It is universally acknowledged that in a democracy the Citizen in Uniform,
the part-time soldier, is an indispensable element of a country's defence.
- Joe Modise, Minister of Defence, 5 June 1996
INTRODUCTION
1. The part-time component (PTC) is an integral and essential part of the SANDF. During mobilisation or times of war, it will be required to provide substantial numbers towards the personnel component of the defence force.
2. The SANDF's core defence capability will include both the full-time component (FTC) and the PTC which will be structured and staffed in accordance with the requirements of the SANDF.
3. The current and future budget constraints on the DoD will continue to impact upon both the full-time and part-time components.
4. Although the PTC system is in place and functioning, it requires revision and refinement. Many of the recommendations contained in this chapter are already being pursued.
5. The transformation and restructuring of the PTC has two broad goals: to ensure that the new PTC reflects the principles of the Constitution and the policies contained in the White Paper on Defence; and to ensure that the PTC meets the requirements of the SANDF.
6. More specifically, the aims are to ensure that the PTC reflects the composition and cultural diversity of South Africa; that it remains an integral part of the SANDF's force design and structure; that it is capable of fulfilling its functions in an efficient and effective manner; and that the service conditions of the PTC are designed to attract and retain sufficient volunteers to meet the SANDF's force level requirements.
AIM AND SCOPE OF THIS CHAPTER
7. This Chapter considers a range of issues which are critical to the successful functioning of the future all-volunteer PTC, regardless of its ultimate structure and size.
8. This Chapter has the following aims and covers the following topics:
8.1 To present the necessary background information and perspective on the PTC: the history and proposed structure of the PTC; the legislative and policy framework; the 'one force concept'; the PTC as a national asset; and a vision of the future PTC.
8.2 To advise the Minister and Parliament on the following policy issues: roles of the PTC; command and control; decision-making on the PTC; cultural transformation; representativeness; recruiting and retention; voluntary military service; community support; youth; structural transformation; territorial units; resource allocation; service conditions and benefits; training; employer and organised labour support; marketing; international affiliations; and military veterans.
HISTORY OF THE PTC
9. The current PTC is the proud heir of an ancient South African tradition, that of the committed and resolute citizen-soldier usually serving as a volunteer and occasionally as a conscript. With only a few exceptions, South Africa's wars at home and abroad have been fought by citizen-soldiers from all communities. The struggle for democracy over the past few decades is a prime example of this.
10. Sometimes these soldiers fought alongside each other and sometimes they fought against one another. Yet they shared one thing through the centuries: when the war was over they did not return to military barracks but, being volunteers, went home to their tasks in the field, the factory and the office.
PROPOSED STRUCTURE OF THE PTF
11. The PTC component of the SANDF forms an indispensable and integral part of the SA Army, Air Force, Navy and the Military Health Services. Historically the PTC has provided mainly the 'teeth' (combat and combat-support) elements and little of the 'tail' (administrative and non-operational) elements of the Army.
12. The term ,part-time component' is a new and inclusive name for previously separate part-time components, namely the citizen force (which may be tasked to operate anywhere) and the commandos (which are usually tasked to operate on an area-bound basis).
13. The PTC Units in the Army are currently being rationalized as a result of the structural transformation of the SANDF and because of the budget constraints on the DoD. The proposed structure of the PTC is described below.
Army
14. About 85 per cent of the PTC is part of the Army and consists of two main elements: conventional units (citizen force); and territorial units (citizen force and commandos, including their support elements).
14.1 Conventional Units. The PTC conventional units listed below will comprise one division consisting of three PTC brigades.
14.1.1 Towed Medium Artillery Regiments
14.1.2 Multiple Rocket Artillery Regiments
14.1.3 Self Propelled Medium Artillery Regiments
14.1.4 Towed Anti-Aircraft Regiments
14.1.5 Mobile Anti-Aircraft Regiments
14.1.6 Mechanised Infantry Regiments
14.1.7 Motorised Infantry Regiments
14.1.8 Tank Regiments
14.1.9 Armoured Car Regiments
14.1.10 Various support units (eg Engineer Regiments, Signals Units, Logistic Units, Technical Service Units etc).
14.2 The units are trained and equipped to fight a conventional land battle, and the required standard of technical proficiency is high. Intensive training and regular refresher courses on highly sophisticated equipment are therefore vital.
14.3 A substantial portion of the Army's conventional warfare capability resides in the PTC, which consequently forms an essential part of the Republic's fighting force. The conventional units are also trained in secondary roles.
