educational Technology.
82. Control of training in the SANDF is vested in the Chief of SANDF (C SANDF) in terms of the Constitution (1996) and the Defence Act. C SANDF determines overall defence force training policy and may in turn delegate the execution of specific training to a combat or support arm, or provide for joint training where such training concerns more than one arm of service.
83. The SANDF is committed to providing for the upward mobility of every individual and recognises the need to provide basic adult education (ABET). A SANDF order has been issued to institute adult education programmes in conjunction with the regional Departments of Education. Each Command area is to establish, with the local education authorities, an educational centre for the provision of ABET.
84. The SANDF also recognises that many members, by virtue of their employment, are already functioning at the prescribed academic level required for promotion yet do not hold the appropriate certificate. The SANDF will therefore liaise with SAQA in order to grant those members who have already passed specific military courses, academic recognition to level two or possibly level three.
85. The SANDF needs officers with tertiary qualifications and will therefore make it possible for selected officers to study for a tertiary qualification during their term of service.
86. One of the tertiary education schemes is the Uniform Bursary Scheme, or the so-called Mildent/Engineering scheme, whereby selected candidates study full time, with retention of their salaries, for the medical or engineering profession. A variation to this scheme is that used to qualify members of the SANDF for entry into a mustering which requires a diploma before that member may be used within his/her chosen field of employment. In the latter case the training takes place at a technicon.
87. Tertiary qualification is also available through the Military Academy, which provides selected candidate officers with both further military officer development and academic training to the bachelor level soon after the commencement of the candidate's military career. It is also geared to those young officers who are expected to fill senior ranks. Study at the Military Academy is full time and allows students to study in the human, natural and management sciences, conferring on successful students the Bachelor of Military Science degree.
88. A further method of providing for a tertiary qualification is through the part time study bursary scheme. Members of the DoD may apply for a bursary to study part time for both undergraduate as well as post graduate degrees or diplomas.
89. Under the civilian bursary scheme successful civilians are granted a bursary to study for the medical profession. This scheme is similar to the Public Service bursary scheme, and on successful completion, the graduate must render commensurate service to the DoD.
90. To remain abreast of military developments and to improve its operational standards, the SANDF will make use of international training. No foreign country will provide the total requirement for training in a particular field. The SANDF will rather make use of such training opportunities to gain expertise in a particular field in order to introduce the newly acquired knowledge and skills into the SANDF.
91. To improve co-operation between the Southern African countries, and to facilitate combined peace support operations in Africa, the SANDF will make available to foreign countries places on SANDF courses, with priority given to Southern African countries. It will also consider seconding trainers to countries which so request.
92. To ensure that the SANDF acts at all times in a military professional manner, the SANDF is committed, in terms of the White Paper on Defence, to the introduction of civic education on all its development courses and appropriate operational training courses. Training in the Law on Armed Conflict (International Humanitarian Law) has been implemented since January 1997 with the assistance of the International Committee of the Red Cross and other modules are being introduced during 1998.
93. The six modules of the Civic Education programme are: key features of the democratic political process; the Constitution and the Bill of Rights; civil - military relations; the law of armed conflict; multi - cultural diversity; and military professionalism.
94. Since the inception of the SANDF particular attention has been given to the psychological impact of the process of integration on all personnel. A Psychological Integration Programme (PIP) has been run for about three years but has now been replaced with a more structured Leadership, Command and Management Principles, Processes, Procedures and Philosophies (LCAMPS) course.
LABOUR AND SERVICE RELATIONS
95. The White Paper endorses a prohibition on membership of trade unions and participation in strikes by SANDF members, although it states that members of the SANDF are entitled to effective and just grievance procedures, channels of communication, and mechanisms of ensuring that their aspirations and complaints are heard and addressed. Labour relations which affect civilian members of the DoD are governed by the Public Service Act and related legislation and regulations.
96. The bases for amendments to pay and benefits are established and controlled by the Department of Public Service and Administration and are intended to maintain parity between SANDF personnel and public sector personnel. No mechanism however exists to provide the SANDF with direct influence in the determination of pay and benefits. The unique circumstances of the members of the SANDF are not always recognised and catered for.
