Post on 10-Jul-2020
Workshop Report
The SARPCCO Code of ConductTaking stock and mapping out future action
ISS
Wo
rksh
op
Re
po
rt
Edited and compiled bySean Tait, Cheryl Frank, Irene Ndung’u and Timothy Walker
16–17 March 2011, Johannesburg, South Africa
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© 2011, Institute for Security Studies
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Workshop Report
The SARPCCO Code of ConductTaking stock and mapping out future action
ISS
Co
nfe
ren
ce
Re
po
rt
Edited and compiled by Sean Tait, Cheryl Frank, Irene Ndung’u and Timothy Walker
16–17 March 2011, Johannesburg, South Africa
Workshop Report� i
Abbreviations and acronyms � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � �iii
Executive summary � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � iv
Introduction � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � �1
Sean Tait
Opening address � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � �3
Prof. Elrena van der Spuy
Promoting the implementation of the SARPCCO Code of Conduct � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � �5
Monitoring tools, their utility and application, and indicators for implementing the Code of Conduct
Amanda Dissel
Using the SARPCCO Code of Conduct to promote the rule of law � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � �6
The utility of the code in promoting the rule of law in Malawi
Jacques Carstens
Applying the indicators � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � �8
Lessons from the field
Katleho Pefole
Regional perspectives � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � �9
Towards more effective responses to organised crime in Southern Africa – Project results and implications for policing in the region
Annette Hübschle
Country inputs on implementing the Code of Conduct � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � 11
Challenges and opportunities – case studies
Zimbabwe � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � 11
Dr Martin Rupiya and Reginald Chidawanyika
South Africa � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � 12
Andrew Faull
Lesotho � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � �13
Katleho Pefole
Malawi � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � �13
Peter Ngulube Chinoko
Namibia � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � 14
Pauline Dempers and Sharon Kasanda
Tanzania � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � 14
Adv. Shilinde Ngalula
Democratic Republic of Congo � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � �16
Alain Kateta
Zambia � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � �16
Dr Robert Matonga
Mozambique � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � �16
Joao Jose Uthui
Discussion � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � 17
The value of assessing the application of the Code of Conduct � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � 17
Policing in Southern Africa � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � 17
Contents
ii� Institute for Security Studies
The SARPCCO Code of Conduct
Challenges in assessing compliance with the Code of Conduct � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � 17
Deepening the Code of Conduct – Advocacy opportunities � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � �18
Concluding remarks � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � �20
Cheryl Frank
Notes � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � �21
Appendix A
Group photo � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � �22
Appendix B
Workshop programme � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � �23
Appendix C
List of participants � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � �24
Appendix D
SARPCCO Code of Conduct � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � � �25
Workshop Report� iii
Abbreviations and acronyms
APCOF AfricanPolicingCivilianOversightForum
CSO Civilsocietyorganisation
DRC DemocraticRepublicofCongo
EROC EnhancingRegionalResponsesagainstOrganisedCrime
ICD IndependentComplaintsDirectorate
ISS InstituteforSecurityStudies
LMPS LesothoMountedPoliceService
NGO Non-governmentalorganisation
SADC SouthernAfricanDevelopmentCommunity
SAPS SouthAfricanPoliceService
SARPCCO SouthernAfricanRegionalPoliceChiefsCooperationOrganisation
TRC TransformationResourceCentre
iv� Institute for Security Studies
Theyear2011markstenyearsoftheSouthern
AfricanRegionalPoliceChiefsCooperation
Organisation(SARPCCO)CodeofConduct,which
laysdowntheSouthernAfricanpoliceforces’own
standardofpolicingtowhichtheyaspire.The
AfricanPolicingCivilianOversightForum(APCOF),
inpartnershipwiththeInstituteforSecurityStudies
(ISS)andwithfundingsupportfromtheUnited
KingdomDepartmentforInternationalDevelopment,
hostedaworkshoptodiscusstheapplicationofthe
CodeofConductandexploremeanstodeepenits
implementation.
Specifically,theobjectivesfortheworkshopwereto:
■ PromoteawarenessoftheCodeofConduct
■ Disseminateanddiscusstoolsformonitoring
theCode■ Discussstrategiestomonitorcompliancewiththe
Codeandencourageitsimplementation■ Identifylessonslearntinthedevelopmentandap-
plicationoftheCodeofConductthatarerelevantto
thedevelopmentofaSouthernAfricanDevelopment
Community(SADC)codeofconduct■ Encouragenetworkingandcollaborationamong
stakeholdersintheregion
Thisreportreflectstheproceedingsoftheworkshop.
RepresentativesfromallSARPCCOcountrieswere
invited,butunfortunatelytherewerenoattendeesfrom
Botswana,Swaziland,AngolaorMauritius.
