Title: White Paper on South African Participation in International Peace Missions - Part 1
1. INTRODUCTION
1.1. Background
Since the advent of democracy in 1994, domestic and international expectations have steadily grown regarding a new South African role as a responsible and respected member of the international community. These expectations have included a hope that South Africa will play a leading role in a variety of international, regional and sub-regional forums, and that the country will become an active participant in attempts to resolve various regional and international conflicts.
The nature of international activities aimed at international conflict prevention, management and resolution has changed dramatically over the past decade. A radically altered post Cold-War security environment has seen the transformation (or mutation) of classical peacekeeping operations into complex, multidimensional conflict management activities with a diplomatic/political focus in which the military is but one of many participants. Whilst South Africa has, as a member of bodies such as the United Nations (UN) and the Organization of African Unity (OAU), begun to play an active role in diplomatic conflict resolution initiatives, the country is also expected to contribute to wider multinational "peace missions".
Contemporary peace missions are fundamentally political initiatives, despite the complex admixture of political, humanitarian and military concerns and means. South Africa must therefore make a careful appraisal of the political and strategic environment within which peace missions are to be launched and the principles governing South African participation in such efforts. A precise understanding is required of the type of mandate that governs peace missions in order to facilitate a detailed articulation of acceptable entry and exit criteria and to determine the scope, level and type of resources that South Africa is willing to commit to future peace missions. This will provide a clear indication to the international community (including South Africa's regional and sub-regional partners) of the country's stance on participation in peace operations.
A clearly articulated policy in this regard will contribute towards the countering of unrealistic expectations of South Africa's potential role in third-party interventions.
However, such policy guidelines will entail a significant degree of compromise - between ideal scenarios and concepts for South African participation, and the realities of a very imperfect system for coping with threats to international peace and security. Policy, which is overly prescriptive, may mean that South Africa will continue to play the role of spectator to international and regional peace missions. On the other hand, policy guidelines that are too open-ended may mean that South Africa will become embroiled in contentious, ineffective and costly interventions from which there is little chance of an honourable withdrawal.
1.2. Aim and Scope
The aim of this White Paper is to describe the nature of contemporary peace missions and to provide clear and concise inter-departmental policy guidelines on South African participation in such missions. In particular, the White Paper addresses the following:
- The nature and scope of contemporary peace missions;
- The international mandate for conducting peace missions;
- South African philosophy on participation in peace missions;
- South Africa's potential contributions to peace missions, including the concept of standby arrangements and a readiness system;
- Principles governing South African participation in peace missions; and
- Procedures for the deployment of South African personnel.
As each peace mission is unique in character, this document should be regarded as an aid to capacity building and decision-making, rather than a definitive set of prescriptions. The very nature of contemporary conflicts means that each and every attempt to contribute to the maintenance or restoration of peace and security will require a judicious consideration of all mission-specific factors at the highest level. However, the positions reflected in this document should provide a meaningful point of departure for such deliberation.