97. Improvement of service relations for the SANDF could involve the establishment of an appropriate independent authority to assist in the determination of pay, benefits and conditions of service. Cabinet has recognized that an effective mechanism to deal with the question of SANDF pay and service benefits may have to be instituted pending the findings of a special investigation in this regard. The findings of the investigation are expected in due course.
98. Those placed in authority in the military accept the responsibility of resolving grievances, providing protection against abuse of authority and acting within the established channels of communication and formalised disciplinary principles. The ability to maintain discipline within the SANDF depends on avoiding circumstances which could give rise to the perpetration of peculiarly military offences such as insubordination or mutiny.
99. Section 134 of the Military Discipline Code provides for the resolution of grievances. This procedure enables a uniformed member to appeal through the hierarchy of service channels up to the President. The President's decision is final. The mechanism has led to the equitable resolution of many diverse grievances, irregularities, abuses of power and incorrect managerial decisions, but the procedures are time consuming. This provision will be streamlined in new defence legislation.
100. Grievance resolution. Effective communication is ensured through procedures that have been set up and forums established for the different rank groups at unit level. These forums allow military personnel to communicate their needs not only to the unit commander but also to the Chief of the Arm of Service and the Chief of the SANDF. Feedback after a trial period has shown that this system succeeds in solving most of the problems at unit level where such problems originate.
101. The Military Ombudsperson. The White Paper on Defence motivates for a Military Ombudsperson inter alia to investigate complaints against the SANDF by military personnel. It is envisaged that the ombudsperson will address any military personnel matters which cannot be resolved through other existing mechanisms.
MEDICAL, PSYCOLOGICAL AND SOCIAL SERVICES
102. The South African Military Health Service (SAMHS) provides comprehensive medical, psychological and social services within the DoD and makes many of its services available to the families of DoD members.
103. The Directorate of Medical Service maintains a developmental approach to facilitate health. The ethos of the medical profession and the regulations laid down by the Medical and Dental Council of South Africa are adhered to at all times.
104. The SAMHS provides medical services wherever possible through its own facilities and capabilities, referring patients to provincial hospitals where it cannot render appropriate service, or in some cases to private facilities where provincial hospitals do not have the necessary facilities.
105. The SAMHS provides primary, secondary and tertiary health care in close co-operation with the national health system which is based on a multidisciplinary approach. Primary health care is seen as a priority.
106. The SAMHS also provides specialist diving medicine and aviation medicine services.
107. The Directorate Psychology provides a military psychological service that is comprehensive and self-supporting, to provide for the psychological well-being of the entire military community.
108. The Directorate Psychology aims to assist the SANDF in the selection, recruitment and development of personnel. It aims to be academically and ethically accountable and to utilise up to date technology and to maintain the highest levels of legal, ethical and professional accountability.
109. Current priorities include operational psychology (optimal selection and utilisation of military personnel, commander training and management of operation-related symptomology); transformation of the SANDF; integration of component forces; personnel selection; gender sensitivity and equal opportunities and management of the psycho-social aspects of rationalisation and demobilisation.
110. The Social Service Directorate is an integral part of the SAMHS. It maintains a developmental approach which facilitates human capacity and self-reliance in order to contribute to the mission readiness of the SANDF. A needs-based people-centred approach is maintained. The service is output orientated and service excellence is the objective.
110.1 Operational support. The primary function of the SAMHS is to render operational medical support to the SANDF. Support for peacekeeping and peace-enforcement operations and humanitarian and relief operations are also undertaken.
110.2 Productive work force. To prevent or minimise social malfunctioning of members and families, emphasis is placed on preventive and developmental interventions rather than curative measures. Health promotion programmes receive high priority.
110.3 Healthy military families. The DoD accepts the importance of healthy military families as an important prerequisite for the provision of an acceptable quality of life within the military.
