PORTFOLIO COMMITTEE ON DEFENCE DRAFT REPORT TO THE NATIONAL ASSEMBLY ON THE SOUTH AFRICAN MILITARY ACADEMY

April 2005


Preface

Democratic South Africa occupies a unique position within the crucible of African efforts to eradicate poverty, promote sustainable growth and development, and bring peace to our war-ravaged continent. The New Partnership for Africa's Development gives impulse to such initiatives, as do peace support operations undertaken by the African Union in partnership with the United Nations. South Africa plays a leading role in these efforts, having committed major political, economic and military resources to African renewal. Our obligations along these lines are likely to increase in the years ahead.


This is the continental starting point for considering the report by the Parliamentary Portfolio Committee on Defence concerning the South African Military Academy at Saldanha. The assessment and recommendations of the Committee form part of our oversight of the Department of Defence and its associated institutions. Like all our work, this report is meant to promote and advance the ability of the Department, and the bodies that fall under its authority, to meet their constitutional obligations.


The South African Military Academy is a pivotal institution. Its principal function is to educate and train the officer corps of the South African National Defence Force (SANDF). The Constitution defines the primary objectives of the SANDF as follows: "to defend and protect the Republic, its territorial integrity and its people in accordance with the Constitution and the principles of international law regulating the use of force".


The SANDF must be able to live up to these historic tasks in an epoch that has come to be defined by the rapid and unpredictable consequences of globalisation, and by new political, economic and military challenges in world affairs.


For the Academy, this implies an obligation to equip the officer corps with a set of finely honed intellectual and military skills. Yet at the same time, the institution must make demonstrable progress along the road of transformation, so that talented young South Africans of all backgrounds will choose to attend the Academy for its academic excellence. South Africa needs an officer corps with the utmost flexibility in the 21st century - an officer corps that understands the changing nature of the work of the SANDF and the global environment. The functioning and outlook of this officer corps must be rooted in the Constitution, and it must understand and be able to relate to the diverse cultures that characterise our country, our continent and our planet.


Lt General (ret) Romeo Dallaire, the Canadian commander of the United Nations mission in Rwanda during the 1994 genocide, and who has considerable experience in staff training, made similar points during a recent visit to South Africa. Dallaire any other higher education institution in South Africa because it serves a dual purpose: one academic, as part of the University of Stellenbosch; the other military, as a unit of the SANDF.


After considering all these factors, and following a site visit and reviewing additional documentation, the Committee strongly believes that the approach taken at the Military Academy does not meet the needs of South Africa's officer training corps, and as a result that neither the military nor the academic side of this duality is being adequately served in the interests of the nation.


The Committee's findings are listed in Section 3 of this report; its conclusions and recommendations in Section 4. Key points include the following:


1. Introduction

1.1 Basis of report

The Parliamentary Portfolio Committee on Defence presents this report in the context of the oversight role assigned to the National Assembly by the Constitution.


The Committee conducted a visit to the South African Military Academy on 19 January 2005 as part of its oversight and monitoring of the Department of Defence, the SANDF and their institutions. Portfolio Committee Chairperson Professor Kader Asmal headed the delegation. A full list of the delegation members is provided in Appendix 1 The delegation met with officials from the Academy's management team emphasised that modem officer corps must be sensitive to a range of cultural, social and psychological factors in relation to their subordinates and in the field of operations - especially in peacekeeping missions abroad.


Moreover, in the context of increased collaboration within the African Union, and the principle that Africa cannot depend on outside powers, the Military Academy must become a First-class institution that is the centre for officer training in Africa. The Academy should function as a continental magnet for young officers in training, who are attracted to the Academy not only for its academic excellence and military competence, but also because it is a reflection of democratic South Africa and our commitment to democracy, peace and the full development of Africa.


At the outset, we must state that we are impressed by the determination of a great many people associated with the Military Academy - officers, faculty, staff and students - to transform this institution, which was once a cog in the machinery of white minority rule, into a first-class academy of higher learning worthy of our constitutional, non-racial democracy.


Leadership
and Transformation

The Committee firmly agrees that the Academy needs to be transformed. However, the challenge remains the specific manner of change and the extent to which it provides further grounds for development.


