Values, Interests and Power: South African foreign policy in uncertain times | Daniel D. Bradlow and Elizabeth Sidiropoulos

Daniel D. Bradlow, Elizabeth Sidiropoulos

Description

South Africa’s foreign policy makers are facing a substantial challenge. From the advent of the democratic era in 1994 through to the early 2000s, South Africa was a highly respected actor in international affairs with a number of impressive accomplishments in the areas of global governance, peacekeeping and international norm entrepreneurship. However, since that time, the country’s international standing has declined. The value based and innovative foreign policy that earned the early post-apartheid South African government such great international respect has been replaced by a more transactional and tactically driven approach to international affairs. The country’s position as Africa’s leading economy and voice in international affairs is increasingly being challenged by other African states.This book explores how South Africa can develop a foreign policy strategy that is appropriate to the uncertain times in which we live and that both helps the country address its overwhelming domestic challenges of poverty, inequality and unemployment and regain its former high international reputation. The contributors to this book offer analyses and proposals for developing such a strategy within the context of the country’s constitutional order and institutional constraints and that addresses the diverse and complex global and regional aspects of the country’s international relations.Endorsements:“In this valuable book – which should be on every diplomat’s bookshelf - some of SA’s foremost experts offer the government frank and compelling advice on how to conduct a much better foreign policy over the next decade. … The authors challenge Pretoria to muster all the country’s assets and skills – and not just those of the ruling party – to pursue only the most important foreign policy goals. And to be guided always by the lodestar of the Constitution.” Peter Fabricius, Foreign Policy Analyst, former Foreign Affairs Editor at Independent Newspapers.“In this one-of-a-kind book of twelve chapters by emerging and experienced scholars, the authors probe into factors shaping South African foreign policy, lessons learned and the future strategy of the country’s foreign policy in an ever-changing world. A compelling read for policy makers and scholars.” Ambassador Prof Iqbal Jhazbhay, University of South Africa, Member of the ANC’s N.E.C. International Relations Sub-Committee & former SA Ambassador to Eritrea“This volume deserves to become a go-to classic on South African foreign policy. Its in-depth analysis will appeal to established experts in this area; its breadth will engage newcomers; its insights will be useful to scholars and practitioners alike.” Professor Amrita Narlikar, President, German Institute for Global and Area Studies (GIGA)“This book offers compelling insights on South Africa’s foreign policy ... These varied pieces provide textured and critical perspectives that may help open up an avenue to re-imagine South Africa’s foreign policy afresh in the post-Zuma years. It is a compendium that should appeal to scholars of international relations, practitioners of foreign policy, and the broader policy community.” Professor Mzukiso Qobo, Head, School of Governance, University of the Witwatersrand“This nuanced and richly detailed volume offers the reader superb analyses of South Africa’s foreign policy ... The authors’ contributions ... present both theoretical considerations and specific policy recommendations, which make the book highly useful for both scholars and policy makers ... Each chapter is thus certain to significantly contribute to promoting the public debate about South Africa’s place in the world.” Professor Oliver Stuenkel, Fundação Getulio Vargas (FGV)

Sujets

• Economie
• développement
• Politics
• Relations internationales
• Développement
• Géopolitique

Informations

• Publié par: PULP (Pretoria University Law Press)
• Date de parution: 01 janvier 2020
• Nombre de lectures: 1
• EAN13: 9781920538859
• Langue: English
• Poids de l'ouvrage: 9 Mo

Extrait

actor in international aFairs with a number of impressive accomplishments in the areas

driven approach to international aFairs. The country’s position as Africa’s leading economy and voice in international aFairs is increasingly being challenged by other African states.

its former high international reputation. The contributors to this book oFer analyses and

experts oFer the government frank and compelling advice on how to conduct a much better foreign policy over the next decade. … The authors challenge Pretoria to muster all the country’s assets and skills – and not just those of the ruling party – to pursue only the most important foreign policy goals. And to be guided always by the lodestar of the Constitution.” Peter Fabricius, Foreign Policy Analyst, former Foreign Aairs Editor at Independent Newspapers.

