Understanding South Africa's foreign policy: the perplexing case of Zimbabwe

Many who have admired the African National Congress are confused and dismayed by post-apartheid South Africa's foreign policy on human rights and good governance, exemplified by its most important policy test to date, viz. Zimbabwe. It is argued below that understanding this policy in terms of the widely-used explanation that it represents ‘a shift from idealism to realism’ is unsatisfactory. This state-centric framework, focused on ‘national’ interests and ideals cannot accommodate the wide range of interests, ideals, and other factors that shape the policy. Instead, this investigation assumes that all foreign policies involve a close interaction between ‘realism’ (interest-driven analysis) and ‘idealism’ (beliefs/values-driven analysis). In addition to exploring this interaction, this paper also touches briefly and tentatively on the following questions: how well has South Africa's foreign policy been calculated and implemented, and what have been its effects and consequences for South Africa, Zimbabwe, and the ‘progressive’ international norms to which both South Africa and many of its critics subscribe. A subsidiary aim is to clarify some misunderstandings between South Africa and the West that frequently lead to their ‘talking past each other’ on this, and other, issues of human rights and good governance.     

IBSA's trilateral constellation and its development fund: Valuable pioneers in development cooperation?

With a changing geopolitical landscape following the Northern-induced global financial meltdown, stagnation on global governance reform and failure to reach agreement on issues ranging from trade (Doha Development Round) to climate change (United Nations Convention on Climate Change), the India–Brazil–South Africa (IBSA) Dialogue Forum finds itself at the proverbial crossroads. At this point, with no summit having taken place since 2011, the future of IBSA is uncertain in part because the three IBSA partners have allowed ambivalence and lack of leadership to hold sway. Yet the current fluidity in the international environment has ironically meant that IBSA is more relevant and needed than ever before. IBSA is well placed to play a vital role in arresting the current trajectory of the global governance architecture, particularly when it comes to concerns of development. As this article argues, it is in the area of development cooperation that IBSA has found its niche in demonstrating the possibilities that development diplomacy and South–South cooperation avail, while challenging traditional norm conceptions when it comes to the future of international development financial institutions. Yet the question remains as to how this will be used going forward, as there is little strategic discussion between the trilateral partners on the future of development diplomacy and the IBSA Fund.     

Foreign aid,debt relief and Africa's development: problems and prospects

In recent years, the Paris club granted a number of African countries, including Nigeria, debt relief. This elicited widespread celebration in the capital cities of affected countries, where it was portrayed as a veritable launch-pad to Africa's development. This paper takes a critical look at the debt relief, with emphasis on its problems and prospects for Africa's development. It is argued that while debt relief does offer some prospects for development, there is little or no evidence to suggest that such an outcome is automatic. The conditions that precipitated the debt crisis in the first instance, including an inequitable international economic order and political conditions tied to aid, are still very present in the debt relief regime. Corruption of the foreign aid regime by both internal and external actors has been compounded by the recent global economic crisis, posing further constraints on the effectiveness of foreign aid in Africa. If debt relief must yield the desired result, it has to be accompanied by a sustainable campaign to fundamentally reform the world order to make it more equitable, together with a drive for good governance that is not only democratic, but also efficient and development-oriented in Africa.     

South African foreign policy and China: converging visions,competing interests,contested identities

South Africa's burgeoning relationship with China exposes the increasing complexities of its post-apartheid international relations. On one hand bilateral relations have deepened since 1998, due to the increasing complementarities with South Africa's foreign policy priorities that emphasise developmental pragmatism and a Southward orientation within the broader African context. On the other hand this relationship emphasises the deeper schisms within South African society itself, where divergent and multi-layered perspectives on South Africa's post-apartheid identity and relationship with China, the country's largest trading partner, remains unresolved. This article maps out the nature of China–South Africa relations through a thematic approach. This allows for nuanced consideration of South Africa's contemporary foreign policy, one that remains compressed between a combination of external and domestic factors.     

Good governance and democratic leadership for an African Renaissance: A reflection on AU member states’ compliance with the AUCPCC

Abstract

After decades of corrupt post-colonial governance, African leaders collectively acknowledged that good governance was a prerequisite for African renewal and required an unprecedented fight against corruption prevailing on the continent. The Constitutive Act of the African Union (CA-AU) features good governance among its objectives and principles. Good governance was stressed further in subsequent AU instruments adopted within the framework of the New Partnership for Africa's Development (NEPAD) and its African Peer-Review Mechanism (APRM). AU leaders’ commitment to fighting corruption culminated in the adoption of the African Union Convention on Preventing and Combating Corruption (AUCPCC).