Executive summary
Workshop Report� 1
In2011wemarktenyearsoftheSARPCCOCodeof
Conduct,whichlaysdowntheSouthernAfricanpolice
forces’ownstandardofpolicingtowhichtheyaspire.
Thisimportantworkshopformspartofaprogrammeof
eventsovertheyearbyAPCOFanditspartnerstoraise
awarenessandpopularisetheCodeofConduct,butalso
totakestockofeffortstoapplytheCode,celebrateits
achievementsandseekworkablestrategiestomeetthe
challengesthatitfaces.Overthepastdecadeandmore,
manySouthernAfricancountrieshaveundergoneand
continuetoexperiencepoliceforcesreforminterven-
tionswiththeviewto,amongotherthings,modernising
theiroperations,improvingtheirresponsivenesstothe
clientstheyserve,increasingorganisationaleffective-
nessandefficiency,andinstitutionalisingtheprinciples
ofdemocraticgovernance.
Considerableprogresshasbeenmadeinrecent
years,butsuchprogressisoftenundonewhenreports
ofpolicecorruption,brutalityandtorturearerevealed.
Keycrimecombatingandpreventionprojectsarelikely
tobehamstrungbythealienationofthecommunity
frompolicewhomaybeperceivedasbrutalorpartisan,
andthisislikelytohaveeffectsacrosstheregion.In
2001SARPCCOadopteditsCodeofConduct,which
representsanagreedstandardofoperationbythepolice
agenciesofSouthernAfrica.Itclearlysetsoutprinciples
ofintegrityandrespectforlifeandforthelawthat,if
robustlyapplied,couldgreatlystrengthencompliance
withhumanrightsstandardsandpromotetherule
oflaw.AssessmentsofcompliancewiththeCodeof
Conducthavebeennotablyabsentoverthedecadeof
itsexistence.However,thishasbeenhamperedbythe
factthatthereisnoreadilyavailabletooltomonitorthe
applicationoftheCodeandidentifyandpromotekeyin-
terventionsthatwouldencouragecomplianceandfocus
theresourcesofSARPCCO,theregion’spoliceservices,
policymakers,policeoversightagenciesandcivilsociety
onmeetingcommonobjectives.
In2010APCOFdevelopedaprojecttoidentifymoni-
toringindicatorsfortheSARPCCOCodeofConduct.The
objectivesoftheprojectareto:
■ Promotetheeffortsofandcapacitateexternalor-
ganisations,non-governmentalorganisations(NGOs),
researchandstatecivilianoversightbodies,etc.in
theireffortstomonitorthepolice■ Helppolicemanagersassesstheirownprogress
towardsimplementingtheCodeofConductandiden-
tifyareaspresentingchallenges■ PromoteSARPCCO’sroleinmonitoringtheimple-
mentationoftheCodeofConduct
Inthisworkshop,wewillmapouttheadvances,success-
esandchallengesinimplementingtheCode,andpresent
usefultoolstobothassessitsimplementationandraise
awarenessandunderstandingofit.Theworkshopis
strategicallyimportant.SARPCCOisbeingintegrated
intoSADC.AstatedobjectiveoftheStrategicIndicative
PlanoftheSADCOrganonPolitics,DefenceandSecurity
Cooperationistopromotethegoodgovernanceofpolice
organisationsintheregionthrough,amongotherthings,
promotingacodeofconduct.Theexperiencesofthe
SARPCCOCodeofConductprovideessentiallessonsfor
thisprocess.
Importantly,theworkshopalsoprovidesanetwork-
ingopportunityforcivilsocietyorganisations(CSOs)in
theregion.Networksonpolicereformarerecognised
ascriticalfacilitiesinpromotingethicalandaccount-
ablepolicing.Theserepresentthepotentialtoreach
widerconstituenciesandtranslateconceptsofnational
IntroductionSean Tait
Coordinator, APCOF
2� Institute for Security Studies
The SARPCCO Code of Conduct
securityforlocal-levelconsumption.Theabilityoflocal
communitiestointernalisetheneedforaccountablepo-
licingthatdeliverssafetyandsecurityfurtherdeepens
therolesuchcommunitiescanplayinsustainingthe
demandforgreateraccountabilityandtheirinputinto
futurepolicyinterventionstoprovidesecurityandguar-
anteethedemocraticprocess.1
Localcivilsocietynetworkscanbenefitimmensely
fromsupportattheregionalandcontinentallevelsin
theireffortstodeepenandmoveforwardthepolice
reformagenda.Comparativeexperiencesfromother
jurisdictionscanprovideusefulinsightandsupport.