14.4 The Army's parachute brigade includes a number of PTC paratroop units:
14.4.1 Light Artillery Regiment
14.4.2 Parachute Anti-Aircraft Battery
14.1.3 Parachute Battalions
14.4.4 Various support units (eg Engineers, Field Workshop and Maintenance Units).
14.5 Territorial Units. The Territorial Units of the Army will comprise those units which have a citizen force or a commando origin, both rural and urban. They form the largest part of the operational forces of the regional commands and are mainly light infantry elements.
14.6 The citizen force component and some elements of the commando component operate as the regional commands' reaction or mobile force. The territorial units are usually tasked to secure their local or home areas. In terms of the strategy for land battle, both components are responsible for area defence.
14.7 These units are very cost effective. They are lightly armed and do not use expensive equipment.
14.8 In peace-time the units may be tasked to perform a secondary role in co-operation with the local community, local authorities and the South African Police Service (SAPS). They played a vital role in elections, in flood and snow relief, and in support to the SAPS in crime prevention.
14.9 They are active on an ongoing basis in the community and their individual service commitments are shorter but more frequent, according to local defence and security needs.
Air Force
15. The PTC volunteer air squadrons in the SA Air Force are responsible for communication and reconnaissance flights. The pilots in these squadrons must hold at least a civilian private pilots licence with an instrument rating, and have a minimum of 500 hours flying time. They must either own an aircraft or have unrestricted access to one. The aircrew of the squadrons are trained and tested to Air Force standards.
16. There is also a pool of specialist personnel who are used to support the FTC. These include other PTC pilots and experts in technical and professional disciplines.
Navy
17. The Navy PTC structure consists of naval reserve units and a naval staff reserve.
18. Naval reserves are used in the following roles:
18.1 To reinforce and sustain the SAN at its full wartime complement.
18.2 To staff ships and submarines to full complement.
18.3 To staff Naval shore establishments to full wartime complement.
18.4 To perform tasks such as port and coastal defence, including naval control of shipping and the staffing of harbour and coastal defence vessels.
19. All naval reserve units are involved on a daily basis in administering and training their ships' companies in order to fulfil their role.
SA Military Health Service
20. The SAMHS PTC consists of medical battalion groups which are deployed with operational forces, both conventional and otherwise, as well as with the PTC elements of the Special Medical Battalion.
21. At each medical command there is a PTC territorial wing which consists of centralised and decentralised wings.
22. The SAMHS PTC provides a cost-effective and highly specialised medical, dental, psychological, welfare and veterinary capability.
CONSTITUTIONAL AND POLICY FRAMEWORK
23. The Constitution of the Republic of South Africa (1996), read with the 1993 Constitution in terms of Schedule 6 of the new Constitution, provides:
23.1 The security services of the Republic shall consist of a single defence force... established in terms of the Constitution.
23.2 The Defence Force shall comprise both a permanent force and a part-time reserve component.
23.3 The establishment, organisation, training, state of preparedness, calling up and conditions of service of the part-time reserve component shall be as provided for in an Act of Parliament.
24. The White Paper on Defence states that ,for political, strategic and economic reasons, the SANDF will be an all-volunteer force. It will comprise a relatively small Full-Time Component (FTC), including a civilian component, which is backed by a sufficiently large PTC. A basic structure of this nature is extremely cost-effective and allows for flexibility in force levels according to the internal and external security environment'.
THE 'ONE FORCE CONCEPT'
25. The 'one force concept' is intened to ensure that the FTC and the PTC constitute an integrated defence force which is capable of defending South Africa. The FTC and the PTC together provide the SANDF's core capabilities which can be expanded if required by calling into service additional trained part-time volunteers.
26. The 'one force concept' provides for flexible utilisation of human resources and reduces the necessity to maintain a large and un-affordable full-time component.
27. The essence of the concept is that all SANDF personnel enjoy fair and equitable treatment regardless of whether they are full-time or part-time members, and that they are all expected to render the same high standard of service notwithstanding the differences in the dynamics, functioning and requirements of the two components.
28. The concept will enable South Africa to make best use of available defence funding by maintaining a force in which the FTC is optimally sized and equipped, and backed up by a PTC able to fulfil those tasks which do not require a full-time capability.
29. In order to achieve the 'one force concept', the future SANDF should be based on the principle of fairness and equity for all its members, whether from the full-time or part-time components, with due recognition of the different dynamics, functioning and requirements of the two components, as well as the inherent differences of service between the Arms of Service.
NATIONAL ASSET
30. A substantial, representative, trained, funded and equipped PTC is a national asset because it is a guarantee of national sovereignty, costs very little to maintain, and benefits the country by its very existence.
VISION
31. The future PTC will be a loyal, non-partisan, disciplined and professionally competent body of volunteers, both men and women, maintaining and upholding South Africa's many military traditions, representative of the population, and forming an integral part of the SANDF.