Transformation is not limited solely to numbers and representivity. It also embraces an ethos and values reflecting an entirely different set of assumptions to those held under apartheid, including openness, transparency, equality and justice.


What is described in a document prepared by the University of Witwatersrand in 1998 is applicable to all higher education institutions, where it is said that: "transformation is not an end in itself, but a process that leads us to achieve our goal of participative democracy, accountability, responsibility and transparency".


What is to be achieved from transformation is best articulated by the Department of Education's White Paper on Higher Education, which describes the aim of transformation vividly:

South Africa's transition from apartheid and minority rule to democracy requires that all existing practices, institutions and values are viewed anew and rethought in terms of their fitness for the new era. Higher education plays a central role in the social, cultural and economic development of modern societies. In South Africa today, the challenge is to redress past inequalities and to transform the higher education system to serve a new social order, to meet pressing national needs, and to respond to new realities and opportunities. It must lay the foundations for the development of a learning society which can stimulate, direct and mobilise the creative and intellectual energies of all the people towards meeting the challenge of reconstruction and development.


It is clear to us that the majority of the management, faculty, staff and students support transformation. The key, then, is leadership, applied with vision, sensitivity and care. Such leadership must take cognisance of the fact that the Academy is unlike (see Appendix 2) and held meetings with University of Stellenbosch faculty, Academy staff and students. The delegation also loured the facilities.


The report is based on this visit, and also draws on additional correspondence and documents made available to the Committee.


1.2 Objectives of visit

In addition to the aforementioned exercise of the Committee's constitutionally mandated oversight role, and within the framework of the constitutional imperatives of transformation, affirmative action and employment equity, good governance, delivery, accountability and non-racialism, the delegation had the following objectives:


1.3 Board of Inquiry

This report does not attempt to duplicate the work of the Board of Inquiry, appointed by the Minister of Defence, which is examining allegations of racism and violence at the Military Academy. We await the Board of Inquiry's conclusions, but in consonance with the oversight role vested in Parliament by the Constitution, we are obligated to proceed with our report and findings.


2. The
Military Academy: Past, Present and Future

2.1 The Academy in the Past

The Military Academy was established in 1950 under the auspices of the University of Pretoria as a branch of the SA Military College. According to material on it website, it was created as a traditional military academy, based to some degree on the model of the United Slates Military Academy at West Point. This seems rather far fetched. In the mid-1950s it was placed under the trusteeship of the University of Stellenbosch, and subsequently moved from Voortrekkerhoogte (now Thaba Tshwane) to its present location at Saldanha. In January 1961 the Academy became the Faculty of Military Science of the University of Stellenbosch.


The Academy was an institution rooted in the apartheid ethos and served the needs of the apartheid state. As such, it remained an exclusively white, male entity until 1978 when the first three white female students were admitted a decision suspended the very next year "due to lack of suitable accommodation". The first Coloured student was admitted in 1979. It was only in 1991 that female students, and the first African students, were admitted to the Academy.


The Academy has registered some progress in terms of demographic transformation (see Appendix 3). However, a great deal more remains to be accomplished. Progress in this area cannot be separated from the ability of the Academy to function as a centre of academic and military excellence. We discuss this further under Findings.


2.2 The Academy Today

It is stated that the Academy's purpose is to elevate education of Permanent Force (sic) cadets to the level of baccalaureate in the Natural or Human Sciences, and to provide the SANDF with a competent, highly professional officer corps. Apart from their academic studies, students at the Academy also continue their normal military training as cadets.


The existing agreement between the Department of Defence and the University of Stellenbosch states: "The Military Academy is a military unit of the Department and is under the military command of a Commanding Officer. The Faculty of Military Science, in terms of the Private Law on the University of Stellenbosch (Volksraad), 1992, is a faculty of the University that is accommodated by the Military Academy."


What follows in this section are brief summaries of presentations made to the Committee during its oversight visit to the Academy, along with a discussion of correspondence made available to the Committee following the visit.


2.2.1 Meeting with Management

In its meeting with the Committee, the Academy's management team identified its vision as follows: To be the leader in professional military education in Africa, and in so doing to empower the African security community to manage current and future security challenges effectively.