Theycanrelievepressureonprocessesthatmighthave
becomeblockedinaparticularcountry,reducetensions
andaddtomutualsecurity.2
Specifically,ourobjectivesfortheworkshopareto:
■ PromoteawarenessoftheSARPCCOCodeofConduct■ DisseminateanddiscusstoolsformonitoringtheCode■ Discussstrategiestomonitorcompliancewiththe
Codeandencourageitsimplementation■ Identifylessonslearntinthedevelopmentandappli-
cationoftheCodeofConductthatarerelevanttothe
developmentofaSADCcodeofconduct■ Encouragenetworkingandcollaborationamong
stakeholdersintheregion
RepresentativesfromallSARPCCOcountrieswere
invited,butunfortunatelytherewerenoattendeesfrom
Botswana,Swaziland,AngolaorMauritius.
Workshop Report� 3
Whilethefocusofourdiscussionsforthenexttwodays
istheSARPCCOCodeofConduct,itmaybeusefulforus
tothink–howeverbriefly–inmorecomparativeterms.
Onedoesnothavetolookveryfarforexamplesofsuch
codes.Here,faith-basedcodeseasilycometomind,e.g.
theTenCommandmentsandtheFivePillarsofIslam.
Thenthereareprofessionalcodesofconduct,ofwhich
theHippocraticOathisprobablythebestknown.Inthe
decadeofthe1990swehaveseentheproliferationof
corporatecodes.Take,forexample,Shell’sCorporate
Code,whichemphasisestransparency,integrity
andhonesty.
Ofcourse,somecommonfeaturesaresharedacross
codesofconduct.Suchcodesdefineexpectationsand
setstandards,andtheyrepresentsymbolicstatements
thatrelyonadegreeofmoralauthority.Theyareframed
againstthebackdropofbroadervaluesandprinciples.
Codesofconductmayvaryinscope:theymaybeeither
vagueorspecific;theymaybeformulatedinbroador
narrowterms.Codesofconductcriss-crosstheprivate–
publicdivide:theyaretobefoundwithinbothstate
institutionsandthecorporateworld.Codesofconduct
cropuptooinCSOs,andtheymaybenational,regional,
internationalortransnationalinscope.Inaway,allcodes
ofconductprovideatleastsomeleverage(ofasocialand
politicalnature)topursueparticularobjectives.They
allcomeintobeingbecauseoftheeffortsofparticular
interestgroups(whichwemaywanttodepictasdrivers)
andtheyhavetomusterwidernetworksofsupport.
Codesofconductpresentonecomponentofawiderand
morecomplexprocessrequiredtoinstitutionalisethe
values,inculcatetheprinciples,andreinforceovertime
thespiritandletterofsuchcodes,andtomeasureand
monitoradherencetothem.Thequestionofcompliance
iscentraltoallcodesofconduct.Astrategicquestion
ofsomeimportanceisthushowbesttocreateincentives
forcomplianceandhowbesttocensurenon-compliance.
Engagementwithsuchstrategicquestionsiscriticalif
codesofconductaretohavewiderinfluence.
TheSARPCCOCodeofConductisaspecificvariation
onawiderthemeofidentifyingthevaluesandprinciples
onwhichorganisationalconductistobebased.Setting
normativetermsofreferenceforpoliceorganisations
withintheSouthernAfricanregionisachallenging
undertaking,giventhestateofpoliceinstitutions
withintheregionandthemanypoliticalchallengesthat
confronttheruleoflaw.Thesupportivedocumentsat
ourdisposalprovidesomecluesastothecontextwithin
whichtheCodewasformulated.Referenceisalsomade
tothedriversandmechanismsuponwhichtheinstitu-
tionalisationoftheCodewilldepend.TheCodemakes
specificreferencetohumanrightsvaluesandprinciples,
andsetsoutminimumstandardsforpoliceconduct.
Itmakesspecificreferencetotheparticularroleofthe
SARPCCOTrainingandLegalSub-committeesincreat-
ingenablingconditions.
ThewidercontextwithinwhichtheSARPCCOCode
ofConducthastobeunderstoodisthepost-ColdWar
contextwithinwhich(accordingtoHuntington)wehave
witnessedanotherwaveofdemocratisation.Itisperiod
ofregionalhistoryinwhichwehavewitnessedmany
attemptstowardsstaterestructuringandsecuritysector
andjusticereform.Itisalsoaperiodinwhichthedrift
towardstheregionalisationofsecurityismoreapparent
andwithinwhichtherearegrowingimperativesfor
policecooperation.Thelatter,itwouldappear,create
spacewithinwhichtheconversationaboutcommon
standardscanbepursuedmoreeasily.