ROLES OF THE PTC
32. The functions of he SANDF are defined in the Constitution and White Paper on Defence. The PTC's primary and secondary roles derive from these sources.
Self Defence
33. The PTC is a vital component of the SANDF's capability to perform its primary function of self-defence.
Peace Support Operations
34. The PTC should be used in peace-support operations. Many armed forces make extensive use of part-time members in this role. The Scandinavian countries are a prime example. Peace-support service could be a vital training aid and an incentive to enlist in the PTC because it would provide operational experience and the prospect of actual rather than theoretical soldiering.
35. Because voluntary service by PTC members in peace support operations can be cost-effective and a motivating factor for the PTC as a whole, these personnel should be employed alongside FTC members in such operations whenever practicable. In the event that long periods of service are required, volunteers who do not have time constraints should be used.
Co-operation with the SAPS
36. PTC regiments, units and personnel have been used extensively in co-operation with the SAPS. Because of their dual role as citizens and soldiers, PTC members have displayed a high level of maturity and have been a stabilising influence in these operations.
37. The territorial units have always played a major role in this respect. The conventional PTC forces can also be used in this capacity, but only in their special areas of skill and training.
Other Secondary Functions
38. The PTC participates in many of the SANDF's non-military tasks. Part-time soldiers have always come forward in times of emergency.
39. The legislative basis, policy and procedures for taking PTC members into temporary full-time service must be made simple, expedient and accessible so as to facilitate the utilisation of PTC members in any support role to the FTC.
A BALANCED COMMAND STRUCTURE
40. In the past very few PTC members had the opportunity of rising above the rank of lieutenant colonel or commander (ie regimental commander level) to serve in senior SANDF command structures. There were virtually no posts for them to do so. Senior positions for PTC members were mainly liaison rather than command posts or true staff appointments. The PTC did not have meaningful representation at senior levels in the line function dealing with PTC matters.
41. Officers with strong leadership ability were discouraged from staying in the PTC because of this career ceiling, and the management and technical skills of senior PTC officers and non-commissioned officers who left the service because of this were lost to the SANDF.
42. The White Paper states that the SANDF will investigate on a continuous basis the need for, and the creation of, command and other posts for PTC members in order to provide them with greater responsibility for command and control of this component. The SANDF has conducted such investigation in consultation with the PTC and the Part-Time Force Council (PTFC).
43. This has led to the creation of the PTC post of a major general who, as Chief of the Part-Time Component (CPTC), reports directly to the Chief of the SANDF on all PTC matters and is a member of all the top departmental bodies. The CPTC will be assisted by other senior PTC and FTC officers and warrant officers who will occupy posts which have also been created.
44. The presence of these senior PTC members in the chain of command and in the Part-Time Force Council (PTFC) structures will enhance the motivation of the PTC, raise the standing of the PTC in the community, and help to create a climate of support for service in the SANDF.
45. For the 'One Force Concept' to become a reality, more PTC officers and warrant officers should become eligible for promotion into senior command structures with status equal to their FTC counterparts. This will demonstrate that they have a meaningful role to play in the management of the SANDF.
46. Additional posts should be created for members of the PTC to be promoted to the ranks of colonel and above over specified periods of time. The filling of these posts should be a structured and planned process of career progression for PTC officers.
47. A range of further senior command and staff posts within the SANDF should therefore be identified for officers and warrant-officers of the PTC, according to need-driven requirements and the approved operational command and support structures of the SANDF.
DECISION-MAKING ON PTC MATTERS
48. The PTC currently has an indirect but growing influence on, and participation in, decision-making on SANDF matters which affect it. This occurs through the Part-Time Force Forum, the Part-Time Force Council, the Reserve Officers Association of South Africa (ROASA) and the Senior PTC Liaison Officers of the Arms of Service. The role and functions of these bodies are being reviewed in the light of DoD re-engineering.
Part-Time Force Forum
49. The Forum co-ordinates PTC activities at Chief of the SANDF (C SANDF) level, and affords PTC representatives direct access to the C SANDF.
50. The Forum provides advice and direction in respect of PTC matters within the framework of defence policy in general and C SANDF policy in particular.
51. Under the chair of Chief of Staff Personnel, the Forum consists of the Chiefs of Staff Personnel of the Arms of the Services, Chief Director of Corporate Communications, Director of Human Resources Policy of the Defence Secretariat, Chair and Deputy Chair of the PTFC and the Senior PTC Liaison Officers of the arms of the service. Co-opted members consist of the directorates of the Personnel Division and ROASA.
