5. South Africa’s Africa Policy in the Context of brics Interests Abstract

The purpose of this chapter is to contribute to the theoretical understanding of South Africa’s Africa policy within the context of BRICS interests. Our starting point in our contribution towards the theoretical understanding of South Africa’s Africa policy within the context of BRICS interests is the strategic emphasis of South Africa’s status as Southern African regional power and the African continental power and its efforts to achieve its global strategic objective to be an important international power. There is a fundamental and structural need for South Africa to actively contribute to the creation and sustenance of a continental and global environment more or increasingly conducive not only for the advancement of its regional, continental and global strategic objectives, but also for the creation and sustenance of a better Africa in a better world. By consolidating its regional and continental status and by seeking to be an important international power, a major force within the Group of 20 countries and within a new global organisational actor consisting of Brazil, Russia, India, China and South Africa (BRICS) and an important actor within the United Nations as a permanent member of its Security Council, South Africa will be able to actively contribute to the creation and sustenance of a continental and global environment more or increasingly conducive for the effective advancement of Africa’s interests in its Africa policy continentally and globally and those of its BRICS partners.

Key Issues in South Africa’s Africa Policy within the context of brics interests

The strategic importance of South Africa’s role in African affairs within the context of the advancement of the continental development and progress is the issue recognised and highly appreciated by individuals of different and antagonistic political, economic and ideological positions. Registering his recognition and appreciation of the strategic importance of South Africa’s advancement of the continental interests in its Africa policy, Douglas Gibson, a member of the Democratic Alliance and a former South African ambassador to Thailand, Laos, Cambodia and Burma/Myanmar, maintains that:

The African Union (AU) chairmanship will enhance South Africa’s credibility not damage it. Among the achievements of Thabo Mbeki … was the transformation of this country from the new boy at the table to a major player in Africa, trusted on all sides to perform a significant peacemaking and peacekeeping role. Our foreign policy was aimed at Africa first, and many initiatives … were taken to promote Africa and its interests in the councils of the world. South Africa has followed an unusual path in international politics: sometimes our own obvious or immediate interests have been subordinated to the larger interests of the continent. We have also been prepared to put money, energy and resources behind other African countries in the pursuit of peace and stability. All of this has enabled South Africa to punch well above its weight in the world and to achieve successes²²².

Defending the position that the African Union needs South Africa’s leadership, he maintains that:

One of the frustrations endured by South African diplomats and policy makers over the past number of years was the failure of the AU to live up to its promise of a new beginning as an effective body, able and willing to play a role in the world that would raise the voice of Africa and win the respect and recognition that a continent-wide body should have.

South Africa’s quiet role and its untiring efforts to promote Africa while never breaking ranks or endangering African solidarity failed to nudge the AU in the desired direction and were in some respects counterproductive. Some countries seemed to feel that they could ignore us when it suited them, but come running to Daddy when they needed a bail-out. South Africa’s soft voice was sometimes interpreted as a sign of weakness or unwillingness to be anything other than a charming and helpful source of advice, troops, money and effort.²²³

The position that Africa needs South African leadership continentally and globally is based, among others, on South Africa’s position in a hierarchy of political and economic, human capital or human resources development, technological and military international power relations. Its intermediate position in international power relations helps to explain its strategic role in African affairs and the fact that there is a higher level of demands and expectations from the rest of the continent and the world for it to play an increased role not only in continental affairs, but also between the continent and the rest of the world. It is expected to play a leading role in Africa’s socio-political and economic transformation. Fidel Castro, in his address to the South African Parliament in Cape Town on 4 September 1998, articulated this higher level of demands and expectations as follows:

From the new South Africa, the hope of a new Africa can emerge. Looked at economically, from the industrial, agricultural, technological and scientific points of view, South Africa is the most developed country on the African continent. Its energy and mineral resources are innumerable and in many of them, South Africa is very highly ranked world-wide. Today, South Africa produces 50% of the electricity of the entire continent, 85% of the steel and 97% of the coal. It accounts for the transport of 69% of all the railway freight, has 32% of all motorized vehicles, and 45% of all paved roads on the continent.²²⁴

Africa occupies the central position in South Africa’s foreign policy. According to Kgalema Motlanthe, South Africa accords central importance to our immediate African neighbourhood and the rest of the continent; working with countries of the South to address shared challenges of underdevelopment; promoting global equity and social justice; working with countries of the North to develop a true and effective partnership for a better world; and doing our part to strengthen the multilateral system²²⁵.