TheSARPCCOCodeofConducthaslittletosayabout
themorestrategicquestionofcompliance.Thereisonly
Opening address Prof. Elrena van der Spuy
Centre of Criminology, UCT and director, APCOF
4� Institute for Security Studies
The SARPCCO Code of Conduct
superficialengagementwiththequestionofmonitoring
andassessingadherencetotheCodeamongindividual
policeorganisations.
Whileitisimportancetorecogniseeffortstoincul-
catenormativevaluesinpoliceorganisationswithinthe
region,wealsoneedtobeawareofthechallengesin
institutionalisingtheSARPCCOCodeofConduct.While
codesofthiskindareaspirational,itdoesnotmeanthat
theydonothavetoconfrontthegapbetweenwhat is
andwhat should be.Anotherwayoflookingattheissue
istorecogniseapotentialgapbetweenformalcodesof
conductandtheinformalcodesthatguidepoliceaction
onthestreet.Theseinformalcodesare,inthecaseof
policeorganisations,veryimportant.Policesub-culture
hasapervasiveinfluenceonthewayinwhichpolice
officersthinkandactwithintheeverydayroutinesof
theirwork.Thenormsthatguidesub-culturalpractices
maywellbeatoddswithformalisedcodesofconduct.
TheCodeespousesdemocraticvaluescongruentwith
abroaderpoliticalculturedefinedbyadherencetothe
ruleoflaw.Itpresupposesadegreeofprofessionalism
withinpoliceorganisationsthatenjoyadegreeofrela-
tiveautonomyfrompartisanpoliticalinterests.Noneof
theseassumptions,however,canbetakenforgranted.
Asaconsequence,weshouldacceptthateffortsaimed
attheinstitutionalisationoftheCodeofConductwill
havetobecreative,focusedandmultifaceted.
Inthenexttwodays,itisourtasktotakestock
ofhowfarwehaveprogressedandhowbestwecan
capitaliseontheopportunitiesouttheretocontinueto
popularisetheCode,mobilisesupportandengagewith
thelogisticsofimplementationinamorepragmatic
manner.Inrisingtothischallenge,wemaybewellposi-
tionedtodefineacourseofactionthatcanadvancethe
politicalleverageembeddedwithintheexistence–on
paper–oftheSARPCCOCodeofConduct.
Workshop Report� 5
TheSARPCCOCodeofConductisaminimumsetof
standardsforpolicingintheregion,characterisedby
acommitmenttomaintainingandpromotingethical
rights-basedandprofessionalpolicing.TheCodeis
derivedfrominternationalandregionalhumanrights
standardsandrepresentsacommitmenttoupholdand
implementtheserights.Itincludesareasofaccountabil-
ityandacknowledgespoliceresponsibilitiesinprotect-
ingandservingmembersofthepublicirrespectiveof
gender,ethnicorreligiousaffiliations,aswellasvictims
ofcrime.
TheCodeofConductdevelopedfromacontextchar-
acterisedbyagrowingdesirebystates,astheyemerged
fromconflict,toupholddemocraticandhumanrights
principles.However,observanceoftheCodeissubject
tomanychallengessuchasscarceresources,poorly
trainedorinsufficientpersonnel,militaristiccultures,
highcrimerates,corruptionandpublicpressureto
reducecrime,whichoftenfavouraheavy-handedap-
proachbythepolice.Despitethesechallenges,theCode
ofConducthasthepotentialtopromoteasetofshared
goals,programmes,practices,andstandardsforpolice
withintheregionthatareatthesametimeenshrined
inthehumanrightsstandardsandprinciplestowhich
SouthernAfricanstatesareparty.
TheapplicationoftheCodehasbeenhamperedby
thefactthattherehasbeennoreadilyavailabletoolto
measureprogressandidentifychallenges.Againstthe
abovebackground,thedevelopmentoftheindicatorsis
aimedatstrengtheninghumanrightsanddemocratic
principles,assistingstatesintheimplementationofthe
Code,andfosteringregionalcooperation.
Monitoringindicatorsareameansofmeasuring
performanceagainstagreedstandards.Theyprovidein-
formationonhowtomeetobligationsinaspecifiedarea
andtrackprogresstowardsadefinedobjective.
Indicatorshavetheabilitytotakecomplexinforma-
tionandpoliciesandmakethemunderstandable,so
thatinformationcanbecomparedovertimeinorderto
trackprogressorthelackthereof.Therearedifferent
kindsofindicators:strategicindicatorsareoftenar-
ticulatedatthehighestlevelofpolicy,e.g.animproved
levelofsafety;institutionalindicatorsarerelatedto
objectivessuchasincreasingthenumberofconvictions;
whileactivity-levelindicatorslinktowhatactivities
needtobetakentohelpreachthegoal,e.g.training
policingininvestigativeskills.