52. The Forum co-ordinates and advises the CSANDF in respect of the following PTC functions and activities:
52.1 Identifying prominent supporters of the PTC outside the SANDF.
52.2 Co-ordinating and regulating comprehensive investigations into PTC matters.
52.3 Making recommendations in respect of PTC policy and prioritizing PTC matters.
52.4 Ensuring that the PTC remains updated on developments in the SANDF.
Reserve Officers Association of South Africa
53. The main objective of ROASA, being a voluntary society not for gain, is to support the national security policy of South Africa.
54. ROASA endeavours to establish international relations with similar organizations such as the Inter-Allied Confederation of Reserve Officers (,COIR') and the Inter-Allied Confederation of Medical Reserve Officers (,CIOMR').
55. The active members of ROASA consist of PTC serving or retired officers from the different Arms of Service.
Part-Time Force Council
56. The Part-Time Force Council (PTFC) is recognised as an important mouthpiece of the PTC. It is an elected body based on corporate rather than individual membership (ie its members in the nine regions of the council are elected by the PTC regiments and units of all arms of service). Former non-statutory force members participate equally on the PTFC, in order to represent their constituents.
57. The PTFC enjoys ministerial recognition and the appointment of its chairperson was ratified by the Minister of Defence in December 1994. The Minister has also ratified the appointment of eight former statutory force members and ten former non-statutory force members to the PTFC National Council.
58. The constitution of the PTFC has been accepted by the Department of Defence (DoD), including the Council on Defence (CoD) and the Defence Command Council (DCC).
59. The PTFC has the following aims:
59.1 To secure durable collaboration with the Minister, the Defence Secretariat, the SANDF, the Chiefs of the arms of service and command and formation commanders on all matters affecting the PTC, and to secure a standing which is commensurate with the role of the PTC as an important component of the SANDF.
59.2 To help secure general and broad-based community and private sector support for the PTC and the voluntary service system.
59.3 To help promote a ,one force concept' between the PTC and the FTC within the SANDF.
60. The main roles and functions of the PTFC are as follows:
60.1 To advise and consult within the DoD on matters affecting the PTC, and to contribute in an advisory capacity to the decision-making process of the DoD regarding such matters.
60.2 To promote the development of PTC support structures involving employers and employer organisations at national and regional levels.
60.3 To assist with the development and implementation of the PTC volunteer system, and to actively support the SANDF in the recruitment of volunteers.
60.4 To advise and assist with marketing, advertising and publicity in relation to the PTC.
60.5 To liaise with veterans' and other organisations on PTC matters.
60.6 To liaise with organisations representing part-time forces internationally.
60.7 Within the ambit of the mission and aims of the PTFC, to provide guidance and advice to the PTC or any unit thereof on any matter, and to undertake any tasks or projects at the request of the DoD.
61. The PTFC should become a statutory body within the DoD as soon as possible in order to give effect to its constitution, secure recognition for its office bearers, and obtain appropriate financial and other resources.
ASPECTS OF COMMAND AND CONTROL
62. The PTC and the PTFC should be involved in force design and rationalisation initiatives affecting the PTC.
63. The restructuring of the command and control structures of the PTC within the SANDF similarly requires the involvement of the PTC and the PTFC.
64. As a transitional measure, the suitability and seniority of all PTC volunteers should be determined by a formula which includes the following criteria: age; command experience; operational experience; on-the-job (rather than formal) training; and specialist civilian training, experience and qualifications.
65. The ranking of PTC personnel should be investigated with the aim of placing them in appropriate ranks, correcting inequities suffered by serving PTC personnel as a result of deficiencies in the previous PTC's training and career planning, and catering for former non-statutory force leaders.
66. A programme for accelerated training and development of PTC members should be designed and implemented.
TRANSFORMATION
67. The transformation of the SANDF, including the PTC, should be addressed in respect of cultural transformation, representativeness and recruiting and retention.
68. The main aim is to foster a common military culture amongst all members of the SANDF, whether full-time or part-time component.
Cultural Transformation
69. The PTC of the future should have a broad and common military culture which is based on the greatest degree of inclusivity.
70. In order to make the PTC fully representative of the composition of South Africa, a cultural transformation of the PTC should be effected.
71. The regimental traditions followed by many PTC regiments, especially the traditional regiments, should be seen as a valuable aid in this regard. Studies have shown that soldiers' loyalty lies with their comrades, their regiments and the state, in that order.
72. Regiments have proved time and again their unquestionable loyalty to the state, irrespective of the government in power.
73. Transformation of the SANDF should be aimed at fostering a common military culture amongst both full-time and part-time members.
