Economic statecraft in South Africa's regional diplomacy

This paper considers the extent to which South Africa utilises positive economic statecraft to promote human rights in the region – that is, the degree to which it mobilises its economic engagement to affect a desirable political outcome in its foreign engagements in Southern Africa. The country's reaction to crises in Zimbabwe and Swaziland over the past 20 years is a strong indicator of the limits of South Africa's statecraft in this regard. These engagements highlight the inevitable clash between the country's principled preference for ‘non-interference’ in the affairs of sovereign states and its constitutional mandate to respect and promote human rights. Despite eschewing the role of ‘regional hegemon’, there is an expectation that South Africa will play an integral role in securing regional stability. Yet there is little evidence to suggest that the country chooses to approach resolving regional challenges with a co-ordinated political and economic approach. This paper argues that, to be more effective in spreading a progressive regional agenda that encourages democracy, governance and human rights, South Africa needs to incorporate a stronger element of positive economic statecraft in its foreign policy implementation.     

Sub-state diplomacy and the foreign policy-development nexus in South Africa

This article examines the role of sub-state diplomacy, defined as the transnational linkages of sub-national governments, in bridging the gap between foreign policy and the domestic development agenda in South Africa. It argues that, as territorial sub-state actors, provinces and municipalities are strategically positioned to use their international relations to make foreign policy more responsive to domestic socio-economic priorities. In the South African case, however, this potential is yet to be fully realised, mainly because of institutional fragmentation of the foreign policy apparatus, but also owing to enduring challenges in the foreign activities of sub-national governments. The article concludes by making the case for a new diplomatic paradigm in South Africa, one that actively promotes and harnesses the foreign activities and capacities of different national stakeholders, including those of sub-national governments, in the interest of the domestic development agenda.     

Ubuntu,public policy ethics and tensions in South Africa's foreign policy

This article examines the practicability of Ubuntu in public policy, in particular the domain that concerns South Africa's external relations. The authors contend that advancing Ubuntu in a world that is increasingly fractured along identity lines, marked by anxiety and characterised by realism and interplays of power is an ideal worth pursuing. This article shows that there is dissonance in South Africa in the rhetoric that champions Ubuntu and the actual policy practice in crucial dimensions. The authors not only set out to mark the contours of the disjuncture between the rhetoric of Ubuntu and its application in both public policy and foreign policy, but also make a case for advancing Ubuntu as an integral part of public policy and a standard against which to measure success.     

Pragmatic internationalism: public opinion on South Africa's role in the world

This report of a public opinion survey on South Africa’s foreign policy did not attempt to gauge South Africans’ knowledge about specific issues in international politics, but rather their underlying attitudes, specifically their foreign policy postures. After providing a brief overview of the scholarly debates about the role of public opinion in foreign policy analysis, we contextualise the nature and methodological approach of the survey. Thereafter we organise the article according to three key themes that illuminate ‘ordinary’ South Africans’ foreign policy postures and how South Africans view their country’s international identity. These themes include, first, debates about what the purpose of our foreign policy should be; second, the country’s international role; and third, who South Africans consider to be our allies and role models. Finally, we distil possible patterns emerging from the survey into a posture that we relate to two concepts: ‘pragmatic internationalism’, and a ‘middle power role’.     

A battle of principles: South Africa's relations with Iran

This paper provides a detailed case study and theoretical explanation for one of the least appreciated bilateral relationships of democratic South Africa. It analyses South Africa's post-apartheid relations with Iran as a case study to illustrate and discuss the contradictory principles that appear to guide South Africa's foreign policy. South Africa's tempered reaction to Iran's nuclear programme is in contradiction with its non-proliferation stance, but can be understood by looking into the ideology of the ruling African National Congress.     

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.     

South Africa and Japan: maintaining a difficult friendship

Japan's economic and political relationship with South Africa has been characterised historically by ambiguity. Throughout the twentieth century, economic ties were underpinned by mercantilist and strategic considerations. During apartheid, this placed Japan in an uneasy position as it sought to balance a relationship of expediency with wider foreign policy objectives in the rest of Africa and beyond. The demise of apartheid created the space for new forms of engagement centred on the pursuit of cognate goals. This has seen the intensification and deepening of economic ties in particular. Yet relations, especially at the political and diplomatic levels, have also been more complex than anticipated, and in recent years, the rise in Africa of other players from Asia and the Global South has had a bearing on South Africa–Japan ties. In this paper, it is argued that two related dynamics pivoting on policy elites’ changing conceptions (or self-view) of the nature of the state they are running and its place in the wider world order help explain the post-apartheid evolution of the South Africa–Japan relationship. First, there has been an apparent shift in South African foreign policy elites’ self-view, mediated by a changing systemic context. The development and manifestation over time of a stronger Global South self-conception in South African foreign policy, fashioned in juxtaposition to what have been considered in the past key Global North relationships, had direct consequences for South Africa–Japan ties. Second, meso- and micro-level dynamics – the role of the general operations in the diplomatic (i.e. bureaucratic) arena, and the personalities and shifting political preferences of individual executive leaders – had major impacts on how South Africa engaged with Japan in the past two decades.     