IncompilingtheSARPCCOCodeofConductindica-
tors,emphasiswasplacedonthosethatweremost
directlyunderthecontrolofthepolice,i.e.institutional
andactivityindicators.Onthisbasis,asetofindicators
wasdevelopedforeacharticleoftheCode.Eachindica-
torincludedameasuretoascertainiftheindicatorhas
beenmetandameansofverification,suchaslegislation,
statistics,mediaarticles,reports,etc.
Theexistenceofthesemonitoringindicatorsdoes
notmitigatetheknownchallengesofdatacollection.
Inmanyjurisdictions,legislation,annualreports,
publicstatementsandeventheconstitutionarenot
readilyaccessible.
Evenwherethisinformationisavailable,itisalso
importanttobalanceinformationfrompoliceandaddi-
tionalsourcessuchassurveys,focusgroups,interviews
andstudies.
Promoting the implementation of the
SARPCCO Code of ConductMonitoring tools, their utility and application, and indicators for implementing the Code of Conduct
Amanda DisselAPCOF
6� Institute for Security Studies
AccordingtotheWorldJusticeProject,whichisamulti-
nationalmultidisciplinaryefforttostrengthentherule
oflawglobally,thefollowingprinciplesarerecognisedas
keytounderstandingandframingeffortstopromotethe
ruleoflaw:
■ Principle1:thegovernmentanditsofficialsareac-
countableunderthelaw.Governmentpowersare
definedbylawandthereisclearseparationofpowers
amongtheexecutivelegislatureandjudiciary.
Checksandbalancesareinplaceandincludeinstitu-
tionssuchasauditorsgeneral,ombudsmen,public
protectorsandhumanrightscommissions.■ Principle2:thelawsareclear,accessible,fair,and
protectfundamentalrights,includingthesecurityof
personsandproperty.■ Principle3:theprocessesbywhichlawsareenacted,
administeredandenforcedareaccessible,fairand
efficient.■ Principle4:accesstojusticeisprovidedbycompetent
andindependentadjudicators,attorneysorrepre-
sentativesandjudicialofficerswhoaresufficient
innumber,whohaveadequateresourcesandwho
reflectthecommunitiestheyserve.
WhenreflectingontheutilityoftheSARPCCOCodeof
Conductinpromotingtheruleoflaw,clearsynergies
wereevident.Articles7(RuleofLaw)and9(Corruption)
linkedwithprinciple1articulatedabove.Articles1
(HumanRights),2(NonDiscrimination),3(Useof
Force),4(Torture),12(Confidentiality)and13(Property
Rights)linkedwiththesecondprinciple.Articles8
(Trustworthiness),10(Integrity)and11(Professionalism)
linkedwithprinciple3,andArticles5(Personsin
Custody)and6(Victims)linkedtothefourthprinciple.
Therewasweakuptakeandlowawarenessin
MalawioftheSARPCCOCodeofConduct,butdespite
thesechallenges,ithasclearpotentialforutilityin
promotingtheruleoflawinthecountry.Thisutility
isevidentonthreelevels.Firstly,itcanfunctionatthe
policylevelinshapingandinformingthepolicereform
agendainMalawi.Secondly,thereispotentialutilityat
themanagementlevelforguidingday-to-daypolicing
decisions,especiallyiftheCodeisproperlyintegrated
intothesystemoflocalpoliceorganisations;and,
thirdly,thereisadvocacyutilityinbeingabletohold
policetoaccount.
Inconclusion,promotingtheruleoflawinMalawi
throughtheSARPCCOCodeofConductcanbeadvanced
withthefollowingpointsofleverageinmind:
■ ThereisanexcellentopportunityfortheCodeto
betakenupiftheIndependentPoliceComplaints
CommissionandLayVisitorsschemeisoperation-
alised,asforeseeninthenewPoliceAct(2010),and
communitypolicingisconsolidated(lackoffunds
hasbeencitedbygovernmentasthereasonfornot
operationalisingtheseschemes).■ Thebasictrainingcurriculumforthepoliceshould
beoverhauledandcorruptrecruitmentpractices
stoppedsoastobringtrainingintolinewithinterna-
tionalbestpractice.■ TheCodeofConductshouldbepublicisedandpopu-
larisedtomakeitapartoftheeverydaybusinessof
policing.■ Iftakenupjointlywiththejusticesectordepart-
mentsandotherpartners,anassessmentofthe
MalawiPoliceagainsttheCodeofConductcan
strengthenresearch,monitoringandevaluation,
whichremainweakinMalawi.