74. There should be a cultural audit of the diverse historical and military traditions of South Africa, including those of the existing PTC, the former non-statutory forces and the former ,homeland' forces.
75. The future PTC's military culture should be based on the principle of maximum inclusivity of the customs and traditions of all the forces involved in its formation.
76. It is essential to build on regimental traditions and customs and to mould them so that all sectors of the community, irrespective of race, gender and creed, are accepted as an integral part of the regiment.
Representivity
77. The PTC is in ananomalous situation regarding composition of its personnel. On the one hand, there is a vast number of white males who were trained under the national service system. Many of them have not volunteered for PTC service and will not respond to any call-up because of the ministerial moratorium on prosecution for failing to comply with a call-up. On the other hand, very few non-statutory force members have volunteered to join the PTC. The integration process to merge the present PTC with part-time volunteers from the former non-statutory forces is not generally known and needs to be communicated to both the PTC and the under-represented sectors of the community.
78. The Minister said the following in his budget speech in 1996: "Although all sections of our people are joining the part-time forces, special attention will have to be given to attracting former MK, APLA and TBVC members into the part-time regiments and area-based units. We can look forward to the day when there is a Luthuli Regiment of Soweto, the Tambo Regiment of Kwa Mashu and the Chris Hani Regiment of Khayelitsha, and when black, brown and white serve equally in all".
79. The SANDF should establish specific methods, plans and implementation programmes for integration within the PTC, including an on-going recruiting campaign in black communities.
80. As part of the attestation process, the SANDF should formulate and implement selection procedures for the PTC similar to those in place for the FTC. The British Military Advisory and Training Team (BMATT) should be involved in this process.
81. A programme for accelerated training and development of PTC members to achieve pre-determined standards should be designed and implemented.
82. The Chief Directorate Equal Opportunities should be tasked to investigate and monitor the programme if this is considered to be appropriate.
83. If feasible, the Service Corps should be tasked to identify suitable recruits for the PTC from those who leave the SANDF through the demobilisation process.
84. A multi-pronged approach with regard to regiments and units should be adopted:
84.1 Existing regiments should be retained where feasible, albeit in a down-sized form. Plans should be made to ensure representativeness within these units.
84.2 Where new units are required to be established or greater representativeness needs to be achieved, such units can be established from sub-units of existing units.
84.3 PTC units should be established within budget constraints to become more representative and to even out the demographic and geographic distribution of the PTC.
Recruiting and Retention
85. Recruitment and retention of suitable personnel is the life-blood of any volunteer part-time force. In the case of South Africa, the Minister has mandated additional requirements, namely that recruiting must encourage nation-building and must ensure a balanced mix of members in terms of race, ethnicity and gender.
86. Persuading the right calibre of people to volunteer and stay in uniform will be accomplished by offering an attractive, challenging and rewarding part-time military career.
87. It is more economical to encourage people to stay in the PTC than to find and train or re-train replacements from scratch. It is difficult to replace lost experience which comes from long service.
88. While the SANDF has made much progress with regard to recruiting, various issues still have to be considered and resolved:
88.1 Many PTC units currently believe that their only means of survival is to recruit as soon as possible. This situation will be corrected once the current rationalisation of units has been finalised.
88.2 Recruiting should be planned, programmed and implemented in an orderly fashion. The delineation of recruiting areas for particular units should be included in the plan.
89. All arms of service should determine the number of recruits required for each regiment or unit depending on its geographic location, task, training commitment etc.
90. The regional marketing forums which have been established in each command area should be tasked to produce regional personnel marketing programmes.
91. The national advertising campaign envisaged by the SANDF at corporate level should precede recruiting at regional level. Community awareness of the PTC needs to be established prior to widespread recruiting.
92. Recruiting should be decentralised to the lowest practical level.
93. The proposals described above are being pursued by the SA Army.
VOLUNTARY MILITARY SYSTEM
94. The Voluntary Military System (VMS) was originally established as a substitute for the defunct national service system. In terms of the VMS, volunteers undergo twelve months basic military training, followed by a further obligation of eight annual commitments of 30 days in the PTC. The objective is to create a feeder system for the PTC conventional forces.
95. In its current form, however, the VMS does not achieve this objective. Very few PTC units receive personnel from this source, especially in the leader-group category. If anything, the VMS has become a feeder group for the FTC.
96. The VMS should be reviewed and adapted to achieve the aim of creating a feeder system for the PTC.
Ex Full-Time Component Members
97. Active measures should be taken to recruit members leaving the FTC into the PTC.
98. The policy in terms of which FTC members who have taken a voluntary severance package on leaving the service are entitled to join the PTC as volunteers should be communicated to such members.