“ïn this one-of-a-kind book of twelve chapters by emerging and experienced scholars, the authors probe into factors shaping South African foreign policy, lessons learned and the future strategy of the country’s foreign policy in an ever-changing world. A compelling read for policy makers and scholars.” Ambassador Prof Iqbal Jhazbhay, University of South Africa, Member of the ANC’s N.E.C. International Relations Sub-Committee & former SA Ambassador to Eritrea

“This volume deserves to become a go-to classic on South African foreign policy. ïts in-depth analysis will appeal to established experts in this area; its breadth will engage newcomers; its insights will be useful to scholars and practitioners alike.” Professor Amrita Narlikar, President, German Institute for Global and Area Studies (GIGA)

“This book oFers compelling insights on South Africa’s foreign policy ... These varied pieces provide textured and critical perspectives that may help open up an avenue to re-imagine South Africa’s foreign policy afresh in the post-Zuma years. ït is a compendium that should appeal to scholars of international relations, practitioners of foreign policy, and the broader policy community.” Professor Mzukiso Qobo, Head, School of Governance, University of the Witwatersrand

“This nuanced and richly detailed volume oFers the reader superb analyses of South Africa’s foreign policy ... The authors’ contributions ... present both theoretical considerations and speciIc policy recommendations, which make the book highly useful for both scholars and policy makers ... Each chapter is thus certain to signiIcantly contribute to promoting the public debate about South Africa’s place in the world.” Professor Oliver Stuenkel, Fundação Getulio Vargas (FGV)

Values, Interests and Power

PULP

Values, Interests and Power South African foreign policy in uncertain times

Edited by Daniel D. Bradlow and Elizabeth Sidiropoulos

Values, Interests and Power: South African foreign policy in uncertain times

Edited by Daniel D. Bradlow and Elizabeth Sidiropoulos

2020

Values, Interests and Power: South African foreign policy in uncertain times

Published by: Pretoria University Law Press (PULP) The Pretoria University Law Press (PULP) is a publisher at the Faculty of Law, University of Pretoria, South Africa. PULP endeavours to publish and make available innovative, high-quality scholarly texts on law in Africa. PULP also publishes a series of collections of legal documents related to public law in Africa, as well as text books from African countries other than South Africa. This book was peer reviewed prior to publication.

For more information on PULP, see www.pulp.up.ac.za

Printed and bound by: Pinetown Printers, South Africa

To order, contact: PULP Faculty of Law University of Pretoria South Africa 0002 Tel: [phone] Fax: [phone] [e-mail] www.pulp.up.ac.za

Cover design: Marguerite Hartzenberg, Active Space Designs

Cover artwork: “H2Ome” ~ by Karire Evans, St Andrews School for Girls

ISBN: 978-1-920538-85-9

© 2020

TABLE OF CONTENTS

ACKNOWLEDGMENTSv CONTRIBUTORSvii Defining a South African foreign policy for the 1 2020s: Challenges, constraints and opportunities1 by Daniel D. Bradlow, Elizabeth Sidiropoulos & Luanda Mpungose Foreign policy under the Constitution28 2 by Jonathan Klaaren & Daiyaan Halim The courts and foreign policy powers54 3 by Nicole Fritz Overcoming bureaucratic and institutional challenges 4 in South African foreign policy making74 by Arina Muresan & Francis Kornegay South Africa’s security interests in Africa: 5 Recommendations for the 2020s93 by Aditi Lalbahadur & Anthoni van Nieuwkerk South Africa’s peace and security interests beyond 6 the continent117 by Garth Le Pere & Lisa Otto Regional integration and industrial development in 7 Southern Africa: Where does South Africa stand?140 by Maria Nkhonjera & Simon Roberts South Africa and African continental economic 8 integration in the 2020s160 by Lumkile Mondi Negotiating climate change in an increasingly 9 uncertain global landscape: Is there light at the end of the tunnel?178 by Ellen Davies, Saliem Fakir & Melisha Nagiah Reforming the institutions of global economic 10 governance and South Africa200 by Cleo Rose-Innes Challenges and opportunities for non-traditional 11 diplomacy230 by Fritz Nganje & Letlhogonolo Letshele Lessons learned and the path forward253 12 by Daniel Bradlow, Elizabeth Sidiropoulos & AnaSofia Bizos APPENDIX274 INDEX293