110.4 People development. Capacity-building programmes implemented by the military social work department aim to promote the social well being of members and families in the military community.
110.5 Team approach. Within the SANDF the social work officer functions as part of the human resource team acting as specialist consultant/advisor to command structures regarding social welfare issues. Social work services are decentralised to unit level to ensure the availability and accessibility of services.
110.6 Confidentiality. In accordance with the code of conduct for social work as stipulated by the Interim Council for Social Work, the national controlling body, no confidential information regarding any client may be made public without written permission.
111. Military Community Development Committees (MCDC's). All Regular Force units have a Military Community Development Committee or may, according to the size of the unit, be grouped together with other Regular Force units for this purpose. The purpose of this committee is to promote a healthy environment and lifestyle within the organisation for members and their dependants.
112. Transfer policy. The changing composition of the SANDF has led to a reassessment of the previously rigid transfer policy that laid down that members could be transferred anywhere in the country. The adequate allocation of military housing, the sympathetic deployment of members in the event of both parents being members of the SANDF and the limitation of unnecessary relocation of families will receive renewed attention. However, ineligibility for transfer is likely to reduce career opportunities.
113. Domestic violence. This term is used to refer to violence between spouses or sexual partners or among members of one family. The prevalence in the SANDF is not clear due to the fact that victims are not coming forward, although if the SANDF is considered to be a microcosm of South African society, domestic violence is likely to occur. Indeed a study conducted by POWA (People Opposing Women Abuse) has indicated that police and military personnel are more likely to engage in partner abuse, due in part to the stress that they experience in the workplace.
113.1 The DoD has become part of the national interdepartmental network on violence against women to improve the social, medical and legal procedures for women affected by violence. The Director Social Work is represented on the Interdepartmental Networking Committee on Women Abuse, established by the Ministry of Social Welfare.
113.2 In the SANDF, close networking between the legal, welfare, psychology and nursing departments is taking place to encourage victims to come forward. User-friendly reporting channels, supportive services and educational programmes will be introduced.
114. Day care centres. Provision is made for the founding of day care centres for pre-school children of mothers and single parents who work for the State. The SANDF recognises that such centres could enable more trained members of the force to continue in service. Parents are responsible for the costs of day to day care as this is not considered to be a service benefit. Presently a total of twenty-two day care centres/ playgroups exist in the SANDF for use by working mothers and single parents.
SPORT AND RECREATION
115. Sport is practiced in the SANDF to ensure healthy and fit members. Approved and structured sport and recreational activities in which members take part augment force preparation. Self-confidence and self esteem, good team spirit, the integration of cultures and the enhancement of the SANDF's image are achieved through participation in sport. Physical training (PT) is an integral part of sport management.
116. International liaison is dealt with at Defence Headquarters level and there are regional defence sport offices in each of the regional commands. A Director Sport serves full-time on the staff of the Chief of the SANDF.
117. Facilities, eg fields, courts, changerooms and certain equipment, are provided at state expense as well as some transport and other costs. Sport is financed by a combination of state (budgetary) funds, sports fees deducted from members' pay, club fees, sponsorships and grants. Civilian employees are granted permission to practice in biokinetic centres outside normal working hours on payment of a tariff laid down by the treasury. Full-time SANDF members may take part in sport during official working hours.
118. The creation of a research and development capability to ensure that SANDF sport keeps up with the technological advances in training has now become a priority. Director Sport ensures that the standard of training, coaching and refereeing is facilitated. Requests for the use of SANDF facilities, especially by disadvantaged communities, are considered sympathetically.
119. The SANDF has been granted full membership of Counseil Internationale du Sport Militaire (CISM), the international organisation for military sport. The CISM Office for Africa has been transferred to Pretoria as the SANDF is seen as one of the leading African military sporting forces and has been given special responsibilities for African military sport development.
OTHER RELATED MILITARY ORGANISATIONS
120. Although a needs analysis for military veterans still has to be conducted, a Military Veterans Bill which is being drawn up for presentation to Parliament could include the following:
120.1 The State recognises the sacrifices made by the military veterans of South Africa over many decades and acknowledges its responsibility for the care and welfare of all those veterans and their dependants.