The 1999 Kosovo war through a South African lens

The time has come for ineffective and partisan regional intervention in the worsening tragedy in Zimbabwe to be replaced by an international initiative through the United Nations.     

The foreign policy and intervention behaviour of Nigeria and South Africa in Africa: A structural realist analysis

This article assesses the foreign policy and intervention roles of Nigeria and South Africa in Africa, given their status as regional powers, and the regional complexes within which they operate. Drawing references from a plethora of conflicts in which these two states have intervened, this article argues that structural realism, given its emphasis on the material structure of power and the pursuit of relative gains, is useful as a theoretical framework in this assessment. The article makes a contribution to the literature by illustrating the value of structural realism as an international relations (IR) approach within which the intervention behaviour of these two African states can be analysed. The author acknowledges that while structural realism points to the fact that the pursuit of relative gains may be behind the normatively-clad role conceptions of states, foreign policy cannot be reduced to the pursuit of relative power alone.     

Nuclear diplomacy as niche diplomacy: South Africa's post-apartheid relations with the International Atomic Energy Agency

Since the termination of its nuclear weapons programme, commenced in 1989 and verified by the International Atomic Energy Agency's (IAEA) in 1993, successive South African governments have consistently advocated the country's commitment to nuclear non-proliferation. South Africa has secured a niche role through norm construction and state identity for itself through its nuclear diplomacy with the IAEA. The article explores aspects of South Africa's nuclear diplomacy with the IAEA as an example of niche diplomacy. Therefore, it traces South Africa's diplomatic relations with the IAEA, starting with the IAEA's verification process and the implementation of a Safeguards Agreement (1989–1994) through the conversion of South Africa's research nuclear reactor (1991–2005); South Africa's position on greater representation for developing countries on the IAEA's Board of Governors; its ambition to be elected to the position of IAEA Director General (2008–2009); and its refusal to support the establishment of a nuclear fuel bank in Russia under the IAEA's auspices (2009–2010).     

The weak domestic base of South Africa's good global citizenship

The self-appointed role of good international citizen that South Africa has played since 1994 is the external corollary of its supposed good governance at home. Weaknesses in domestic governance have, however, been evident since early in the life of democratic South Africa. These problems have become more acute, and internal dissatisfaction with and external awareness of ‘poor service delivery’ in South Africa have grown since 2009 when Jacob Zuma became president. The article illustrates that South Africa fails to meet core criteria of good governance and considers the implications of weak governance for the Republic's good international citizenship.     

Explaining South Africa's Bill of Rights: an interpretive approach

Ideational approaches to politics are frequently criticised for indeterminacy. In comparative constitutional politics, critics have alleged that the ‘human rights revolution’ cannot explain why bills of rights were adopted in different places and different times. Ideational scholars have not responded convincingly. Focusing on the famous South African case study, and drawing on theories of belief formation and legitimation in interpretive political science, this paper argues that new beliefs can be explained by historically specifiable dilemmas. It uses process-tracing to show how scholars have mistakenly assumed that key players in the post-apartheid transition only adopted beliefs in rights in order to rationalise interests.     

Between transitional justice and politics: Reparations in South Africa

ABSTRACT

Reparations are a major component of transitional justice in the aftermath of widespread abuse. However, the implementation of reparations programmes often follows the logic of transitional politics, where short-term political interests trump victims’ rights. Using the South African case as a cautionary tale, this article shows that reparations are susceptible to political instrumentalisation and evaluates the role of international redress norms in safeguarding victims’ rights. Civil society groups have used the right to reparations as a basis for political contestation of inadequate reparations programmes and focused primarily on the broadening of redress norms. However, the existing international legislation fails to protect victims’ rights to reparations from political manoeuvring. In conclusion, the article highlights the need for international redress norms to be consolidated and made more concrete in order to more effectively circumscribe the scope states have to avoid meeting their reparations obligations.     

Regional power South Africa: Co-operative hegemony constrained by historical legacy

This article argues that regional powers can be distinguished by four pivotal criteria: claim to leadership, power resources, employment of foreign policy instruments, and acceptance of leadership. Applying these criteria to the South African case, the crucial significance of institutional foreign policy instruments for the power over policy outcomes at the regional and global level is demonstrated. But although Pretoria is ready to pay the costs of co-operative hegemony (capacity building for regional institutions and peacekeeping for instance), the regional acceptance of South African leadership is constrained by its historical legacy. Additionally Pretoria's foreign policy is based on ideational resources such as its reputation as an advocate of democracy and human rights and its paradigmatic behaviour as a ‘good global citizen’ with the according legitimacy. The Mbeki presidency was more successful in converting these resources into discursive instruments of interest-assertion in global, than in regional bargains. In effect the regional power's reformist south-oriented multilateralism is challenging some of the guiding principles of the current international system.     