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ACKNOWLEDGMENTS

This book grew out of a discussion we had over coffee in 2017 about the possible foreign policy options that the new South African president would have following the 2019 elections. We thought this question was even more relevant against the background of growing international polarisation and the erosion of multilateralism. This followed a quarter of a century that was defined by shifts in global economic and political power and geostrategic interests launched by the end of the Cold War and Western triumphalism. Consequently, the third decade of the 21st century was likely to be a period packed with challenges and opportunities for the foreign policy makers of a country like South Africa.

We decided that it could be useful to invite a group of experts to write short pieces in their areas of expertise offering the new president their recommendations for South Africa’s foreign policy strategy for the next ten years – the expected two terms for the new president.

At the time it was not clear who the next president would be. Needless to say, events overtook our planning. Nevertheless, we decided that the decade of the 2020s was likely to be such a challenging and unpredictable one in regard to international affairs that the book would still serve a useful purpose. We also decided that, because the book was forward looking, we would invite a senior expert to collaborate with a junior colleague in writing each chapter. Our hope, which we believe has been largely validated in this book, was that this combination would ensure that each chapter would combine both the wisdom of experience and the energy and innovation of youth. We also hope that it will help promote the careers of a group of talented and creative young researchers.

The COVID-19 pandemic is another development that overtook our planning. In this case, the pandemic began after the chapters in this book were completed. While there is no doubt that the pandemic will affect the trajectory of international and domestic affairs in the 2020s, we do not believe that it will change either the need for South Africa’s foreign policy makers to deal with the issues discussed in this book or the relevance of its recommendations.

Numerous convivial breakfasts at Fournos Bakery in Rosebank, followed in the last stretch of the book by late afternoon snacks at Doppio Zero, were the permanent backdrop to our stimulating conversations, which ranged from analysing the state of the world to reviewing the chapters and brainstorming our introductory and concluding chapters.

The process of converting our casual coffee conversation into the reality of this book has been a collective one. It has involved many people who contributed in many different ways to bringing the book to a successful conclusion. In addition to the contributors to this book, the following

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people contributed by participating in a workshop at which we presented the idea for the book and an overview of the topics that we planned to discuss in it and a second workshop at which the authors presented the first drafts of their papers: Malte Brosig, David Francis, Paul Graham, Steven Gruzd, Faizel Ismail, Nikhil Jinabhai, Gilbert Khadiagala, Amanda Lucey, Showers Mawowa, Mopeli Moshoeshoe, Alecia Ndlovu, Piers Pigou, Priyal Singh, Richard Smith, John Stremlau, Chantal Kisoon, Shanelle van der Berg, Cobus van Staden, Stephanie Wolters, and Christopher Williams.

These workshops would not have been possible without the support of Sarasa Ananmalay, AnaSofia Bizos, Nondumiso Nqunqa, Thandeka Rasetsoke, and Rosemary Vingerling.

At SAIIA, research colleagues were generous with their time in commenting on the draft ideas and outline before we embarked on the first workshop. Some also volunteered helpful ideas for the title of the book. Special mention goes to Romy Chevallier, Neuma Grobbelaar, Asmita Parshotam, Cyril Prinsloo, and Yarik Turianskyi.

Renette Collins, SAIIA’s librarian, produced an extensive bibliography of books and articles on South Africa’s foreign policy. She and Minnie Viljoen produced the index for the book. Alex Begg and Iolandi Pool provided invaluable language editing and proofing support. Isabel Bosman, a 2020 KAS-SAIIA scholar, helped out with some of the footnotes and references.

We also wish to thank the anonymous reviewers who generously and helpfully reviewed the chapters in this book.