Pallo Jordan maintains that the core of the South African foreign policy is the creation and expansion of the space for Africa to define and fight for its future by exploring and offering its viable agenda conducive for the resolution of its problems. From the first day of his administration, Thabo Mbeki embarked upon a programme of action to contribute to the resolution of the conflict in the Democratic Republic of Congo (DRC). The thrust of the South African foreign policy was to “minimize the capacity” of the external powers dominant in international relations and cooperation to interfere in the internal affairs of the DRC so as to enable it and its neighbours to “resolve their problems.” This can best be understood if we come to grips with the reality that: “Ruthless foreign interests, most of them based in the West, have taken advantage of the relative weakness of African governments to intervene in the internal affairs of African states to install regimes they deem more favourable to them.”²²⁶ Western powers still take advantage of this factor characterising African governments as an integral part of strategies used to secure their interests in Africa.

South Africa’s policy towards the African continent and the world is within the context of BRICS interests. This has been the case before South Africa became its member. The interests of BRICS include the improvement of political, economic, financial and trade relations and cooperation among its members and how best to advance and increase its role in global affairs and political economy in the interests of developing countries. The economic crisis of 2008 and its global consequences helped to increase its role in global political, economic, financial and trade affairs. BRICS, as its purpose and interests, is striving to accelerate the restructuring of the global financial system and governance institutions and organisations for them to best and effectively or progressively serve the needs and interests of developing countries. Directly related to their progressive service to the needs and interests of developing countries is for these countries to have more say in their decision-making and implementation. BRICS is also for the existence of a multipolar world governed by a global collective leadership in which developing countries will play an increasing and effective role. It is also for the resolution to global problems such as terrorism and crime and those relating to issues such as environmental affairs and climate change, food security and energy.

BRICS has declared its commitment towards serving the developmental needs of developing countries, among others, by using its proposed development bank. The establishment of its development bank and its service to the developmental needs of developing countries will not only enhance BRICS’s role and prospects for development and progress of developing countries, but also help to structurally impel the World Bank to increasingly serve the needs of developing countries in their interests. This will constitute a challenge to the International Monetary Fund, the World Bank and the Western powers in their role not only in the developing countries, but also in the rest of the world. This will enormously contribute to the creation of a new global order serving not only the developmental needs of Africa and the rest of the South, but also of the rest of the world. The consequence will be the creation of a progressive, better world in which the existence of a better Africa as a prosperous, peaceful, democratic and truly independent and united continent will be protected.

BRICS in its call for a multipolar world governed collectively is challenging the United States dollar as the global reserve currency. The popular view that the United States is losing its leadership position in global political, economic and financial affairs to China and the fact that China has increasingly taken on greater responsibilities as a global actor of strategic importance in global affairs signify the real beginning of the success of this challenge. China together with its BRICS partners acting together with other countries of the South, progressive political parties of the South and the North and global social movements of change may in fact accelerate the defeat of imperialist powers under the leadership of the United States. For BRICS to establish its proposed developmental bank and have the global reserve currency accepted as an alternative to the United States dollar in international trade, it will be in a position to lead the world in socio-economic and financial sustainable development. It shall have established its power and authority in global economic, financial and trade affairs.

South Africa’s Africa policy within the context of BRICS interests requires it to embark upon a key programme of actions. Firstly, to consolidate its status as the regional power and the continental power. Secondly, to consolidate its road, air, maritime, port, pipeline and railway transport infrastructure. This is critical for Africa’s socio-economic, trade and infrastructural development for it to increase its benefits in its trade relations with the rest of the world. It plays a crucial role in reducing transport costs and facilitating the trade relations between Southern Africa, Africa and the rest of the world. Thirdly, it is seeking to achieve its global objectives to be an important international power, a major force within the Group of 20 countries and BRICS and an important actor within the United Nations Organisation (UN) as a permanent member of its Security Council. Fourthly, it is contributing to the creation of a more just regional, continental and global environment that would better correspond to the needs of Africa internally and globally. South Africa’s geopolitical imperatives are, firstly, to consolidate its regional and continental power status. Secondly, to contribute to the reduction and elimination of the domination and control of the regional and continental markets and resources by the advanced capitalist countries. Thirdly, to contribute to the protection of the region and the continent from encroachment by hostile rivals antagonistic to the realisation of the regional and continental strategic interests. Fourthly, to shape regional, continental and global geopolitical balance of power. The execution of these tasks as an integral part of its foreign policy is articulated by Aziz Pahad as the Deputy Minister of Foreign Affairs as follows:

It is important to emphasise that South Africa’s foreign policy is premised upon its national interests, domestic policies and values. Domestically, South Africa is committed to bringing about a better life for all in an environment of peace, stability and security. This objective [can] only be achieved in an international environment characterized by global peace and security and an equitable and just system.²²⁷

There is the fundamental need to provide the theoretical position capable of adequately providing an understanding of South Africa’s Africa policy within the context of BRICS interests as required by its being the Southern African regional power and African continental power seeking to consolidate its power and authority inherent in its regional and continental status in its advancement of Africa’s long-term strategic interests globally. Related to this status is the fact that South Africa also seeks to be an important international power, a major force within the Group of 20 countries and BRICS and an important actor within the UN as a permanent member of its Security Council. What is South Africa doing in order to consolidate its status as the regional and continental power, to become an international power, a major force within the G-20? It is increasing its alliance with countries such as Brazil, Russia, India and China through BRICS and consolidating its regional and continental objectives with the global agenda of the BRICS. South Africa is actively ensuring that the African continental and global environment become conducive for the advancement, achievement and defense of Africa’s long-term strategic interests continentally and globally. It has the continental obligation to contribute to the strengthening of the African Union and to contribute to the achievement of the African continental integration objectives of the African Union. Its active contribution towards the strengthening of the African Union is an integral part of its task to ensure that the African Union achieves its other objectives. Its contribution to the strengthening of the African Union is, among others, through the strengthening of Southern African Development Community.

South Africa’s view of African integration in its developmental objectives or its opposition to the economistic view of the project informed by narrow imperatives of trade and investment relations of its private companies is important for various reasons. The problem of the view of integration only in its economic and trade aspects as if it is only economic and trade project is beyond being informed by narrow imperatives of economic, trade and investment relations. This view gives “misplaced priority to international trade as a determinant” of national “patterns of development”²²⁸ and progress of members of the organisational drivers of the integration project.

The position which gives priority to international trade as a determinant of patterns of development and progress of African countries is maintained, among others, by Thabo Mbeki, former president of South Africa. He maintains the incorrect position that the basis for Africa’s future socio-economic advancement is primarily external, not internal. He argues that the driving force for “Africa’s economic growth has been – and will continue to be the demand for its raw materials” and that “China, and to some extent India, are particularly relevant in this regard.”²²⁹ As “economies” of these Asian countries “continue to grow at high rates,” they will fuel “sustained demand for raw materials” of African countries. Therefore, “African growth and development will continue to benefit from the further growth and development of these two Asian economies.”²³⁰ In other words, the process of Africa’s development and progress depends on the demand for its raw materials by China and India. Africa is incorrectly viewed as an extension of China and India in terms of its development and progress. Mbeki concludes that “the importance of international trade as a driver of the African economic project” should be emphasised.²³¹ He correctly points to the importance of “Africa’s response to the global economy and its impact on Africa.”²³² However, given the fact that he regards the process of Africa’s development and progress as dependent on the demand of its raw materials by China and India, he should have emphasised the importance of Africa’s strategic response to their intensified expansion into the continent particularly for its raw materials. Meles Zenawi, the former Prime Minister of Ethiopia emphasised the importance of Africa’s strategic response to the intensified expansion of China, India and other BRICS countries into the continent for its natural resources. Answering the question as to what is his “view on the current competition to attain resources from Africa,” he pointed out that:

I think there are two aspects here; the emergence of China, India and the other BRICS countries has dramatically changed the dynamics. The demand for commodities has given us a window of opportunity to benefit from our natural resources. Whether we make effective use of that opportunity is a separate issue, but the opportunity is there. The emergence of this new international force has increased the competition, and from Africa’s perspective, choice and competition are certainly better than monopolies. So, having various partners puts us in an advantageous position; we just need to use this to our advantage. In Ethiopia we are trying to do just that²³³.

The position that the process of Africa’s economic development and progress depends on the demand for its raw materials by BRICS members such as China and India and that international trade is a driver of the African socio-economic development and progress and transformation has a danger of turning Africa into a supply centre for strategic materials for stockpiling and expanded opportunity for trade.