120.2 All military veterans affairs will be managed holistically by a unitary organisation.
120.3 Compensation for disablement is to be viewed as reparation and not as a welfare matter.
120.4 The role played by military veterans in democratising South Africa will be recognised through national commemorations.
120.5 Any structures which are devised and put into operation for veterans are to provide for interaction and consultation between the state and the stakeholders.
120.6 Military heritage matters are viewed as a national issue and will be dealt with holistically. War graves, cemeteries, memorials, museums and rolls of honour are to be dealt with in an integrated way to promote our military heritage.
121. Previously the SADF gave administrative and logistic support for school cadets training at white schools. This consisted of drill, leadership and bearing, supplemented by target shooting and band performances.
122. Since 1993 cadet activities at schools have been optional, voluntary, extra-mural and accessible to all scholars of all population groups. Currently 484 schools participate in school cadet activities, involving 40 000 pupils made up of approximately 450 drill teams, 240 brass bands and 490 target shooting teams. The figures are declining, however, due to the absence of a clear national policy for school cadets.
123. There are differences of opinion regarding cadets in civil society. While some individuals and organisations regard them as promoting militarism, others view them in a positive light. The DoD will liaise with the National Youth Commission and other stakeholders to develop a national policy.
124. The SANDF's currently revised objectives for cadets are to instil a spirit of adventure and enhance the development of leadership amongst the youth; present assertiveness and leadership training and a self-disciplining activity with an alternative form of recreation; allow the youth to make contact internationally; and provide skills in house and hearth protection, first aid and fire prevention.
125. Three forms of cadet system are being investigated:
125.1 Voluntary school cadets along the lines of the previous system. If reintroduced, this model must be extended to disadvantaged communities.
125.2 Naval cadets. The existing programme of the Navy League could be encouraged and extended as a model for the other Arms of Service, and should incorporate disadvantaged communities.
125.3 Community cadet detachments which are not linked to schools. These run successfully in the UK and could be applied in South Africa. They involve recruiting youth in their mid-teens as members of local military units, and training them in order to cultivate recruits for the regiments and units.
126. The Service Corps was launched by the Minister of Defence on 31 January 1995 after Cabinet approval was given for its establishment. Its mission is to assist with the reintegration of ex-service members into civil society by upgrading the standard of education, vocational and life skills to enable members to find employment or start their own enterprise in the private sector; provide career guidance on a continuous basis and assist with the social reintegration of members where possible. Its priority is to reintegrate ex-service members.
127. The planning phase for the establishment is complete and implementation is now in process. The Service Corps has received a public service dispensation to function as an auxillary service of the SANDF. Forecasts, taking into account demobilisation and rationalisation, indicate an increase in members who will opt to join the Service Corps.
128. Ex-service members will undergo training including literacy and numeracy training and vocational training. Trainees will work on different projects for a period of twelve months, e.g. RDP projects; National Public Works Programme; SANDF projects; private sector projects.
129. The Service Corps head office is in the process of establishing a trainee support and guidance system in close co-operation with SAMHS, Director Social Welfare.
130. The Service Corps structures make provision for the establishment of a head office, Service Corps units in each province and a Vocational Training Centre for the training of ex-service members in various categories of trades.
131. The first trainees to Join the Service Corps and commence their training at 1 Construction Regiment were the intakes in September 1995, January 1996 and September 1996. The numbers under training in the different provinces exceed 1 000. The Service Corps is staffed by 137 full-timers in the different provinces.
132. The Service Corps has received the support of NGOs, businesses, churches, community based organisations and civic organisations. For the Service Corps to achieve its mission, it is imperative that it becomes an independent organisation in respect of logistics and human resources, facilities, commodities, service and applicable policies and directives.
133. Service Corps implementation costs for 1996/97 were funded from the carry through funds of the SANDF budget. Future funding of the Service Corps will be addressed in the normal budgetary process.
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