Consistent with our goal of using this book to promote young talents and to promote awareness of the importance of international relations to South Africa’s future, we held an art competition to find the artwork for the cover of the book. We wish to thank all the high school students who participated in this project and Kiyara Ananmalay and Yannis Generalis for helping to judge the competition.

This project would not have been possible without the support of funding from the National Research Foundation, through Daniel Bradlow’s SARCHI Chair in International Development Law and African Economic Relations, and the support provided to the South African Institute of International Affairs by the Swedish International Development Cooperation Agency.

Finally, we wish to thank AnaSofia Bizos and Luanda Mpungose, who in addition to being our co-authors, served as researchers on this project, and the Pretoria University Law Press (PULP) team who helped convert our draft manuscript into a book: Lizette Hermann, Gustav Muller, and Frans Viljoen.

Daniel D. Bradlow and Elizabeth Sidiropoulos June 2020

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CONTRIBUTORS

AnaSofia Bizos has an Honours degree from Leiden University College, The Hague, where she specialised in Liberal Arts and Sciences: World Politics. Having focused on Peace and Conflict Studies, with a special interest in African affairs and Afro-European relations, Bizos returned to South Africa where she worked for the Electoral Institute for Sustainable Development in Africa (EISA) and the South African Institute of International Affairs (SAIIA). She is currently studying towards an LLB at the University of the Witwatersrand in Johannesburg, South Africa.

Daniel Bradlow is SARCHI Professor of International Development Law and African Economic Relations at the University of Pretoria and professor emeritus, American University Washington College of Law. He was previously Head, International Economic Relations and Policy Department, South African Reserve Bank; Chair, Roster of Experts, Independent Review Mechanism, African Development Bank; member, International Law Association’s Committee on Accountability of International Organizations, and consultant to numerous international organisations. He has published articles and books on topics including international law and international financial institutions, international law and social change, foreign direct investment, legal aspects of international finance and global economic governance. He most recently co- edited a book entitledAdvocating Social Change Through International Law: Exploring the Choice Between Hard and Soft International Law(Brill, 2020).

Ellen Davieshas been working on issues of sustainable economic development for the past eight years. She is currently working as a consultant for the African Climate Foundation, supporting the organisation in a number of functions, including managing the development of the ACF’s Africa Strategy. Prior to moving to Niger, where she is currently based, Davies worked as the Project Manager: Extractives Sector at the World Wide Fund for Nature (WWF-SA) in Johannesburg. Davies’ particular area of interest is the climate change, development and gender nexus in Africa. She holds a BSocSci (UCT), LLB (UNISA), BComHons (Wits) and MCom (Wits).

Saliem Fakirover twenty years’ experience in the field of renewable energy has policy and financing. He currently serves as executive director of the African Climate Foundation. Prior to establishing the ACF, Fakir served on the Executive of WWF South Africa as the head of the Policy & Futures Unit for 11 years. Before joining WWF-SA, Fakir worked as a senior lecturer at the Department of Public Administration and Planning and an associate director for the Centre for Renewable and Sustainable Energy at Stellenbosch University. Prior to that, he served as director of the World Conservation Union, South Africa (IUCN-SA) for eight years. Fakir is a prolific writer and contributes regularly to leading South African publications likeEngineering News,Business Dayand theDaily Maverick.

Nicole Fritz is the chief executive officer of Freedom Under Law (FUL). She founded and directed the Southern Africa Litigation Centre (SALC) for a decade. She sits on the board of the Women’s Legal Centre and has participated in several high-level initiatives relating to human rights and foreign policy,

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international human rights law, humanitarian law and public interest litigation. She has also taught courses relating to these subjects in South Africa and the United States and contributes public comment on these topics.

Daiyaan Halima senior researcher at the Centre for Environmental Rights. is Halim joined CER as a researcher in the Corporate Accountability and Transparency programme in August 2019. He holds an LLB from the University of Johannesburg and was admitted as an attorney in 2015. He is currently completing an LLM in International Economic Law at the University of the Witwatersrand where he obtained postgraduate certificates in Economics and the Economics of International Trade and Investment in 2017.

