WHITE PAPER

1
WHITE PAPER DEFENCE REVIEWDefence Update
2004

• Portfolio Committee on Defence12 October 2004

2
Portfolio Committee on Defence17 August 2004
3

• The Portfolio Committee on Defence (PCD) was
  briefed on 17 August 2004, and ameliorated the
  DODs initial approach.
• The PCD felt that the existing WPDR should not
  be redrafted, as they are robust and are adequate
  baseline documents for defence policy.
• Nevertheless, there is a need for an update of
  some aspects of the WPDR, as well as ensuring
  some alignment matters are dealt with.
• The PCD required the DOD to produce one clear,
  concise, consolidated, report of about 30 to 35
  pages covering the challenges facing Defence and
  the strategies that should be pursued to meet
  these challenges.
• At the present moment, this work lies on the
  programme of the PCD, but may shift to the
  programme of the Joint Standing Committee on
  Defence (JSCD) after its establishment.

4

• Some of the topics/ challenges that should be
  addressed include
• The strategic and political environment (changing
  issues, developments, and responses to those
  changes).
• Unilateral approaches to pursuing peace and
  security, the unilateral use of economic force,
  and the corresponding threat to multilateralism
• The illegitimate use of force by states and
  non-state forces
• An understanding of Human Security appropriate
  for South Africas defence
• The expanding nature of secondary roles and
  functions especially peacekeeping and external
  deployments related to promoting peace and
  security.
• Must examine the Defence MTEF framework and
  address unfunded mandates arising from (inter
  alia) our international commitments.

5
Drafting of theDefence Update 2004

• Design Architecture

6

• TITLE DEFENCE 2014
•   
• FOREWORD (By the Minister of Defence)
•   
• INTRODUCTION 
• The Introduction of the Defence Update 2004 will
  firstly articulate briefly the need for an update
  to the existing White Paper 1996 (WP).
• Accordingly, it will speak to the timing for the
  update (i.e. tens years after) and highlight the
  changes outside, as well as inside, South Africa
  that necessitates an update (such as the
  establishment of the African Union (AU) and the
  rise of new security threats).
• Secondly, the Introduction sketches the structure
  of the Defence Update 2004 i.e. the thematic
  areas of focus and contents contained within the
  various chapters.
• Thirdly, the Introduction must highlight very
  briefly the challenges, implications and
  recommendations that are underscored in the
  constituent chapters.
• Finally the introduction must outline the
  methodology employed in the update process.

7

• CHAPTER ONE CHANGED STRATEGIC ENVIRONMENT (Draft
  No 4 Completed)
•  
• One of the primary reasons for the Defence Update
  2004 is the changing nature of the external
  environment. Since the 1996 WP, the international
  strategic and security environment has shifted
  quite dramatically. A range of non-traditional
  security threats, new actors, and
  non-conventional methods of destabilisation and
  destruction confront our contemporary world.
  Subsequently, some of the previous policy
  positions and approaches about national defence
  and security require updating. This part of the
  update will also be based on Governments
  security and foreign policy objectives.
•  
• Accordingly, this chapter will be structured
  having the following sections.
•  

8

• The Global Context This section speaks to the
  changes in the international environment that has
  implications for world peace and security, such
  as the rise of international terrorism. It
  further identifies trends that inform the
  strategic environment.
• The Continental Context This section of the
  chapter is a new input (as compared to the 1996
  WP) that reflects changes in our continent,
  especially from an institutional perspective in
  the search for peace, stability and development.
  Accordingly, the inauguration of the AU and its
  concomitant structures such as the Peace and
  Security Council (PSC), the African Standby Force
  (ASF) and the implications for the DOD, needs to
  be discussed in this section.
• The Regional Context This section discusses
  developments in the past ten years regarding
  regional defence and security co-operation, the
  required institutions and mechanisms, and their
  implications for our defence policy and
  department. These institutions and mechanisms
  include the SADC-OPDSC and the SADC Mutual
  Defence Pact, among others.
• The Domestic Context This section looks inward
  to review changes from a national perspective and
  its implications for the DOD and its policies. In
  other words, it provides an examination of the
  posture and orientation of Government policy, the
  national security policy, and the role of the DOD
  in fulfilment thereof.