Goals, strategies and objectives identified by the management include:


Management identities its challenges as follows:

Apart from physical conditions, the Commandant stated everything at the Academy was "hunky dory".


2.2.2 Meeting with University of StelIenbosch Faculty Programme

In their meeting with the Committee delegation, University of Stellenbosch Faculty Programme members identified the following as key issues:


2.2.3 Military Professional Development Programme

This programme overseas the discipline, training, uniform, duties and other military aspects of the students' development.


2.2.4 Meeting with Support Services

Support Services is responsible for facilities maintenance, hospital services, logistics, communications and the like. In their meeting with members of the delegation, staff members identified several problems, including strains on infrastructure, particularly living quarters and classrooms, due to growing student numbers. In addition, there have been long delays in the repair, maintenance and upgrading of such facilities.


Some barracks do not meet government safety regulations and could soon be condemned, we were informed.


2.2.5 Meeting with Staff

The Committee delegation met with about 100 staff members. Their key concerns include the following;

• Some staff feel that affirmative action, employment equity and transformation are being pursued too fast, that standards are declining because posts are not being filled, and that white staff are being marginalised;

Training and education should be integrated at the Academy and throughout the SANDP;


2.2.6 Meeting with students

The Committee delegation met with approximately 200 students. Students were not as forthcoming with questions as we would have liked. However, the following issues did arise and were answered by the Committee Chairperson:


Students elect a student captain and other representatives from among themselves to constitute a student council, which represents them on faculty and other committees.


2.2.7' Relationship with the University of Stellenbosch

Subsequent to its oversight visit, the Committee received a copy of a letter from University of Stellenbosch Rector and Vice-Chancellor Chris Brink to Brigadier General TZ Manyama, the Commandant of the Military Academy. At the time this report was being prepared, we had not yet seen a reply from Brig Gen Manyama, and we do not endeavour to pass judgement in this matter. However, we believe that 'Prof Brink's letter raises critical issues before the Academy, and as a result we quote it at some length.


Prof Brink writes that there appears to be a misunderstanding concerning the military and academic lines of authority at the Academy. His expression of this view follows a meeting at which the Commandant of the Academy, on grounds of ensuring representivity, overruled a recommendation made by an academic committee to hire two lecturers. Prof Brink writes that "your military authority (which is not in dispute) cannot be used in this fashion to overrule, by way of command, the academic decision-making process". He indicates that the relevant documentation would seem to represent a clash between the military ethos and the academic ethos, which I am keen to avoid, ft is quite clearly stated that you, as Commandant, represent the Department of Defence. On the other hand it is also indisputable that the University represents the Department of Education. While the Department of Defence is responsible for the training of soldiers, the Department of Education is responsible for the education of scholars. These two Departments have agreed on a collaboration that can generate the best of both worlds: the coupling of the Military Academy is meant to produce a cadre of academically trained officer-leaders, who are both soldiers and scholars. The interaction between the two Departments is manifested in the contract between the University and the SANDF which governs the operations of the Military Academy. It is in our mutual interest, and in the interest of South Africa, to ensure that this contract functions effectively.


The contract is based on the fact that there are certain things only the defence force can do, and certain things only a university can do. Only a university can award degrees, or appoint professors.


Prof Brink says that it would be completely "within the spirit and the letter of the interaction between the SANDF and the University if you wished to raise an objection against any recommendation of the Subcommittee.but issuing an order to an academic committee is a different matter altogether, which is neither within the spirit nor the letter of the contract."


It is not clear as to how this impasse has been resolved, In addition, the Committee has been informed that under the agreement between the University of Stellenbosch and the Department of Defence, consultation has to take place between the two as to the appointment of the Dean (consultation did take place) and the appointment of the Commandant (no consultation).


2.3 The Future of the Academy

In addition to the Military Academy, South Africa maintains two other military- educational institutions:


Considering the specialised roles of these institutions, with their emphasis on short courses, the Military Academy is clearly the place where the fundamental education and training of the future officer corps must take place.


Government is committed to maintaining a single, undivided SANDF. The relationship between the military and civilian staff at the Academy needs to support the achievement of that vision and adhere to the mission of the Academy. The Academy's focus should be the academic and professional training of officers for the SANDF. There is a need to reconfirm the mission of the Academy and to determine how best to achieve this objective, as well as to examine how the specific training needs of the four services within the SANDF can best be incorporated.


