Reconceptualising South Africa's international identity : post-apartheid foreign policy in a post-cold war world
With the ending of the apartheid regime and the transition to power of a government of national unity, South Africa is now a legitimate member of the international community. It has joined the Organisation of African Unity, the British Commonwealth, and the Southern African Development Community, and it is busily fostering trade links with Europe, North America, the Far East, and Latin America. Its diplomats have worked to mediate conflicts in Angola and Mozambique, and its president is widely seen as an international statesman and a moral leader of almost unprecedented repute. Yet the newÂ· government continues to operate within South Africa's traditional international paradigm and has not yet developed a unique global role that reflects the country's internal "negotiated revolution". As a result, substantial challenges face efforts to forge a new south African approach to the world. From outside the country, forces unleashed by the fall of communism and the rise of a truly global marketplace mark a volatile and uncertain transition in world history. From the inside, political transition has sparked a redefinition of what it means to be South African, but this has not been reflected in new policies. The Foreign Ministry is widely recognised as a bastion of old-guard stalwarts; the ANC and NP have done little to reconcile their past international experiences; and. the information flow on international political and economic trends has barely improved since April 1994, leaving interest groups and private citizens in the new democracy generally uninformed and therefore unable to help pressure policy. The result is a foreign policy over the past year that has had little vision and few cohesive threads, and has left a score of unresolved issues. The 'new' South Africa's relations with Cuba and China, its policies on illegal immigration, and regional development plans are all issues that require visionary, decisive leadership but for which none has yet been provided. What energy or vision, for example, has South Africa brought to the Southern African Development Community (SADC) since it joined last August? In the global peacekeeping debate, and again with Cuba and China, South Africa has made little effort to recognise more pro-active roles for which it is well equipped. Why is it not asserting itself? Who actually is in charge of its foreign policy? Few thus would deny that a paralysis has settled in on South African foreign policy. A recent analysis in the Weekly Mail lamented, "We are not consistent. We have not formulated clear principles. The formulators of our foreign policy do not consult with the people. The new appointments to our foreign ministry complain of being sidelined. There is no clear break with the past". At the core of this inaction is the fact that policy makers have failed to reconceptualise the way international issues are seen and policy is made. The world has changed and South Africa has changed, both dramatically; yet Cold War debates still divide the policy framework, old style security thinking still dominates higher ranks, and most importantly, the growing inter linkages between domestic and foreign policies in a post-Cold War world have gone largely unheeded. It is thus appropriate to sound a note of urgency: change and uncertainty in the world and dramatic transformation at home combine to make this an inopportune, even dangerous, time to have a directionless foreign policy. The broad purposeÂ· of this paper is to identify the salient external and internal factors that will drive a new South African approach to the world. The first chapter presents a synthesis of dominant global trends, and sets them against the backdrop of major structural changes in international relations. The second chapter discusses change in South Africa in relation to world changes, new state objectives and shifting interest groups, and considers these implications for three major foreign policy areas. The third chapter looks at the policy framework and the ability of policy makers to conceptualise these dual changes and to formulate effective policies. The final chapter offers a 'road map' of policy options towards a true postapartheid, post-Cold War foreign policy.
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