The richness of public and academic discourses on the past, present and future direction of South Africa�s role in Africa and the world suggests that as a sub-discipline of politics, South African foreign policy is ready for a systematic and regular appraisal in the form of a series of publications that the Institute for Global Dialogue will call South African Foreign Policy Review. This is also because constant changes in international and domestic circumstances impinge on the management and analysis of South Africa�s foreign policy. This, the first review provides an important opportunity to build on existing foreign policy works in order to take stock of the road already travelled in the past decade or so. This is crucial in laying some basis for anticipating the country�s future role, and considering the opportunities and challenges, which future volumes of the review will consider. This volume provides a wide-ranging appraisal of the relationship between stated foreign policy goals and actual outputs and outcomes, an assessment of how foreign policy has actually been operationalized and implemented. To this end, common themes in South African foreign policy provide the framework for the first review. These include foreign policy decision-making; soft power dynamics in the foreign policy�s strategic calculus; diplomatic tools used � economic diplomacy, peace diplomacy and paradiplomacy; South Africa�s relations with key states in Africa, in the global south and in the global north; South Africa�s approach to Africa multilateral, global multilateralism/governance. The review hopes to stimulate further discussion and thinking on the challenges confronted, and the future shape and direction of South Africa�s foreign policy.
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South African Foreign PoLicy Review – VoLume 1 Edited by Chris Landsberg and Jo-Ansie van Wyk
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TabLe of Contents
Preface
Acknowledgements
About the contributors
Abbreviations and acronyms
CHAPTER 1 Towards a post-apartheid South African foreign policy review Chris Landsberg
Context and background Approach and content Notes
CHAPTER 2 Opening the ‘black box’: South African foreign policy-making Lesley Masters
Introductîon The concentrîc cîrces of decîsîonmakîng At the centre: from Mandea to Zuma Party poîtîcs: The roe of the ANC The foreîgn poîcy bureaucracy From DFA to DIRCO The Department of Trade and Industry (DTI) The Department of Defence (DoD) Parîament Domestîc nongovernmenta sources of foreîgn poîcy decîsîonmakîng Concusîon: A mutîstakehoder foreîgn poîcy decîsîonmakîng process? Notes
CHAPTER 3 The international relations of South African provinces and municipalities: An appraisal of federated diplomacy Siphamandla Zondi
Introductîon Perforated sovereîgnty and the federaîsatîon of înternatîona reatîons: A conceptua framework
vîî
îx
x
xv
1
4 12 17
20
20 20 21 26 27 27 29 30 32 33 37 37
42
42
43
i
i
The extent and nature of South Afrîcan paradîpomacy Internatîona vîsîts and trade mîssîons Internatîona cooperatîon agreements Partîcîpatîon în, and reatîonshîps wîth, înternatîona organîzatîons Internatîona deveopment cooperatîon Internatîona marketîng TABLE OF CONTENTS Why do provînces and munîcîpaîtîes undertake paradîpomacy? Changîng înternatîona reatîons Goba ambîtîons Goba megacîtîes Regîona întegratîon and crossborder expansîon The constîtutîona framework and the îdea of reatîve autonomy of subnatîona entîtîes Intergovernmenta reatîons, the bureaucracy and paradîpomacy The reatîonshîp between foreîgn poîcy and paradîpomacy Towards a poîcy framework for South Afrîcan paradîpomacy Key chaenges for South Afrîca’s paradîpomacy Concusîon Notes
i
CHAPTER 4 Soft power: The essence of South Africa’s foreign policy Karen Smith
Introductîon The soft sîde of power The retreat of hard power? South Afrîca’s post1994 foreîgn poîcy and soft power The regîona dîmensîon The way forward: chaenges and opportunîtîes Notes
CHAPTER 5 A review of South Africa’s peace diplomacy since 1994 Anthoni van Nieuwkerk
44 44 45 46 47 48 48 48 49 49 50
51 53 54 55 58 63 64
68
68 69 71 72 75 77 81
84
Introductîon: deinîng peace dîpomacy 84 South Afrîca’s contînenta peace dîpomacy 85 Framîng the debate: the contested nature of peace and conlîct resoutîon 87 Conlîct, conlîct resoutîon toos and technîques, and the Afrîcan experîence 88
Peace dîpomacy: the record Peace dîpomacy: toos of the trade Current and future prospects Concusîon: Peace dîpomacy în servîce of the natîon or the eîte? Postscrîpt: the Lîbyan chaenge to South Afrîca’s peace dîpomacy Notes
CHAPTER 6 South Africa’s economic diplomacy in a changing global order Brendan Vickers
Introductîon The shîftîng goba and regîona contexts for South Afrîca’s economîc dîpomacy The domestîc sources of South Afrîca’s economîc dîpomacy Recaîbratîng the compass: South Afrîca’s economîc dîpomacy Consoîdatîng hîstorîca connectîons: the EU and the US ‘Lîons on the move’: South Afrîca and Afrîca South Afrîca and ‘Asîa rîsîng’ South Afrîca and the ‘Latîn Amerîcan Jaguars’ Mutîatera economîc dîpomacy Concusîon and recommendatîons Notes
CHAPTER 7 The evolving ‘doctrine’ of multilateralism in South Africa’s Africa policy David Monyae
Introductîon Hîstorîca background South Afrîca as a reaîst mîdde power South Afrîca as a puraîst mîdde power Transformîng SADC The OAUAU transîtîon and Nepad’s emergence Concusîon: Chaîrîng the AU and the Ivoîrîan and Lîbyan dîemmas Notes
CHAPTER 8 South Africa’s relations with African anchor states Nomfundo Xenia Ngwenya
Introductîon
90 95 97 103 105 107
112
112
113 115 117 120 121 125 127 128 130 134
139
139 140 141 143 147 149 151 151
153
153
TABLE OF CONTENTS
iii
i