Understanding Brazil's new drive for Africa

Following a period of some distancing through the 1980s and 1990s, Brazil has made a concerted effort to engage with Africa. Today, under the leadership of President Lula, Africa is clearly a priority, especially as Brazil emerges as a global economic power and leader of the developing South. Yet, relatively little is written of Brazil's engagement with Africa and the rationale behind the political and economic drive toward the continent. What is clear is that Brazil's engagement with Africa, viewed in the historical context, maintains its underlying foreign policy principles of economic development on the one hand and the preservation of autonomy in an asymmetric world on the other. Brazil's engagement with Africa has taken on a three-pronged approach of political diplomacy, commercial engagement and development co-operation. This is indicative of a new era of Brazilian foreign policy and Brazil's process of internationalisation in general. This is a complex and inter-related process that Brazil seems to have managed well through a high degree of diplomatic sophistication and open cooperation between the political, commercial and various development entities. Africa displays one of the best contextual examples of Brazil's delicate balancing act between commercial and strategic interests and external development assistance. The way Brazil manages this and builds on its positive image in Africa is indicative of its role and approach as a new and emerging power on the international stage.     

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 African foreign policy in the post-Mbeki period

President Thabo Mbeki's resignation in September 2008 six months before the expected end of his term was triggered by the recall issued by the ANC National Executive Committee. It is highly unlikely that any major changes in foreign policy will be made by the caretaker government of President Kgalema Motlanthe before the 2009 elections. However, the significant changes in the domestic political environment signal the start of a new era in South Africa's transformation — what might be called the ‘post post-apartheid period’. This paper explores what those changes might entail, especially in the realm of foreign policy. After reflecting on the legacy of Mbeki's foreign policy, the paper considers the potential implications of the relevant resolutions agreed at the December 2007 ANC National Conference in Polokwane. Constraints on South African foreign policy towards the African continent are considered, especially with regard to perception versus reality of its economic and political hegemony as well as its complex identity as a nation. In light of this analysis and the inevitable impact of the current global economic crisis, the paper concludes with a series of recommendations for a new vision and agenda for South Africa's foreign policy under the government to be elected in 2009.     

New South Africa Speak: race talk in an undergraduate debate on racialisation in post-apartheid South Africa

Working with a set of theoretical concepts from critical race theory, this article examines perspectives on the impact of micro-aggressions and systemic inequality, as elicited during on online debate among undergraduate students. The debate centred on the degree to which white South Africans may legitimately identify as Africans. This topic served as a means of stimulating talk about the effects of racialisation in post-apartheid South Africa. During the analysis, the arguments that emerged from the online debate were analysed within a framework of white talk, referred to as New South Africa Speak. All contributions to the debate were measured against the discursive forms and functions that characterise New South Africa Speak. The findings are reported in terms of: During the conclusion the potential relevance of these findings to ongoing protest movements at South African universities is considered.     

International Norms and the End of Apartheid in South Africa

This article examines the interface in the post-World War II era between expanding global movements supporting human rights and traditional great power concerns regarding global security, and asks why an international alliance of actors mobilized to pressure the Western powers, particularly the USA, to politically isolate and economically sanction South Africa in the midst of the cold war. We argue that in the international struggle against apartheid, humanist (human rights) ideology emanating from social movements in global civil society clashed with traditional realist ideology regarding what constituted state security in the global polity. The norms of self-determination of nations and anti-racism together fueled global activism and challenged powerful Western states. Facing mass protests and lobbying efforts from citizens, democratic states across the Western world found greater security in upholding their own professed human rights principles than in maintaining close economic ties to the apartheid regime.     

Situating the European Union within South Africa's foreign policy calculus

ABSTRACT

This article reviews the importance of the EU–South Africa Strategic Partnership in South Africa's foreign policy calculations after a decade in existence. While political differences have been open for all to see in cases such as Zimbabwe and South Africa's notice of withdrawal from the International Criminal Court, the enhanced political dialogue is important in ensuring that the partners have a greater appreciation of the complexities faced by foreign policy-makers on both sides. This study is thus interested in uncovering why political relations have lagged behind the economic and social aspects of the relationship. After assessing South Africa's foreign policy interests towards the EU, it then reviews where the political fault lines have been located since the adoption of the Joint Action Plan before identifying areas of cooperation in meeting South Africa’s interests as stated in the 2011 white paper on foreign policy.