South Africa's ability to train an officer corps that is intellectually and militarily up to the challenges of the present epoch is an issue not only of national importance, but continental significance. The Military Academy needs to accomplish several things simultaneously:


In order to help the Academy accomplish tins challenging set of objectives, the Committee offers its findings and recommendations.


3. Findings

The Committee believes that the Academy stands at a critical turning point. Our principal Findings are outlined below.

3.1 The Role and Functioning of the Academy


3.2 Representivity

In our view-, the majority of the staff support transformation, and some progress has been registered with regard to representivity, but there remains a large gap between tire staled objectives of the SANDF and the make-up of the Academy. The Department of Defence representivity guidelines, which serve as a guide for the Academy, are as follows:


In 2000 8% of faculty were black (African, Indian and Coloured); today 30% of faculty are black. In 2000 30%i of undergraduate students were black; today 76% are black. In 2000 9% of postgraduate students were black; today 53% are black. There is clearly some progress here.


In terms of gender, of first-year students, 169 arc male and 49 female; of post- graduates, 69 male and 31 female; of academic assistants, 57 male and 43 female; and of lecturers, 83 male and 17 female- There appears to have been a decline in the ratio of female Faculty from 22%) in 2000 to 20%) in 2005. The Committee has not received corresponding figures for a previous year with regard to student gender.


The Committee has received little information on the number of persons with disabilities at the Academy.

The full degree of demographic progress can be charted by reviewing the statistics [provided by the Academy, which appear in Appendix 3.


he time has come to draw up a systematic programme to achieve representivity, rather than ad hoc responses as far as the staff are concerned, with an emphasis on intensive mentoring ,aggressive recruiting and a proper career path.


3.3 Curriculum

Curriculum plays a crucial role in developing a common culture and integrity within any educational institution. In the Committee's view, however, the curriculum in place at the Academy does not reflect the changing nature of the world, nor the changing nature of Africa. In general, we find the balance inadequate to the broad needs of the officer corps. While there is an impressive list of technical subjects covered, there is insufficient grounding in the humanities.


To develop the kind of officer corps we have described above, study and discussion of the Constitution of the Republic of South Africa must occupy pride of place in the curriculum. Judging by the materials given to the Committee, it is hard to discern such a priority. Students of Military Law or Political Science do obtain some exposure to the Constitution. But this should surely be a foundational element for every student at the Academy - and not merely to be understood as a set of rules, but as a living document that is the outcome of a tremendous struggle waged in this country over many decades. Not a few commentators have pointed out that our Constitution is one of the most progressive constitutions on the face of the earth, and the basis for all in our interrelationships. Surely, then, the officer corps must be grounded in this document.

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Similarly, the Constitution is of enormous relevance when developing the kind of respect and sensitivity to diverse cultures required of SANDF officers at home and abroad. This should be part of the coursework of every student, but it does not appear to be the case. Our review of the curriculum locates a module called "The Management of Cultural Diversity" presented under Industrial Psychology. This seems anomalous, as part of transformation is the capacity of the institution to celebrate our diversity and to ensure sensitivity to our distinctive languages, religions and cultures.


The Committee is also of the view that, not least given South Africa's continental responsibilities, every student should be exposed to more study and discussion of Africa's history and contemporary affairs. Much of the Africa-related course material in undergraduate programmes seems to be limited to Military History, reflecting the present staff academic and research interests. This needs to be reviewed urgently.


The library is in appalling condition, with a shortage of books and periodicals. This is alarming. We cannot train the officer corps we need without such basic materials.


3.4 Staff, Posts, Research and Qualifications

Staff appears to be in disarray- A total ol'21 posts are currently vacant, including 12 Faculty of Military Science positions and 4 Section Military Development positions, and many of them have been vacant for some time. This delay harms the students and has a demoralising effect on the Academy as a whole. It indicates that something is wrong with the institutional culture.


In addition, the Committee has been led to believe that some posts have not been Filled because there were no black candidates available to fill them. While such action may appear justified in the name of improving representivity, this is not the case.