Using the SARPCCO Code of Conduct to promote
the rule of lawThe utility of the code in promoting the rule of law in Malawi
Jacques CarstensTeam leader, Technical Facilitation Unit, Promotion of the Rule of Law and Civic Education
Project, Ministry of Justice and Constitutional Affairs, Malawi
Workshop Report� 7
Edited and compiled by Sean Tait, Cheryl Frank, Irene Ndung’u and Timothy Walker
■ AnassessmentoftheMalawiPoliceagainsttheCode
ofConductcanstrengthenCSOcoordination,col-
laborationandadvocacy,andincreasethefocuson
thedemandsideofpolicereform,especiallybynon-
stateactors,whoshouldbemoreassertiveincalling
forreforms.
8� Institute for Security Studies
Aresearchprojecttoassesstheperformanceofthe
LesothoMountedPoliceService(LMPS)intermsofthe
SARPCCOCodeofConductwasinitiatedwithamemo-
randumofunderstandingbetweentheTransformation
ResourceCentre(TRC)andAPCOF.Aresearchintern
wasrecruitedfromtheNationalUniversityofLesotho’s
DepartmentofSociologyandPoliticalScience.The
TRCprogrammemanageroversawdatacollectionand
assistedwithcontacts,communicationandtransport
logistics.Theresearchwascarriedoutoversixmonths.
Datawascollectedandcapturedandordereddata
reportedtotheTRCprojectmanagerthroughregular
progressreports.Thedatawascompiledintoatemplate
mirroringtheindicatortemplateandforwardedto
APCOFforanalysisandwritingup.Thecompleted
narrativewasthendistributedforcommentandinput,
includingtothepolice.
Thestudywasundertakenusingdocumentanalysis
andprimarydatacollection(interviews).Accesswas
negotiatedusingstandardethicalresearchmethodsof
requestingpermission,makingappointments,explain-
ingthestudyandclarifyingconfidentiality.
Datadatingbacktenyearswascollectedtocoverthe
periodoftheSARPCCOCodeofConduct.Documents
wererarelytakenawayunlessfreelyavailablepublic
documents.TheLMPSwasthekeyinformationsource.
Additionalsourcesincludedlibrarysearches,archives,
mediarecords,lawcourtrecords,hospitalrecords,
individualvictims,independentresearchers,published
documents,theLesothoConstitutionandotherlaws.
InterviewedinformantsincludedNGOs,membersof
Parliament,politicalparties,journalists,formerpolice
officers,magistrates,humanrightslawyers,theom-
budsman,thePoliceDirectorate,thePoliceInspectorate,
thePoliceComplaintsAuthority,tradeunions,etc.
Amongthechallengesencounteredwasthatthe
formalapproachwasverytimeconsuming.Documents
werediverseanddidnotnecessarilycorrelateover
periodandgeographicalarea.Oftendatawasneither
readilyavailablenorrelevant.Therewasreluctanceto
shareinformationwithcivilianandnon-stateactors,
despitethefactthatpermissionhadbeenobtained.
Oftenproblemsarosefromthefactthatthedocuments
simplydidnotexistorcouldnotbelocated.Difficulties
indatacollectionwereheightenedbythefactthatthe
policethemselveswerenotawareoftheCodeofConduct
ortheprinciplesitcontainedandcouldnotrefertoother
datathatmayhavecontainedthenecessaryinforma-
tion.Inhindsight,moretimewasneededtoprepare
theLMPSforthestudy.Thelegalnatureofmanyofthe
issuesbeingresearchedmeantthataresearcherwith
alegalbackgroundwasnecessary.Unfortunately,this
wasonlyrealisedoncethestudywasunderway,andit
causeddelaylateron.Corroboratingevidencewasalso
difficulttocomebyandinmanyinstancesevidencewas
incompleteandinconclusive.
Ontheotherhand,thestudywasassistedbygood
relationsandcooperationbetweentheTRCandthe
LMPS.Accesstootherinstitutions,suchasthelaw
courts,independentandstatemedia,Parliament,the
archives,etc.,wasgood.Theclarityandthoroughnessof
themonitoringindicatorsdocumentalsohelpedstruc-
turethestudyandthetechnicalassistanceprovidedby
APCOFwasveryhelpful.
Applying the indicatorsLessons from the field
Katleho PefoleTransformation Resource Centre, Lesotho
Workshop Report� 9
TheISS/SARPCCOEnhancingRegionalResponses
againstOrganisedCrime(EROC)Projectresearchedthe
patternsandfrequencyoforganisedcrimeintheregion
andtheirimplicationsforpolicinginSADC.Theproject
wasdevelopedjointlybetweentheISSandSARPCCO,
andwasconductedoverathree-yearperiodfrom
January2008toDecember2010.