The concept of anchor states Typoogy of Afrîcan anchor states Strategîes for South Afrîcan engagement per category Genera factors South Afrîca shoud consîder when engagîng wîth Afrîcan anchor states Acceptance of regîona întegratîon as a common objectîve TABLE OF CONTENTS Interna and externa factors Makîng room for maeabîîty The împortance of externa powers South Afrîca’s înterests and the roe of anchor states Dîversîicatîon of strategîc powers An evauatîon of South Afrîca’s anchor state engagement sînce 1994 West Afrîca East Afrîca North Afrîca Centra Afrîca Concusîon Notes
v
CHAPTER 9 South Africa’s foreign policy towards the global North Gerrit Olivier
Introductîon The emergence of a new South Afrîcan foreîgn poîcy orîentatîon and îdentîicatîon ‘The strugge contînues’ as South Afrîca turns truy Afrîcan The Zuma presîdency: contînuîty and change DIRCO’S strategîc posîtîonîng of the goba North and the goba South Reatîons wîth the Unîted States Dependabe Europe The Russîan Federatîon and Eastern Europe Concusîon Notes
CHAPTER 10 South Africa and emerging powers Francis Kornegay
Introductîon South Afrîca: Afrîca’s defaut eader
The emergîng power dîpomacy of Afrîca’s ‘great power’ Goba South and emergîng power aîances The înstîtutîona împeratîves of a competîtîve terraîn Concusîon Notes
CHAPTER 11 South Africa and East Asia: Missed opportunities Garth Shelton
Introductîon South Afrîca’s natîona înterests East Asîa and South Afrîca’s natîona înterests Japanese trade and technoogy transfer South Korea: a deveopment mode for South Afrîca? The dîpomatîc chaenge of North Korea Chîna: a partner for growth and deveopment? Concusîon: A ‘comprehensîve ookeast poîcy’ Notes
CHAPTER 12 South Africa–North African relations: Revisiting the bridging of a continent Iqbal Jhazbhay
Introductîon Background: Cape to Caîro revîsîted North Afrîca: MandeaMbekîZuma Egypt: Workîng wîth the regîona mîîtary gîant postMubarak Tunîsîa: postBen Aî Lîbya: postGaddai Agerîa and Morocco revîsîted Revîsîtîng the Mîdde East and the Horn of Afrîca nexus Notes
CHAPTER 13 Chasing after shadows or strategic integration? South Africa and global economic governance Mzukisi Qobo
Introductîon Goba governance: Settîng the scene Hegemonîc settîng
203 204 209 212 213
215
215 216 219 220 223 226 228 235 236
239
239 241 243 245 247 248 250 253 253
257
257 258 259
TABLE OF CONTENTS
v
v
South Afrîca’s partîcîpatîon în the system of goba governance South Afrîca and the goba governance of trade Goba întegratîon and deveopment împeratîves The G20: Pursuîng an eusîve deveopmenta agenda South Afrîca and the G20 deveopment agenda Concusîon TABLE OF CONTENTS Notes
i
261 262 265 265 268 271 272
CHAPTER 14 Reflections on South Africa’s post-apartheid foreign policy and preliminary comments on future foreign policy274 JoAnsie van Wyk
Introductîon Revîewîng South Afrîca’s postapartheîd foreîgn poîcy The study of South Afrîca’s postapartheîd foreîgn poîcy Maîn indîngs of theReviewContrîbutîons of theReviewEpîstemoogîca contrîbutîons of theReviewPractîca împîcatîons of the indîngs of theReviewConcudîng remarks and recommendatîons for future research Notes
274 275 276 278 285 286 287 287 288
Preface
The Institute for Global Dialogue (IGD) has taken a timely and invaluable initiative to produce a series of volumes on ‘The Review of South African Foreign policy’. The first volume largely deals with foreign policy since 1999. Since the establishment of the first democratic government in 1994, many experts and academics in South Africa and internationally have written about South Africa’s foreign policy. Unfortunately, most of these articles were based on wishful thinking about some ‘unique nonwestern foreign policy’ that was expected from a democratic South African gov ernment. Much of the criticism was based on the government’s failure to sustain a ‘human rights perspective’ on foreign policy. A lot of the analysis was done too early and was not based on policy documentation of the African National Congress (ANC). An ANCled govern ment’s foreign policy could not suddenly appear in 1994; it has its roots in the history of the ANC since its formation in 1912. These documents will help to explain why our foreign policy since 1994 is driven by an Africanist, anticolonial and antiimperialist perspective. It is also unfortunate that very little reference was made to documents in the archives of the then Department of Foreign Affairs and little, if any, interviews were conducted with people involved in foreign policy formula tion and implementation, as these would have helped to explain why, in relation to specific country issues whether bilaterally or multilaterally, the government took the positions it took, which were always driven by our perspective of ‘A Better South Africa, A Better Africa and A Better World’. There was also little attempt to analyse South Africa’s foreign policy in the context of the fundamentally transformed international relations environment, largely characterised by the fall of the Berlin Wall, the end of the Cold War and the emergence of a unipolar world dominated by the US. The foreign relations of all countries had to grapple with this reality. South Africa was no exception. Twenty years into our democracy, experts and academics have access to ANC and foreign affairs documentation and can interview many role players. This provides an opportunity for a constructively critical analysis and review of South African foreign policy. Volume I deals with important subjects in foreign policy, including for eign policymaking and stakeholder interface; soft power and diplomacy; diplomacy of provinces and municipalities; economic diplomacy and ne gotiations; peace diplomacy; South Africa and the Middle East and North Africa; South Africa and Asia; South Africa and the global North; South