As Africans prepare to commemorate the first decade since the adoption of the AUCPCC, this article reflects on AU member states’ compliance with this instrument, the challenges, and the prospects for a successful fight against corruption. It argues that despite some progress made, this scourge remains unabated and has even aggravated. Most African states have failed to comply fully with the AUCPCC. However, the fight against corruption should be strengthened with the participation of all the stakeholders at national, regional and international levels. Partnerships have to be built and consolidated without neglecting the crucial contribution of the people under a democratic leadership committed to good governance in order to achieve an African Renaissance in the 21^st century.     

South Africa’s multiple faces in current climate clubs

Climate clubs emerged as a concept to revitalise the international climate change negotiations under the United Nations Framework Convention on Climate Change and mitigate the free-riding problem. The underlying idea suggests that countries committed to reducing emissions can advance a stable coalition in the form of a club with other countries. As a result, more countries would put forth targets for more ambitious emissions reductions. This article analyses South Africa’s memberships in current climate related clubs. We contextualise South African climate club governance in its wider geopolitical and national context of low-carbon development. The purpose of the analysis is to identify if and how South Africa can possibly contribute to advancing ambition for change within climate clubs. Furthermore, it advances ideas about possible design options for climate clubs that may appeal to developing countries.     

THE RENAISSANCE FACTOR IN SOUTH AFRICA AND THE CHANGING LANDSCAPE OF AFRICAN REGIONAL GOVERNANCE (1999-2008)

ABSTRACT

This article examines a likely South African hegemony in Africa between 1999 and 2008. Hegemony is admittedly difficult to define in African regionalism studies, as it is counter intuitive to Pan-Africanism discourse. However, this article aims to show that hegemony can be a credible argument in explaining the South African driven changes that occurred in African regionalism between 1999 and 2008. The article locates key characteristics which underpin arguments of South African hegemony during the study timeline. It argues that Thabo Mbeki's governance philosophy of African renaissance was the central piece of South African Africa foreign policy that distinguishes this period from any other before or after it. By establishing hegemonic credibility in South Africa's interaction with Africa in this period, the article demonstrates how South Africa was able to contribute to transformational governance changes in Africa. This also holds lessons for South African regional ascendancy in the future.     

South Africa's bilateral relationships in the evolving foreign policy of an emerging middle power

This article introduces the special issue on ‘South African Foreign Policy: identity, directions, and intentions’. Here we seek to summarize key insights from the contributions to this special issue to deepen understanding of South Africa’s evolving post-apartheid foreign policy through an exploration of the nature and trajectory of key bilateral relationships from both the global ‘South’ (Brazil, China, Iran, the AU) and ‘North’ (Japan and the UK). This window on the country’s international relations enriches understanding of the normative and structural factors that influence not only South African foreign policy, but those of what Edouard Jordaan calls emerging middle powers as they seek to position themselves as influential actors in international affairs. We sketch the contours of these key South African relationships in four areas where the tendencies and tensions of emerging middle power foreign policies are apparent: regionalism, multilateralism, reform of global governance, and approach to moral leadership.     

The evolution of EU–South Africa relations: What influence on Africa?

South Africa and the European Union (EU) have a longstanding relationship. Their interaction has evolved through various phases, characterised simultaneously by ambitious partnerships coupled with a degree of wariness. As international dynamics change and Africa becomes an increasingly crucial player in global politics, the relationship between the EU and South Africa exerts a host of influences on how Africa and Europe relate to each other. This article discusses the evolution of EU–South Africa relations and highlights direct and indirect influences that this relationship has on the inter-regional partnership between Africa and Europe.     

The China–South Africa Bilateral Investment Treaty: National rule of law versus international rule of law

This article analyses the primary provisions of the China–South Africa Bilateral Investment Treaty (BIT) and illustrates that this BIT differs in many ways from South Africa’s BITs with Western countries. Given current shifts in international investment policy and law in both South Africa and China, this article suggests that it is necessary to carefully consider the future of the China–South Africa BIT, ultimately arguing that South Africa should adopt differential policies towards the China–South Africa BIT by maintaining or updating the existing BIT between these two nations. An updated BIT could act as a model for future South–South BITs and should integrate new elements which are in line with the development of international investment law, maintain a balanced interest between the host state and foreign investors, and conform to the fundamental realities of the partner countries.     