Theobjectivesoftheprojectwereto:
■ Providein-depthinformationoncontemporaryor-
ganisedcriminalactivitiesinthesub-regiontopolicy
anddecisionmakers■ Analysethetransnationaldynamicsoforganised
criminalgroupsandnetworks■ Determinewhetherandtowhatextentlinksexist
betweenorganisedcrimeandterrorism■ Consideranddocumenttherolethatcorruptionplays
inorganisedcrime■ Evaluatethecapacityoflawenforcementagencies
inthesub-regiontoovercomeorganisedcrimeand
theireffectivenessindoingso■ Establisharegionaldefinitionoforganisedcrime■ Contributetobuildingthecapacityoflawenforce-
mentagenciestocombatorganisedcrimeby
providingresearchandanalysisofcrimetrends,
andregularsharingofinformationamongSARPCCO
membercountries
Thefirstprioritywastodevelopaworkingdefinitionof
organisedcrime.HerethePalermoConventionisusually
used;however,theprojectconsultedinordertofindits
owndefinition.Thedefinitionthatwassubsequently
agreeduponandusedwasthatorganisedcrimeis
‘crimecommittedbytwoormoreperpetratorswhoare
awareofeachother’sexistenceandgeneralroleandwho
areactinginconcert’.Organisedcrimeismeasuredin
termsofitsseriousnessbasedontheextenttowhich
itdemonstratespotentialoractualharm.Organised
crimeisalsocrimethatiscommittedrepeatedlyand
motivatedbytheprospectofmaterial(usuallyfinancial)
gain.
Themaindifficultiesencounteredduringthere-
searchincludedthefactthatquantitativeresearchwas
oftenimpossible,giventhelackofstatisticsanddata.
Qualitativeresearchwasthemajorsourceofinforma-
tion,butoftenthedataacquiredfrominformalsources
suchassexworkers,clubbouncers,andharbourworkers
wasdifficulttoverifyandconfirm.Researchersalso
hadtocontendwithaninherentdistrustofresearch
institutions.
TheEROCresearchestablishedthatthefollow-
ingconstitutedthetoporganisedcrimeactivitiesin
SouthernAfrica:
■ Thesmugglingandillegalimportationofgoodsand
counterfeitcommodities■ Theimportation/productionandsellingofdrugs■ Thesmugglingofstolenmotorvehicles■ Armedrobberies■ Thesmugglingofendangeredspeciesandrare
resources■ Financialcrimeandmoneylaundering,including
cybercrime■ Peoplesmugglingandhumantrafficking■ Stocktheftandcattlerustling■ Corruption
Themostcommonlysmuggledcommoditiesacross
borders,whereapplicabletoevadetaxesonthese
goods,aredrugs,vehiclesandvehicleparts,petroland
Regional perspectivesTowards more effective responses to organised crime in Southern Africa – Project results and implications for policing in the region
Annette HübschleEROC Project, ISS
10� Institute for Security Studies
The SARPCCO Code of Conduct
diesel,firearms,counterfeitbanknotes,counterfeit
audio-visualmaterials,electronics,alcoholicbeverages,
pharmaceuticalandcosmeticproducts,sugar,cattle,
flour,constructionmaterials,meat,fruitandvegetables,
cigarettes,tobaccoandtobaccoproducts,andpeople.
Someofthesecrimesareregardedasprioritycrimes
bySARPCCO.Cigarettesmugglingisregardedasaprior-
itycrimeandtheproblemistwofold:ontheonehand,
genuinequality/brandcigarettesaresmuggledacross
nationalborderstoavoidtaxation,whileontheother
hand,illicitlyproducedorcounterfeitcigarettesare
floodingregionalmarkets.Oftenonlytherunnersare
apprehended.Finesdonotdetercriminals.Policealso
donotfollowupondistributors,astheyusuallyreside
outsidethepolice’sareasofjurisdictionandoftenhave
linkstohigh-rankinggovernmentofficials.
Thereisalsoanemergingmarketforcounterfeit
medicinesandcosmetics,whichcanhaveserioushealth
implications.Thesepredominantlyoriginatefromthe
FarEast,inparticularChinaandIndia.
FollowingtheISSpresentationoffindingstothe
SARPCCOPermanentCoordinatingSub-committee,
thesecrimeswereelevatedtoSARPCCOprioritycrimes.
Inthelastfiveyears,thecultivation,smugglingand
consumptionofdrugshavebecomeoneofthegreatest
organisedcrimeconcernsinSouthernAfrica.Domestic
SouthernAfricanconsumptionofso-calledharddrugs,
includingheroin,cocaineandmethamphetamines,has
escalatedinthelastdecade.