Where will the Academy find appropriately qualified black faculty? Like every other section of our society, which is burdened with the consequences of apartheid, it must play an active part in training them. We see no evidence of a staff development programme. The Academy needs one, and it must include mentoring. The tone and atmosphere of the Academy must also be congenial to those previously excluded.


The Committee has requested detailed information on research papers and publications emanating from the Academy. The latest information we have received covers the years 1994-2003. During the Committee's visit we were informed that the 2003 output was 56 papers and 41 publications. However, there seems to be some confusion between conference papers and research papers - many of the former are listed as the latter. In addition, there needs to be greater emphasis on publication in peer-reviewed journals.


In terms of the academic staff, 20% hold doctorates, and 25% are enrolled in PhD programmes. Judging by the material we have reviewed, in general terms it seems to us that some of the senior officers may not be properly qualified for their positions.

3.5 Physical infrastructure and resources


3.6 Military Training

The Section Military Development is responsible for development of military competencies. According to the information presented to the Committee, it organises drill sessions and parades, command communication: spiritual and professional guidance; sport, shooting and physical fitness. It also takes responsibility for regimental routine, military discipline, formal dinners, guest evenings and the like.


The expected outcomes of this programme, particularly as they relate to proficiency in, say, disassembling and assembling a rifle, arc not entirely clear to the Committee.


3.7 Guest lecturers

In 2002-03 the Academy hosted two international guest speakers; in 2003-04 four- and in 2004-05, two. In our view. this is not nearly enough international academic input. An institution of this type depends on international speakers, especially those who can speak to issues of the military in a democracy. Moreover, it is imperative to have a broad range of views on such subjects, not merely one, or even a handful.


We were informed by a member of staff at the open meeting that in one case, the Commandant forbade an invitation to an overseas speaker because of his race. If true, this is clearly unacceptable.


3.8 HIV/AIDS

According to management, the impact and incidence of HIV and AIDS at the Military Academy has been minimal. However, it is not clear whether there is systematic education in place concerning HIV/AIDS. as well as the opportunistic diseases associated with HIV/AIDS.


3.9 Sexual Harassment

The process for reporting and addressing complaints of sexual harassment needs to be reviewed, 'the Commandant states that since his arrival at the Academy there have been no such reports. The Committee learned during its visit that the complaints procedure provides for students and staff to report to their commanding officers or to the Commandant, nearly all of whom are men. In addition, the military does not encourage personnel to lay charges against their superior officers, or to circumvent the chain of command.


Subsequent to the Committee's visit we received a statement from the Chaplain of the Academy, dated 24 January of this year, which suggests that he is the first port of call for people alleging sexual harassment. 'the chaplain will then channel information to either the management (most of whom are men) or his functional superior (the Chaplain on the next level of command). The Chaplain will also refer the complainant to medical practitioners, a clinical psychologist and the educational psychologist.


The Committee feels this system would be would be more effective if a female officer, who can be directly approached by members of the Academy, is in charge of such complaints. This officer can then assist the complainant to call on the services of the other staff referred to m the procedure.


In the light of what has happened at oilier military academies, it appears to the Committee that a formal system that involves women officers (and, possibly, academic staff) is urgently needed at the Academy.


3.10 Outstanding reports

The Committee has requested, but has yet to receive, the following documentation:


4.
Conclusions and Recommendations

4.1 Conclusions

The Military Academy is a national asset of strategic importance. However, the Committee believes that the approach adopted by the Academy lip until now fails to meet the needs of the officer training corps, and as a result that neither the academic nor the military imperatives are being adequately served in the interests of South Africa. There is confusion over the core business of the Academy, and there must be a close investigation of the quality of its output.


The Academy has made some progress with regard to transformation. However, there is much room for improvement. Representivity targets arc a long way from being met. Progress in this area has been accompanied by some racial tension. And this process cannot be separated from the range of managerial, budgetary, Financial, logistical, maintenance, academic and other challenges facing the Academy.