COMMUNITY SUPPORT
99. Many people regard service in the Defence Force as a privilege. However, successful recruitment of volunteers requires the support of all sections of the community.
100. Two problems in particular have to be solved in order to achieve this support: historically, many citizens have had a negative attitude towards the SANDF; and years of conscription have impacted on the ethos of voluntary military service. Former conscripts, their families and their employers have a negative attitude towards military service. Such perceptions have to be changed if the voluntary part-time service system is to be effective and successful.
YOUTH
101. The new PTC will need to launch a systematic out-reach programme for youth, including school-going youth, in order to create awareness of the PTC, cultivate future recruits, and contribute to nation-building by offering young people the opportunity of self-betterment, a disciplined environment, access to new experiences, comrdeship and access to role models.
102. The DOD should act in concert with the PTC and the Commission on Youth in each province to develop and sup-port youth programmes which have the purpose of enriching youngsters' lives, developing leadership qualities and skills, and teaching them elementary military values related to future PTC service.
STRUCTURAL TRANSFORMATION
103. The future PTC will have to satisfy three requirements:
103.1 It must fit the eventual force design of the SANDF as a whole.
103.2 Where possible, existing units must remain in place to assist the integration process and transfer their expertise.
103.3 New units must be established to broaden the geographic and demographic base of the PTC.
104. The disbandment of existing units is a sensitive subject which is linked to both community sentiment and PTC transformation.
105. The existing PTC could be made to fit almost any force design without disbanding a significant number of units, and still remain cost-effective. Various alternative procedures have proved successful in South Africa and elsewhere in the world, and would enable the SANDF to accommodate both existing and new units within a reasonably-sized force design.
106. The PTFC and existing PTC units should continue to be consulted on rationalisation and optimisation affecting the PTC.
107. Procedures for closing down, amalgamating and merging structures should continue to be agreed on by all the PTC stakeholders before decisions are taken in respect of particular regiments and units.
108. In any rationalisation of the PTC, consideration should be given to, inter alia, the regiment's current effectiveness, future force design, history, traditions, civic honours, current location, representativeness and recruiting potential.
109. The recommendations outlined above are being incorporated into the Army's guidelines regarding the investigation and implementation of the restructuring of PTC regiments and units.
TERRITORIAL UNITS
110. Special mention needs to be made of the commandos, which now form part of the territorial units, in view of the sensitivity surrounding their name and perceived role. This sensitivity derives from the perception in certain quarters that the commandos were politicised during the apartheid era through frequent deployment in support of the police.
111. However, these community-based units proved their loyalty to the government of the day through a strong voluntary turnout to guard polling stations and voting materials in the 1994 national election and the 1995 and 1996 local elections. The units have also provided valuable support to local authorities in flood and snow relief. They have co-operated on a large scale with the SAPS to fight crime.
112. In fulfilling these functions the territorial units proved that a nation-wide community-based organisation can play an important and cost-effective role in peace-time and provide an internal security service for the defence force in times of war or emergency.
113. The concept of territorial units is of immense importance for both the transformation and defence needs of the Republic. They are intimately integrated into, and drawn from, the community, and can contribute to the transformation and representivity of the PTC. Such units, being community-based, will reflect the communities from which they are drawn and which they serve.
114. Many of these units have been racially integrated for some years, and are in the process of extending their operational capabilities to cover all sectors and areas of the community. For example, 12 new units have been established in the former ,homelands'.
115. The transformation of the territorial units into units which are fully representative of South Africa's population makes them an important priority for the future PTC.
116. It is of utmost importance that the territorial unit system be extended to cover all communities, including former disadvantaged communities, that the units be broadly representative and integrated to perform the task of area defence, as well as cooperating with the local community, local authorities and the SAPS; that all members adhere to the constitutional imperative that military personnel must be politically non-partisan; and that all members be exposed to the civic education programme on defence in a democracy.
RESOURCE ALLOCATION
117. Allocation of resources to the PTC is still based on the pre-1990 era which consisted of compulsory service, operational deployment, long annual training camps and minimum expenditure on headquarter facilities. As a result, there is insufficient emphasis on the aspects which are essential for the success of the all-volunteer PTC. Although many items in the SANDF budget are utilised for or in support of PTC administration, training and infrastructure, the direct apportionment of resources to the PTC should be improved. The current level of funding is far below the minimum level required.
118. PTC unit commanders should be involved in the structuring and management of the budgets of their units.
119. An investigation should be undertaken to determine the capital and operating budgets per PTC unit. Within the operating budgets of each unit there is a need to differentiate between fixed and variable overheads. Units should have control over their budgets and must be given the tools to manage actual expenditure against their budgets; however, higher authority should continue to exercise control over their financial planning and expenditure.
