1. This White Paper has been prepared in the spirit of the new democratic era in South Africa. It acknowledges, as its point of departure, the profound political and strategic consequences of the ending of apartheid.
2. Following free and fair elections in April 1994, South Africa has become a vibrant democracy. It has a Constitution which outlaws discrimination, enshrines fundamental rights, and emphasises openness and accountability in the affairs of government.
3. The Constitution also establishes a framework for democratic civil-military relations. In terms of this framework the Defence Force is non-partisan; it is subject to the control and oversight of the duly elected and appointed civilian authority; and it is obliged to perform its functions in accordance with law.
4. After two and a half decades of isolation, South Africa has been welcomed back into the international community and has joined a host of important regional and international bodies. The country's foreign relations have been transformed from an adversarial mode to bilateral and multi-lateral co-operation.
5. This fundamental shift has been accompanied by a dramatic change in the strategic environment at domestic and regional levels. While the potential for instability and conflict remains, the salient fact is that the government is no longer unrepresentative and at war with its own people and neighbouring states in Southern Africa.
6. The government has prioritised the daunting task of addressing poverty and the socio-economic inequalities resulting from the system of apartheid. The Reconstruction and Development Programme (RDP) stands at the pinnacle of national policy and, consequently, defence policy.
7. The government is equally committed to national reconciliation and unity. One of the most dramatic illustrations of this commitment is the integration of the former statutory and non-statutory forces into the South African National Defence Force (SANDF).
8. The White Paper addresses the implications of these momentous developments for defence policy and the SANDF.
AIM AND SCOPE
9. The White Paper presents the defence policy of the Government of National Unity following a process of consultation with Parliament and the public. Its principal purpose is to inform citizens and other states, particularly those in Africa, of South Africa's new defence policy. The White Paper is also intended to serve as a confidence- and security-building measure in Southern Africa.
10. Defence policy should be in harmony with all other aspects of government policy, particularly foreign policy and national security policy. It can be described as that subset of government policy which is concerned with countering military threats; with the orientation, preparation, maintenance and employment of armed forces; and with the procurement of weaponry and military equipment.
11. Accordingly, the White Paper considers the following topics:
11.1 The overarching challenge of transforming defence policy and the armed forces in the context of the Constitution, national security policy, the RDP, and international law on armed conflict. [Chapter 2]
11.2 Civil-military relations, with reference to the constitutional provisions on defence; transparency and freedom of information; defence intelligence; the structure of the Department of Defence (DOD); military professionalism; civic education; the responsibilities of government towards the SANDF; and the rights and duties of military personnel. [Chapter 3]
11.3 The external and internal strategic environment and the importance of promoting regional security. [Chapter 4]
11.4 The primary and secondary functions of the SANDF. [Chapter 5]
11.5 Human resource issues, including integration; the maintenance of an all-volunteer force; the Part-Time Force; rationalisation and demobilisation; equal opportunity, affirmative action, non-discrimination and gender relations; and defence labour relations. [Chapter 6]
11.6 Budgetary considerations. [Chapter 7]
11.7 Arms control and the defence industry. [Chapter 8]
11.8 Land and environmental issues. [Chapter 9]
PROCESS
12. The Minister of Defence is committed to on-going consultation with Parliament, political parties, interest groups, non-governmental organisations and citizens in order to forge a national consensus on military matters.
13. There are several reasons for this shift in emphasis. First, accountability, responsiveness and openness in government are now constitutional tenets. Second, the SANDF is a national institution which relies on public support and public funds to fulfil its mandate. Third, the functions and orientation of the SANDF are necessarily matters of great public interest.
14. On 21 June 1995 the Minister published a draft White Paper on Defence with an invitation to citizens and their elected representatives to comment thereon. Over ninety written submissions were received, and the parliamentary Joint Standing Committee on Defence held three special sessions on the draft. Comments and proposals have been scrutinised carefully and, to the greatest extent possible, incorporated into this document.
15. The submissions and parliamentary deliberations were characterised by substantial support for the process of consultation, the content of the 21 June draft and the Minister's intention to effect a fundamental transformation of defence policy.
16. A common concern was the absence of detail in many areas. While this matter has been addressed, it should be emphasised that the White Paper seeks to establish a broad policy framework and the main principles of defence in our new democracy.
17. The White Paper will provide the basis for a Defence Review which elaborates on this framework in considerable detail. The Review will entail comprehensive long-range planning on such matters as doctrine, posture, force design, force levels, logistic support, armaments, equipment, human resources and funding.
18. Members of the Joint Standing Committee on Defence and civilian experts will participate in conducting the Review. A first draft will be published for parliamentary and public comment and will contain options with respect to the size, roles and structure of the SANDF. The final product will be presented to Parliament.
19. Further, the Minister will submit to Parliament detailed proposals on important matters such as demobilisation and rationalisation; equal opportunity and affirmative action; military education and training; the Part-Time Force; and weapons acquisitions programmes.
20. In addition to the presentation of annual budgets for parliamentary approval, the Minister will submit to Parliament annual defence reports.
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