If the Academy is to equip South Africa's future officer corps with the intellectual and military skills it will need to function in an exceptionally challenging global environment, these challenges need to be addressed as a matter of urgency by the leadership of the Academy, by the Department of Defence and by Stellenbosch University. For the Academy to become a centre for officer training for the rest of Africa, as well as a source of pride and accomplishment m South Africa, a rehabilitative process needs to be initiated. Our recommendations are as follows:


4.2 Recommendations

  1. There must be a close investigation of the quality of the Military Academy's output, along with consideration of how to create the most cost-effective model:
  2. The Academy, the Department of Defence and the University need to settle on a firm definition of the Academy's core business, and to explore the kind of leadership which is best-suited to taking the Academy forward;
  3. The agreement between the Department of Defence and Stellenbosch University establishes a Joint Advisory Committee, which advises on a range of matters, but which is not mandated to meet on a frequent basis. The Committee feels that this body's work should either be expanded, or that a joint Board of Studies should be established, chaired by the Dean, with the participant of the Commandant, that handles all academic matters;
  4. In general, there should be greater interplay between the faculty and military, arid confidence-building measures should be undertaken urgently;
  5. The Dean should be given security of tenure;
  6. The curriculum should be carefully reviewed and improved;
  7. The Academy should talk to the four arms of the SANDF to ensure that their officer corps training needs are part of the curriculum;
  8. There is a need for closer liaison with the four services of the SANDF who pay the fees of the students, to assess whether they are getting value for money with regards to the Academy's graduates, as well as how the money spent compares to the costs of civilian universities;
  9. There is a need to review continuously and evaluate the relationship between the University and the Academy with explicit reference to degree accreditation and the conditions of employment of staff;
  10. The higher education assessment committee should look at the professional degrees offered by the Academy;
  11. Language policy needs to be reviewed with regard to practical matters such as meetings at tire Academy;
  12. Stellenbosch University needs to ensure that the Academy continues to achieve levels of academic excellence, but we need further scrutiny of the certificate and diploma courses;
  13. In the interest of academic excellence, the system of paying lecturers according to SANDF salary scales should be terminated. At present the Department of Defence is responsible for remuneration of academic personnel. It is very difficult to maintain quality when pay grades are so low. The fact is that the Academy competes against other universities and the private sector and needs to be resourced appropriately;
  14. There must be no further postponement of the filling of posts. Students suffer as a result of these long delays. Vacancies should be advertised and filled within three months at the latest;
  15. As noted above, the process for reporting and addressing complaints of sexual harassment needs to be addressed;
  16. The Academy, like every other higher education institution, must today grapple with the consequences of the criminal refusal of the apartheid government to provide quality education to black South Africans - and to prevent black educators from assuming high-ranking professional positions. There needs to be a systematic staff development and mentoring programme in place. The Finest educators will not simply come ready made: they will be trained;
  17. Highly motivated staff should be drawn into the effort to renew the Academy;
  18. Current funding levels are inadequate. Consideration should be given to Department of Education funding ,through the usual block grant, to supplement the Department of Defence's allocation for higher education;
  19. The Academy is planning to offer some distance education courses. This should be done in close cooperation with the Department of Education;
  20. The Committee needs to interact regularly with the Military Academy, the University and the Department of Defence to help address the many concerns raised during the visit, as well as the funding and other challenges facing the Academy;
  21. The Department of Public Works and the Department of Defence need to upgrade the barracks, buildings, recreational facilities, and computer and science libraries. The computer facilities for both students and staff need to be upgraded to the same level as those of the War and Defence Colleges; and
  22. In the Committee's view. it would be useful for a South African delegation to visit the Royal Military College of Canada, to observe how a multicultural society without a significant military posture in world-power politics has restructured and is educating its officer corps.


Kader Asmal, MP

Chairperson

Portfolio Committee on Defence


Appendix 1

Members of the Parliamentary Portfolio Committee on Defence Delegation to the South African Military Academy, 19 January 2005

Head of Delegation and Portfolio Committee Chairperson

Professor Kader Asmal


Members of Parliament:

Mr LN Diale

Mr NB FihIa

Mr PJ Groenewald

Ms CB Johnson

Dr GW Koornhof

Mr GP Mngomezulu

Mr S Moatshe

Ms XC Makasi

Mr SB Ntuli

Mr OE Monareng

Mr KW Morwamoche

Mr MRS Shah


Parliamentary Staff:

Mr G Campher

Dr M Parks