The need for affirmative action in a new Defence Force

Mohlolo Isaac Siko
BA Hons (Strategic Studies) Unisa

Published in South African Defence Review Issue No 9, 1993



INTRODUCTION

Current discussion on the question of a new defence force for South Africa has tended to focus on integrating the erstwhile conflicting and competing military forces. In this debate, affirmative action does not appear to have been given any serious attention. This article proposes to address this deficiency. As such it identifies three factors for consideration to inform a balanced and realistic debate on affirmative action. These are:
  • the apartheid legacy within the defence force itself;
  • the skilled manpower needs; and
  • a developmental vision.
These are pertinent questions to the challenges of political, social and economic reconstruction facing us in the years ahead. The military is an important national institution within the whole of our society and in need of change.

A debate of this nature could help us make informed choices and thereby contribute to reinforcing the legitimacy of the new defence force in the eyes of all South Africans.

AFFIRMATIVE ACTION


Affirmative action is not, as is sometimes mistakenly considered, reversed discrimination. Affirmative action does not necessarily suggest undermining standards, compromising merit or quick-fixes. Properly viewed, the concept should be understood as a deliberate and sustainable anti-discrimination strategy that owes its existence to the principle of compensatory justice, equity and fairness. Most importantly and from a practical point of view, affirmative action should not be a temporary measure aimed at addressing the inequity of apartheid as much as to promote equal opportunities for the citizens of the country.

Such a policy and programme would represent a constructive way to deal with inequalities and imbalances within the defence force, beyond simple moral considerations to the realm of institutional reconstruction.

APARTHEID LEGACY


In a recent conference paper, Dr Jakkie Cilliers observed that racial and ethnic imbalances characterise the present composition of the South African Defence Force (SADF). For instance, that:
... discrimination severely restricted black, coloured and indian access to all but the lower ranks. As a result the SADF as it is composed today is dominated by white leadership.1
The actual state of affairs within the SADF is difficult to establish largely because of the secretive cloak surrounding it. It would be interesting to ponder the proportion of black/white, male/female, senior/junior ratios, etc.

Notwithstanding the lack of official figures in this regard, Cilliers was able to highlight discriminatory inequalities and imbalances in the Defence Force by his guarded reference to the relative numbers of officers of different races within the SADF - 25 blacks, 14 indians, 123 coloured and 7191 whites up to the rank of colonel in the Permanent Force.2

Another indication can be found in a reply by former minister of defence, Genl Magnus Malan, to a question in parliament3 in which it was stated that the 1990-intake of the defence force (excluding the national service intake for white males) was along the following black/white lines:

Army 123/2991

Air Force 130/1303

Navy 92/197

Medical Services 16/349

With regard to gender issues, Jacklyn Cock paints another gloomy picture. Writing on feminism and militarism, she argues that the idea of equal rights for women is important in that it posits a change in the present state of affairs. Whereas the combatant female cadre in the liberation movement may be symbolic of popular or mass image of the liberated women, in the debate on the integration of military forces, one is struck by the silence on what she refers to as '...the place of women in this new army'.4 If this any indication to go by, then serious decisions have to be made now.

Special attention will have to be paid to the development and advancement of people who have been disadvantaged by discriminatory laws and practices.

SKILLED MANPOWER NEEDS


The National Manpower Commission (NMC) reported in May 1991 that the country had a huge oversupply of unskilled workers while the demand for skilled manpower during the past 10 years had increased.5 Remarking on the very grim picture of our manpower needs, Prof Mouton6 said that in order to cope with our existing as well as our future needs, one of the vital considerations was the utilisation of all available resources.