Foreign policy options for a new South Africa

Progress towards the creation of a post‐apartheid South Africa raises questions about future foreign policy. In this article a framework for analysis and forecasting is developed. The basic assumption is that a future foreign policy will be driven by the kind of regime which will emerge in a New South Africa. Such a regime will have to develop foreign policy orientations to deal with its regional and global environments and the manifestation of a variety of foreign policy issues in these environments.

A semi‐democracy is foreseen for a New South Africa which will adopt a regional leadership oreitnation towards its neighbours and a consumer orientation towards the global community. The framework makes provision for regime improvements which will lead to fuller international participation or regime decline which will result in international marginalisation.     

The rise of BASIC in UN climate change negotiations

This paper assesses the role of the BASIC countries — Brazil, South Africa, India, and China — in UN climate change negotiations. The paper explores the formation and evolution of the group, and focuses on how the four major developing countries of China, India, Brazil, and South Africa have coordinated their positions and acted jointly to achieve an agreed outcome with other players in the recent UN Climate Change Conferences in Copenhagen and Cancun, based on an analysis of their country profiles and negotiation positions on a wide range of climate issues. The paper argues that the emergence of the BASIC Group is a reflection of the ongoing power shift from EU–US agreement to BASIC–US compromise in UN climate negotiations since the early 1990s. The rise of BASIC also has its roots in recent global market dynamics and further reflects the power transformation in the economic dimension of the international system.     

South Africa's financial and economic prospects for the next five years

South African dominance of trade in Africa as well as its position as a regional hegemon was entrenched by the Trade, Development and Cooperation Agreement (TDCA) with the European Union in 1999. South Africa's full-blown integration into the BRICS (Brazil, Russia, India, China, South Africa) formation since 2011 has brought new dynamics, however, as South Africa now has a marked BRICS orientation. Although the European Union (EU) as a bloc is still South Africa's largest trading partner, China has become South Africa's largest single-country trading partner. The question arises as to whether this new found loyalty makes sense in terms of South Africa's regional position and its trade prospects. Against the background of more intra-industry trade with the EU and the new and growing inter-industry trade with the other BRICS economies, South Africa's trade share of African trade has been in relative decline. This study uses an international political economy framework to analyse South African trade hegemony based on the TDCA and the possible effects of a shift towards BRICS. The conclusion is that, although the shift towards BRICS can politically be justified, economically it should not be at the expense of the benefits of the more advantageous relationship with the EU.     

South Africa,the South Atlantic and the international politics of Antarctica

Existing analyses of South African foreign policy have neglected the geopolitical and legal dimensions of the Antarctic and South Atlantic. Emphasis will be placed on three aspects ‐ South Africa and the Antarctic Treaty System (ATS); the ongoing debates about a South Atlantic security pact in the 1960s and 1970s and the international condemnation of South Africa by the Developing World in the 1980s. The article concludes with a examination of future prospects for the only African country involved in the polar continent.     

‘Very Brave or Very Foolish’? ‘Gallant Little’ Botswana’s Defiance of ‘Apartheid’s Golden Age’, 1966–1980

The period from 1966 to 1979 is claimed to have been ‘apartheid’s golden age’ when the anti-apartheid forces were alleged to have largely acquiesced in the well-resourced South African government. However, this paper observes that Botswana, a country of about one million people and almost entirely surrounded by extremely hostile white minority regimes, demonstrated a spirit of defiance to apartheid’s golden age. Botswana defied military intimidation and reprisals from South Africa (an African giant) and its ally Rhodesia by continuing to host large numbers of refugees despite Botswana’s severe budgetary constraints. Botswana did this even though it was landlocked and overwhelmingly dependent on South Africa for economic survival. Botswana felt that it was a moral obligation to make sacrifices for the benefit of the oppressed black people of South Africa. This article attempts to demonstrate that despite being defenceless and dependent on South Africa for economic survival, Botswana did not yield in its principled stand against apartheid, a stand which won international acclaim during the period from 1966 to 1980 – apartheid’s golden age. It concludes that in its own small way Botswana demonstrated that apartheid was not entirely invincible.     