Jonathan Klaarena professor at the University of the Witwatersrand in is Johannesburg, South Africa. He teaches, researches, and writes in the areas of human rights, competition law, the legal profession, and socio-legal studies. His most recent book isFrom Prohibited Immigrants to Citizens: The Origins of Citizenship and Nationality in South AfricaHe holds a PhD in sociology from Yale (2017). University and law degrees from Columbia (JD) and Wits (LLB). He served as the head of the Wits Law School from 2010 to 2013 and as director of the School’s Mandela Institute from 2005 to 2007. In 2016, he was appointed as an acting judge on the High Court of South Africa (South Gauteng).

Francis Kornegay Jra senior research fellow at the Institute for Global is Dialogue. He is also a member of the JIOR international editorial board and a past fellow of the Woodrow Wilson International Center of Scholars. He has Masters Degrees in African Studies from Howard University and in International Public Policy from the School of Advanced International Studies at Johns Hopkins. Kornegay served two stints in the US Congress as a professional staffer, among other things, developing financial sanctions legislation on South Africa. He established the Research and Evaluation Unit for the African Development Foundation, an independent US agency. In South Africa, he served as the country director of the African-American Institute (AAI) and was involved in electoral support activities. Since then, among other things, he has focused on South-South co-operation issues on which he has written and published extensively.

Aditi Lalbahadurthe programme manager, Foreign Policy, at the South was African Institute of International Affairs from 2015 to 2020. She is now an independent consultant, focusing on peace, security, international human rights and humanitarian issues and remains a keen observer of South African foreign policy. She graduated from University of St Andrews, Scotland in 2011 where she completed an M.Litt (with distinction) in Peace and Conflict Studies.

Garth le Pereis extraordinary professor at the University of Pretoria and a senior associate of the Mapungubwe Institute for Strategic Reflection based in Johannesburg. He received a BA (with highest honours) from Rutgers University (New Jersey) and did postgraduate work in political science at Yale University (Connecticut) from which he holds MA, MPhil, and PhD degrees. His areas of interest and publications record includes international relations theory, international political economy, political philosophy, multilateral trade and emerging markets, South African foreign policy, the politics of Africa and the Middle East, and China’s increasing role in Africa.He has edited two volumes on China:China through the third eye: South African perspectives; andChina in Africa: mercantilist predator or partner in development?

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Letlhogonolo Mpho Letsheleis a Masters candidate with the SARCHI Chair in African Diplomacy and Foreign Policy at the University of Johannesburg (UJ). Her main academic interests are in democracy, elections, peace and conflict, foreign policy and political science research methodologies. Her knowledge in these fields has been enhanced by providing teaching support for undergraduate courses in the Department of Politics and International Relations at UJ, as well as research consultancy services.

Lumkile Patriarch Mondi is a senior lecturer at the School of Economics and Finance (SEF) at the University of the Witwatersrand in Johannesburg, South Africa. He is a PhD Candidate under the supervision of Professors Vishnu Padayachee and Keith Breckenridge and submitted for examination his dissertation on the “Political Economy of Restructuring Eskom 1985 and Beyond”. He has worked extensively in the African continent in his responsibilities at the Industrial Development Corporation (IDC) where he spent eleven year at executive level and has presented and participated in various conferences world-wide, including the UN, World Bank, BNDES and OECD.

Luanda Mpungoseis a programme officer for the African Governance and Diplomacy Programme at the South African Institute of International Affairs (SAIIA). She holds a degree in International Relations (Hons) from the University of South Africa. Mpungose’s research interests include youth development and policy participation, BRICS cooperation and South Africa’s foreign policy. She has previously worked with the Swiss Development Agency as a research consultant and the United Nations Major Group for the Children and Youth (UN MGCY) as the World Humanitarian Summit Eastern and Southern Africa Regional Focal Point.