9

• CHAPTER TWO COLLECTIVE SECURITY
•   (Draft No 6 Completed)
• This chapter firstly contextualises the contents
  within the concept of security, its broadened
  conceptualisation (which places emphasis on a
  human security approach), and the governmental
  approach to security as envisaged by Cabinet, the
  IRPS and JCPS Clusters, the Ten Review and the
  Final Report of the UN Human Security Commission.
  
•  
• Secondly, the chapter will exemplify South
  Africas foreign security policy of pursuing
  multilateral approaches to peace and security and
  conflict resolution, be it at an international,
  continental or regional level. Accordingly, South
  Africas (and by implication the DODs) role and
  involvement in security mechanisms at these
  different levels, need to be analysed. As such
  the role South Africa has played in the last ten
  years (and will continue playing) within
  mechanisms such as the SADC-OPDSC, the AU-PSC and
  ASF, and the UN Standby arrangements, will be
  explored in this chapter.
•  
• Finally, this chapter outlines the fundamental
  features of South Africas defence diplomacy. Of
  equal significance are international conventions
  relating to arms control and non-proliferation
  matters, international humanitarian law,
  terrorism and other matters, that have been
  acceded to and ratified by South Africa.

10

• CHAPTER THREE ROLE AND FUNCTIONS
•   (Draft No 4 Completed)
• The purpose of this chapter is to explain the
  expanding roles and functions of the DOD / SANDF
  as shaped by its external defence policy and
  commitments. Furthermore this chapter will
  articulate the changing dynamics of the role and
  functions of the DOD / SANDF as influenced by the
  strategic environment, such as peacekeeping and
  contribution to the SADC Brigade of the ASF.
• As such it would speak to the Military Strategic
  Objectives and the Mission Based Approach thereof
  (which categorises homogonous groupings of tasks
  into missions). It will provide alternative
  approach to the rigid primary secondary
  concepts in the 1998 Defence Review.
•  
• This chapter would also provide an understanding
  of the challenges and implications in performing
  these expanding and changing roles and functions.
  In addition chapter three examines the Force
  Design and Structure of the SANDF, and the costed
  and affordable design aligned with budgetary
  realties, and the organisational structure.
• This chapter accordingly provides a determination
  of capabilities required to fulfil new Roles and
  Functions.

11

• CHAPTER FOUR DEFENCE GOVERNANCE
•   (Draft No 7 Completed)
• A chapter on Defence Governance would basically
  entail moving beyond chapter two on
  Civil-Military Relations in the 1996 WP. This
  chapter will firstly reflect the challenges of
  the DOD structure (in terms of the distinction
  between the functions of the Defence Secretariat
  and the Chief SANDF), that have arisen since the
  inception of these structures.
• Secondly it will articulate the management and
  policy decision making processes that are
  regulated by the practices of Integrated
  Governance and the Cluster System the Defence
  finance and budgetary considerations that are
  informed by the Regulatory Framework of the PFMA
  the Defence Act of 2002 and the Public Service
  Act.  

12

• CHAPTER FIVE DEFENCE RESOURCES
• This Chapter will address the resource
  requirements of the defence intent contained in
  Chapters 1 to 3. The 1996-98 WPDR where
  developed at the same time as the budget reforms
  of the MTEF where being developed. The envisaged
  changes to the White Paper Defence Review must
  ensure reasonable alignment of strategy with
  resources and funding and achieve a consensus on
  the related risks.
• Required tangible resources such as the land,
  buildings, equipment, inventories, personnel,
  information and other resources exist through
  prior investment or through deliberate investment
  through the Defence Vote.
• The Chapter will accordingly speak to the
  challenges that emanates from these issues.. This
  chapter further looks at the departmental
  policies regarding human resources (such as Human
  Resource 2010), ICT Strategy of the DOD, and
  policy and challenges concerning Reserves and
  Veterans.

13

• The Chapter will propose a funding model in which
  risk-based capabilities are funded and readiness
  levels are determined by levels of funding.
• Finally the chapter comments on Defence Matèriel
  Resources to indicate challenges in capacity to
  fulfil expanded and new responsibilities.

14

• CHAPTER SIX CHALLENGES, RISKS AND IMPLICATIONS
•  
• Flowing from the above chapters significant
  challenges, risks and implications for the DODs
  capabilities can be identified. For example,
  after exploring the expansion of secondary
  functions, the Defence Update 2004 will
  articulate capacity challenges and future
  requirements to fulfil this role.