Even the Central Statistical Service (CSS) figures show that South Africa will require an additional 120 000 middle and senior managers and executives by the year 2000 to maintain its growth and that whites will be able to account for a mere 45 000 of this figure.7

From a perspective of labour forecasts, a report by Prof J L Sadie8 a demographer and economist writing for the Bureau of Market Research (Unisa), made the following findings:
  • During the period 1960-1990 the female component of the labour force increased by 4,3% annually in contrast to an increase of 2,2% in the male labour force.
  • The female labour force will increase by 3,4% between 1990 and 2005, as against a 2,4% increase per year in the male labour force.
  • Between the year 2000 and 2005, 91% of the net addition to the labour market will be blacks, with whites representing only 1,7% compared with 21,8% during the 1960-1970 decade.
Overall, Prof Sadie predicted that the composition of the country's labour market would change considerably. These observations present an institution such as the defence force with one of its most critical challenges. How can it be otherwise when conscription is still a preserve of white males?

DEVELOPMENTAL VISION


Development does not imply merely economic growth. It involves both economic as well as social aspects. Dudley Seers views development as '...creating the conditions for the realisation of the human personality, and taking into account issues of poverty, unemployment and inequality'.9 This view implies that development should be taken to mean that increased social justice occupies the centre-stage of our understanding, instead of it being a side product of economic growth.

According to Willy Brandt, former Chancellor of the German Federal Republic, writing as chairman of the International Development Issues:
... development carries with it not only the idea of economic betterment but also of greater human dignity, security, justice and equity.10
One basic implication of this developmental vision in relation to affirmative action is that if development is to serve human dignity, security, justice and equity, it follows that managed change must be directed at the majority of the people themselves in defining their needs and partaking fully in the process. In other words, the process must be directed, not for them, but by them and/or with them.

In our collective effort to forge the new South Africa, there has to be a recognition that democratisation is an essential element in development and that there will be no progress without popular participation in decision-making at various levels.

The three factors identified above as necessary to introduce affirmative action in the defence force, i.e. the apartheid legacy, skilled manpower needs, including the developmental vision, would go a long way to ensure that we invest in our own people, that standards are not lowered, and also that social reality is restructured within our future defence force. Most importantly, the defence force should become, in the words of Annette Seegers, representative of society sociologically.11

Along these lines the African National Congress (ANC), has, in its guidelines for a democratic South Africa, also thrown its weight behind affirmative action.
The Defence Force shall endeavour to reflect the national and gender composition of South African society. In regard to recruitment, training, deployment and promotions, a programme of affirmative action shall be implemented ...12
Echoing the SADF, Tim Cohen13 wrote in the Business Day that the SADF was continuously evaluating its manpower needs; that two thirds represented non-whites with the highest rank of a non-white was that of a colonel; and that according to the SADF Chief-of Staff, Lt Genl Pierre Steyn, the SADF was committed to affirmative action. Be that as it may, the existing situation within the SADF leaves much to be desired.

The United States experience has demonstrated exactly what affirmative action can achieve. Since Harry S Truman signed Executive Order 9981 in 1948 on desegregation in the military, Black Enterprise wrote:
Of the forces' 2,1 million service personnel, 19,8% are black. Also, blacks make up 6,6% of the officers, ranging from second lieutenant to four-star general, and 8,4% of warrant officers ...14
The SADF is by its nature one of the more conservative instruments of the state. It has root-guards which turn out in force every time one of its basic assumptions is challenged or threatened. Therefore, management within the military, more than in any other institution, must be engaged through discussion and debate, to promote and appreciate the possible benefits of affirmative action. One must agree with Linda Human's advice that:
Advocating good people management does not mean that we negate all aspects of existing management theories and practices, but rather that we build into those practices the means by which people can be developed.15

LEGISLATION AND JUDICIAL INTERVENTION


Effecting affirmative action may require that serious consideration be given to the introduction of appropriate legislation, reinforced by judicial intervention. In this connection, an outcome of a broad consensus on the part of the key players, including academics in military affairs, would be preferable to any unilateral imposition by the government of the day.

One persuasive and authoritative signal comes from the South African Law Commission (1989), which, according to Pierre Hugo,16 acknowledged that an 'affirmative action clause' could be inserted in the bill of rights. In turn this would enable parliament to enact laws that provide for temporary advantage for the victims of discrimination, and with the sole purpose of achieving equality.