Arina Muresanobtained her Masters in Politics in 2017, a BA Honours degree in Politics obtained in 2012, and a BA Politics obtained in 2010 from the University of Johannesburg. She is currently a researcher in geopolitical dynamics and governance at the Institute for Global Dialogue. Her research interests include South-South cooperation, perception studies linked to public diplomacy and nation branding, as well as African First Ladies. She is part of an ongoing project on the African First Ladies Database, a research project analysing the political ambitions, leadership, role and influence of the continent’s post-colonial First Ladies.

Melisha Nagiahworks as a conservation project officer for WWF South Africa. She is a member of the Golden Key International Honour Society and graduated with a MSc in Environmental Science from the University of the Witwatersrand. Her work at WWF focuses on marine conservation and behaviour change working towards equitable developmental structures to address social, environmental and economic inequalities. Her research works feeds into the nexus of developing South Africa’s and Africa’s approach to climate change and policy considerations in the blue economy. Strengthening her development on international affairs and globalisation, her project work over 2 years with the Massachusetts Institute of Technology (MIT) provided insights into the role of democratically-elected leaders in local government – central players in Africa’s young democracies – and strengthened her understanding of global policy and local government structures.

Fritz Ikome Nganje lectures in the Department of Politics and International Relations at the University of Johannesburg. He was previously a postdoctoral

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research fellow with the South African Research Chair in African Diplomacy and Foreign Policy at the same university, after working as a researcher in the Africa Programme of the Pretoria-based Institute for Global Dialogue. Fritz holds a doctorate in Political Studies from the University of Johannesburg. His primary areas of research include the foreign relations of sub-national governments, decentralised cooperation, local peacebuilding, as well as South Africa’s foreign policy and diplomacy in Africa.

Maria Nkhonjerais a senior research analyst at the Centre for Affordable Housing Finance in Africa (CAHF), where she contributes to sector monitoring, analytics and market intelligence in southern Africa. She previously held the role of economist at the Centre for Competition, Regulation and Economic Development (CCRED), carrying out regional integration, industrial development and policy-related research in the SADC region. In this capacity, her work focused on development finance, mining capital equipment, agro- processing and the steel sector. Nkhonjera holds an MCom (distinction) from the University of the Witwatersrand and a BCom (Hons) in Economics from the University of Johannesburg.

Lisa Otto is a senior researcher and lecturer with the NRF SARCHI Chair in African Diplomacy and Foreign Policy at the University of Johannesburg, and is also co-editor in chief of theAfrican Security Review. She holds a PhD in Political Studies from the University of Johannesburg and a MA in International Peace and Security from King’s College London. She has specialised in African issues, particularly those related to conflict and security as well as foreign affairs and political risk. Her research interests have largely revolved around non- traditional threats to security, where she has developed specific expertise in maritime security.

Simon Robertsan economics director at the UK’s Competition and Markets is Authority and a professor of economics at the University of Johannesburg where he founded the Centre for Competition, Regulation and Economic Development (CCRED). He has worked extensively on issues of industrial development, trade, regional value chains, competition and economic regulation in Southern and East Africa, advising governments, competition authorities and regulators. He has also testified as an expert witness in a number of major cases. Roberts previously held the position of Chief Economist and Manager of the Policy & Research Division at the Competition Commission of South Africa from November 2006 to December 2012.

Cleo Rose-Innesis a development finance expert based in Washington DC. She served as senior advisor in the office representing Angola, Nigeria and South Africa on the Board of the World Bank from September 2015 to January 2019. Prior to that, she worked in the International Division of the National Treasury for more than 10 years in a range of roles. She has a Bachelor of Arts Degree (UCT), an English Honours (Walter Sisulu University), an MSc in Finance for Development (SOAS) and a PhD in Economics (SOAS). Her research interests include the alignment of public and private interests in the process of economic development and its implications for the evolution of institutions and economic governance.

Elizabeth Sidiropoulos is the chief executive of the South African Institute of International Affairs. She has published on various aspects of South Africa’s foreign policy including on its peace-making model as a key dimension of its soft

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