120. Unsuitable accommodation for PTC units should be upgraded. This is a source of contention for some regiments and units. Volunteers are attracted to the units with which they associate. Units require adequate accommodation to succeed with their recruiting plans. In many countries unit headquarters are seen as a major drawcard in attracting volunteers.
121. PTC units should have access to weapons, vehicles and equipment for training.
122. Funds for uniforms for traditional regiments should be made available and the issue of camouflage uniforms for PTC members should be expedited.
123. Adequate funding for the Voluntary Part-time Military Service System which is focused on the recruitment and training of PTC volunteers is essential to ensure its success.
SERVICE CONDITIONS AND BENEFITS
124. One of the important factors which will determine the success or failure of the voluntary PTC of the future will be the pay, allowance, benefits (including medical benefits) and legal protection offered to its members while rendering continuous or non-continuous military service.
125. As in the case of the FTC the conditions of service of the PTC should be adequate to attract and retain sufficient volunteers to maintain anticipated force levels, and may therefore need to be revised periodically.
126. The provision of adequate pay, allowances and other incentives, would facilitate the recruitment and retention of quality people in the PTC and would encourage more binding service contracts being instituted.
127. PTC pay should be on a par with FTC remuneration, including fringe benefits which are appropriate to PTC service, and should take into account the member's length of service.
128. The establishment of a pension or a provident fund for PTC volunteers should be addressed based on the number of PTC volunteers whose length of service indicates a commitment to long term PTC service.
129. The volunteer service bonus system should also be revised based on the above information. The bonus should be sufficient to allow the acquisition of a major appliance by the recipient or contribute significantly towards an annual holiday, as originally envisaged. The bonus should be increased substantially in the third year of service to encourage retention. In the UK the ,bounty system' operates on this basis and personnel turnover is reduced substantially after the third year.
130. PTC pay should be tax free or taxed at the lowest marginal rate of taxation and should be taxed separately from the member's civilian salary so that he/she is not pushed into a higher tax bracket. These matters should be taken up by the DoD with the Department of Finance.
131. Suitably qualified young people should be granted full or partial study bursaries for university, technikon and other courses if they undertake military training for a certain period after graduation. Britain applies this system successfully in conjunction with Sandhurst and officer training for the Territorial Army.
132. To attract the right calibre of PTC volunteers from all communities and especially from disadvantaged groups, the travel allowance scheme should be improved and simplified.
133. Legal protection for volunteers should be strengthened through a moratorium on certain debts during periods of extended call-up; protection against summary termination of a lease by a landlord in the absence of a volunteer while on call-up; and discrimination in the civilian work place.
TRAINING
134. The following concepts are contained in the Army's training philosophy for the PTC, and the implementation of several of these concepts is in an advanced planning stage.
135. While attractive service conditions and adequate resources can do much to ensure the maintenance of high standards and efficiency in the new PTC, the only way to attain these standards is through proper training.
136. Training in an all-volunteer force differs vastly from that in a conscript organisation. It has to be interesting, challenging and user-friendly. Above all, it must take account of severe restrictions on the time of PTC personnel. It should also make provision for the greatest degree of decentralisation.
137. The period of annual training must be balanced carefully so as to achieve the required efficiency goals without being so onerous as to lead to a falling-off of enthusiasm.
138. The PTC should be involved in the planning and design of training down to regimental or unit level.
139. Negotiations should be initiated with the relevant controlling bodies to gain ciilian recognition for the widest possible range of military skills (eg drivers, medical orderlies, military police).
140. The PTC should be involved in planning and designing training programmes.
141. Training should be decentralised as far as possible.
142. The following training should be implemented in the long-term:
142.1 Basic training for untrained recruits, decentralised to command, formation and unit levels.
142.2 Non-continuous training on week nights and weekends.
142.3 Continuous training of up to 14 days in the member's local area or further afield.
142.4 Short training courses of 7 to 14 days to instruct members in new skills or to qualify them for promotion.
142.5 Extended training courses of 21 days in modules to qualify members for senior promotion. General training courses and staff training for senior promotion should be conducted in modules of short enough time periods to suit senior civilian executives.
142.6 Distance training through correspondence to supplement the above and reduce time scales. A practical phase is also essential.
143. The desirability and feasibility of re-establishing University/Technikon Units should be considered as a means of attracting leaders into the PTC.
144. Training schemes along the lines of the Reserve Officer Training Corps Scheme in the USA could also be considered.
145. The necessary training facilities, equipment, instructors and funding to carry out meaningful PTC training will have to be provided.