A precedent in this regard is provided by the Namibian constitution in article 23(2), according to which parliament may enact:
... legislation providing directly or indirectly for the advancement of persons within Namibia who have been socially, economically or educationally disadvantaged by past discriminatory laws or practices or for the implementation of policies and programmes aimed at redressing social, economic or educational imbalances ... or for achieving a balanced structuring of the public service, the police, the defence force, and the prison service.17

AFFIRMATIVE ACTION PLANNING


There is a clear requirement for a framework of principles, which can be monitored and which are practicable.

Five guidelines are suggested for this purpose:
  1. Policy - in terms of affirmative action policy, a written commitment, with a top official heading a committee with responsibility and authority to direct and implement the programme.
  2. Analysis - survey current discriminatory employment laws or policies and practices relating to the entire defence force.
  3. Strategy formulation - develop goals to improve utilisation of human resources by reviewing the whole employment system.
  4. Implementation and evaluation - establish an internal audit and reporting system to monitor and evaluate progress in each area of the programme.

CRITICAL SUCCESS/FAILURE FACTORS

  1. Recognise people development as a key strategic objective which must be reflected in the institution's values and reward systems.
  2. People development is a line responsibility.
  3. Top management must be committed to affirmative action.
  4. Joint manager and subordinate responsibility.
  5. Promotion on merit.
  6. Explore prejudices and stereotypes.
  7. Strict monitoring.
  8. Willingness of the disadvantaged to develop themselves.

PROSPECTS

Prospects for the success of affirmative action in the defence force will largely depend on the acceptance of the need for such a programme on the one hand, and on the other, the willingness to act accordingly. Given the all-round willingness to effect change through negotiations in politics, in our industrial relations system, as well as in the sports field, a ray of hope is without doubt realistic.

In conclusion, it may be appropriate to quote the words of Tony Leon, Democratic Party member of parliament:
No doubt, carefully applied and wisely executed, affirmative action is a necessary policy to help level the playing fields of South Africa ...19
Both the acceptance of the need for and implementation of an affirmative action programme in the defence force, will assist in the development of an ethic of nation building, and will foster a military culture which is both responsive and accountable to a national, non-sectarian constituency.

REFERENCES

  1. J.K. Cilliers, Manpower Considerations for a future Defence Force, a paper presented at a conference on Changing Dynamics: Military Strategic Issues for a Future South Africa, CSIR, Pretoria, 6 August 1992, p 13.
  2. Ibid.
  3. Weekly Mail, 12 - 19 April 1991, p 8.
  4. J Cock, Feminism and Militerism: Some Questions Raised by the Gulf War, in South African Defence Review, No 6, 1992, p 21.
  5. The Star, 27 May, 1991.
  6. W Mouton, Training System Needed, in The Star, 27 May 1991.
  7. Business Day, 24 July 1991.
  8. J.L. Sadie, Research Communique for Top Management, Bureau of Market Research, Unisa, 1991.
  9. D Seers, What are we trying to measure, in Journal of Development Studies, vol 8, no 3, 1972, pp 21 - 36.
  10. W Brandt, Introduction to the N-S: A Programme for Survival, Report of the Independent Commission of International Development Issues, 1980.
  11. A Seegers, The Star, 4 April 1991, p 16.
  12. ANC Policy Guidelines for a Democratic South Africa, National Conference, 28 - 31 May 1992, pp 79 - 80.
  13. See SADF Shake-up is ulready occurring in Business Day, 3 September 1992.
  14. Black Enterprise, February 1989.
  15. L Human, Advancement, Affirmation and Diversity: What South African can learn from the USA, in IPM Journal, August 1991.
  16. P Hugo, Whites in the South African Public Service: 'angst' and the Future, a seminar paper presented on Quo Vadis South Africa, Johannesburg, 4 October 1991.
  17. Ibid, pp 21 - 22.
  18. Adapted from Affirmative Action and Equal Employment: Equal Employment Opportunity Commission, 1974.
  19. T Leon, Victimology and other perils of affirmative action, The Star, 12 November 1991.