Ecologies of relation: post-slavery,post-apartheid,and rethinking race across the Atlantic in Zakes Mda’s Cion

This article will argue that Zakes Mda’s 2007 novel Cion stages a dialog, one where two “Souths” – South Africa and the American South – speak to one another and give a critical voice to an under-acknowledged history of transatlantic discursive exchange on race and racial governance. Mda’s fictional South African critique, of an America still struggling with the cultural and political legacies of slavery, gestures towards a history of exchange between the two countries that in many ways is representative of a more global dialog on racial segregation during the first half of the twentieth century – of which both southern (US) segregation and apartheid are seminal examples. Moreover, this article explores various conceptualizations of race as well as the governance of racial relations as they have been articulated through ecological imaginaries, and especially between South Africa and the Southern United States over the course of the twentieth century. In this article, I argue that not only can apartheid (as well as pre-apartheid segregation) be rethought of as part of a global conversation on race and thus less as a South African anomaly, but also that the United States through its examples of various racialist technologies was highly influential across the colonial and apartheid worlds.     

Foreign policy without the policy? South Africa and activism on sexual orientation at the United Nations

Although South Africa led the UN to adopt its first resolution on sexual orientation in 2011, in recent years, South Africa has made various sharp foreign policy reversals on issues related to sexual orientation and human rights. This article discusses five such policymaking episodes over the period 2010–2016 and considers the wider implications of South Africa's flip-flopping. For one, South Africa's recent behaviour on international sexual orientation issues suggests that the foreign policymaking environment in South Africa is weak, unstructured and porous. Moreover, the sexual orientation issue exposes the limited scope South Africa has to act as a representative of Africa, as a leader in the developing world and as a bridge-building middle power.     

South Africa’s Inclusion in BRICS: Challenges and Prospects for Development in Africa

Abstract

The forming of alliances on the international scene has reflected a provisional arrangement in the world economy. Amongst such alliances was the formation of BRICS by the five world economies—Brazil, Russia, India, China, and South Africa into what is commonly known as BRICS. BRICS is considered a joint initiative, aimed at shifting conventional norms in international economic and political cooperation to create a new trans-continental platform for these actors. Each member country in BRICS has, in one way or another, reflected growth either through its economy foreign policy, and developmental pursuit. However, South Africa is portrayed by some researchers as lagging behind, when compared to the other member countries. Hence, this study sought to analyse the potential mediumand long-term implications of South Africa's inclusion in BRICS. The study also aimed to underscore the benefits and risks associated with South Africa's membership in the alliance in the area of development; specifically poverty reduction, foreign policy, trade, and global partnership. The researchers collected secondary data to analytically critique the inclusion of South Africa in the BRICS alliance, its benefits, and shortcomings for development in South Africa, and in Africa as a whole. We argue that as a global player under BRICS, South Africa has opened a new vista of opportunities, including transnational gateways to Brazil, Russia, India, and China, with the attendant inflow of infrastructural and developmental investments, enriching educational exchanges and technology transfers. The article concludes by stressing the need for South Africa and other African countries to formulate policies that will drive meaningful development in their respective countries. The authors recommend that African leaders should come up with innate policies that are Africa-centred, that would incite development internally.     

Democracy promotion through regional organisations: A missed opportunity for South African and Brazilian leadership?

What role do regional powers Brazil and South Africa play in democracy promotion in their respective regions, South America and Africa? While both Brazil and South Africa played an important role in building regional institutions’ normative frameworks for democracy promotion, most notably within the Union of South American Nations and the African Union, their leadership applying these frameworks within regional organisations is inconsistent. South Africa is trapped between regional and global expectations; Brazil’s leadership lacks commitment. The interplay of domestic, regional and international politics needs to be scrutinised to explain why South African and Brazilian regional leadership falls behind expectations.     

The Asian Rejection?: International Refugee Law in Asia*

The majority of Asian states have not signed onto the major international refugee law instruments which promote refugee recognition and protection. Yet, second to Africa, the Asian region has had the highest number of refugees since the Second World War. Three explanations are usually offered to explain this puzzle —“good neighbourliness”, “economic costs” and “social disruption”. In this article I argue that each is flawed in important ways and then develop an alternative by explaining how limited Asian involvement in the drafting of international refugee law has led Asian states to reject Eurocentric refugee recognition practices.