EMPLOYER/ORGANISED LABOUR SUPPORT
146. In a large number of cases, private and public employer attitudes towards the PTC are negative. There are several reasons for this: insensitive handling during the national service era; the perception that employees ,waste' their time in service; the perception that the PTC is no longer needed; and a lack of tangible incentives for employers.
147. As a result of these negative attitudes, certain government and other public and private institutions have restrictive human resource policies which prevent or discourage their employees from volunteering for military service.
148. The establishment of a national employer support committee will go a long way to changing employer attitudes to the PTC. Organised labour should become part of such a committee and launch an initiative to support their members who volunteer for part-time service.
149. The national employer support committee initiatives should be supported by employers and organised labour in both the public and private sectors to encourage employees to volunteer for PTC service thereby contributing to the establishment of a successful and effective PTC.
150. The Minister should propose to Cabinet that an urgent audit of the human resource policies of all government departments and state-owned corporations be undertaken in relation to part-time military service, and that restrictive practices be eliminated.
151. Strategies should be developed in conjunction with the national employer support committee and the PTFC to establish a feasible, affordable and easily administered agreement regarding minimum concessions and job-protection policies for workers who are PTC members, and incentives for employers who support voluntary part-time service.
MARKETING
152. Marketing is an integral part of voluntary part-time service. The SANDF has instituted a marketing plan under the direction of the Chief Director Corporate Communications.
153. There should be a detailed marketing plan established at corporate level involving the entire DoD. The plan should incorporate the following:
153.1 Co-ordination with and involvement of the PTFC.
153.2 A national awareness campaign promoting the benefits of voluntary part-time service for South Africa and the reconstruction and development process.
153.3 Decentralised regional campaigns set up in conjunction with the recruiting programmes and involving the regional marketing forums.
153.4 Co-ordination of marketing with the establishment and promotion of the national employer support committee.
153.5 The SANDF should determine a specific budget for marketing. The amount should be substantial, and outside agencies should be consulted.
INTERNATIONAL AFFILIATIONS
154. Up to 1961 a long-standing network of formal affiliations and alliances existed between South African regiments and full-time as well as part-time regiments of the British Army. These lapsed when South Africa left the Commonwealth but were unofficially maintained in almost all cases. The SANDF has now re-instated these affiliations.
155. However, there is not yet clear policy on new affiliations and alliances which have arisen during the past 30 years within both the SADF and the former non-statutory forces. These represent important relationships for the PTC and the entire SANDF.
156. Bodies within the PTC have forged links with several overseas organisations. For example, the Reserve Officers Association of South Africa has linked up with the International Confederation of Reserve Officers. Such contacts are extremely important and useful for the SANDF.
157. The DoD should develop a coordinated policy with regard to international PTC affiliations, based largely on the priorities determined by the SANDF military diplomatic plan and its policy in respect of affiliation with foreign military units.
MILITARY VETERANS
158. Members and formers members of the PTC are members of various veterans organisations. Although PTC veterans qualify for veteran benefits, there is no clear definition of how or when a PTC member qualifies as a veteran (eg do all ex-servicepersons, irrespective of origin, qualify as veterans?)
159. There are internationally accepted definitions of veteran qualifying service.
160. Veteran programmes require support from both government and veterans organisations.
161. The DOD, in conjunction with the Council of Military Veterans' Organisations, should define who qualifies as a PTC veteran and then create benefits for these people.
162. Benefits for PTC veterans should be the same as for any other military veterans, and details of these benefits should be contained in PTC service conditions.
163. Medical and social care should be provided for full-time and part-time veterans who suffered disabilities in service (whether in action, on training or in accidents).
CONCLUSION
164. In an era when many nations are turning to the part-time citizen-soldier as a means of maintaining defence capabilities in a cost-effective way, South Africa is fortunate in having a PTC and an immense treasure of experience in maintaining and using such a force.
165. The PTC, and especially the conventional component thereof, currently faces its major challenge to date: to move away from a conscript-based system for white males to a voluntary system which mirrors the ,Rainbow Nation'. (The commandos have already made substantial progress in this regard).
166. Achieving the ideal of a ,Rainbow PTC' as an integral and productive part of the SANDF will require the co-operation and participation of a broad range of stakeholders. These extend from the Ministry of Defence, the Joint Standing Committee on Defence, the SANDF, the PTFC and the ROASA, to members of the community.
167. While an effective PTC can be very economical, there is a certain level of funding below which it cannot be expected to fulfil its obligations. Whatever the level of funding required by the PTC, it is a relatively small percentage of the overall defence budget.
168. In the final analysis, the success of the PTC will depend on its ability to recruit and retain volunteers to fill the required number of posts within the PTC as an essential component of the SANDF.
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