Drugtraffickingisalsoincreasinglyconnected
tootherformsofcrime,especiallythesmugglingof
endangeredspecies,rareresources,preciousmetals
andstones,andcounterfeitgoodsandcommodities.In
regardtowhoisinvolvedintheseactivities,themyth
ofan‘alienconspiracy’oraforeign,importedMafia-
typestructurehadbeendebunked.Rather,indigenous
Africanorganisedcrimeisfirmlyentrenched.Even
wherenon-SouthernAfricannationalsareinvolved,itis
impossibletotalkofdominationbyaforeigngroup,but
ratheroftheexistenceofamultinationalnetwork.
Humantraffickingandpeoplesmugglinghavenot
seenthelevelsvariousinter-governmentalbodies
warnofandisnotspirallingoutofcontrolintheSADC
region.Ithadbeensuggestedthatthousandsofpeople
wouldbetraffickedtoSouthAfricaintherun-upto
the2010SoccerWorldCup,butresearchhasdisproved
this,includingfieldworkthatwasundertakenaspart
oftheEROCProjectandpreviousISSstudiesonhuman
traffickinginSouthernAfrica.Thesestudiesnotethat
lawenforcementagenciesandotherstendtoconflate
theconceptsof‘humantrafficking’,‘prostitution’
and‘peoplesmuggling’.Althoughitisnowcommon
knowledgethatthereiscontinuousmovementacross
nationalborders,lessthanwasthoughtishumantraf-
ficking.Afewisolatedcasesofhumantraffickingwere
identified,butthisconstitutesafarcryfromaregional
trendofmassivecross-bordertraffickinginpersons.
Peoplesmugglingandimmigrationoffencesareof
muchgreaterconcern.
Researchintothetradeinendangeredspeciesand
rareresourcesrevealedittobeahighlyprofitable
organisedcrimesysteminmanypartsoftheregion.The
groupsinvolvedconsistedofbothsmallopportunistic
gangsandhighlyorganisedandextensivelylinked
groupswithhigh-techequipmentandlightaircraft.
Inconclusion,themainfindingsregardingpolicing
were:
■ Policingisreactiveratherthanpreventative.■ Thereislimitedintelligencegathering,in-depth
investigationsandinformationsharing.■ Thereisalackofclearmandates–whoisresponsible
fororganisedcrimeinvestigations(CIDversusspe-
cialisedunitsversusorganisedcrimeunitsversus
intelligencebodies)?■ Thereisalackofcooperationbetweendifferentlaw
enforcementauthorities.■ Capacitybuildingandtraininglacksfollow-upand
practicalimplementation.■ Poorcomputerandintranetnetworkshamperscom-
municationandthesharingofinformationinternally
andwithpartnerorganisations.■ Thereisalackofspecialisedtraining,especially
computer,forensicsandcrimescenemanagement
training.■ Humanrightsabuses,lackofethicalconductand
corruptbehaviourduringinvestigationscompromise
effortstocombatorganisedcrime.■ Ahierarchicalstructureandmilitaryculturelimit
cooperativeworkingrelationshipsandincrease
victimisation.■ Gendermainstreamingislacking.
Workshop Report� 11
ZIMbAbWEDr Martin Rupiya Executive director, Centre for Defence Studies, University of Zimbabwe and CEO, African Public Policy and Research Institute
Reginald Chidawanyika Lawyer for Human Rights
SouthernAfrica,andAfricaitself,arenotuniformly
similar.Differentcontextsforpolicingexist.Thisises-
peciallytrueinenvironmentsconstitutedandinformed
byatransitionalagreement,asisthecaseinZimbabwe.
Itisthereforeimportanttodrawattentiontothebroader
contextandtodosobydrawinguponverifiableempiri-
calsourcesofinformationaboutthesituation.
Motivationsforpeaceandstabilityaredrawnfromthe
observationthatinmanyAfricancountries,successful
electionshavestrengtheneddemocraticinstitutionsand
practiceswhileenhancingopportunitiesforeconomic
growth.Inothercountries,credibleelectionshavepaved
thewayfornationalreconciliationandareturntocivilian
ruleafterperiodsofarmedconflictandcivilwar.Even
so,simplyholdinganelectionisnopanaceaforconflict
resolution,asflawedelectionshavesparkedviolenceand
furtherpolariseddividedsocietiesanderodedpubliccon-
fidenceininstitutions,politicsandelectoralprocesses.
Regardingelections,thesixcriticalfunctionsthat
securityforcesmustfulfilintheirroleareasfollows:
■ Theymustrecognisethatelectoralsecurityispart
ofthelargerhumansecurityframeworkandaccord-
inglyensurethatduringelectionspriorityisplaced
onprotectingcivilians.■ Theymustfulfiltheirinstitutionalresponsibilitiesof
ensuringimpartialityintheconductoftheirofficial
missionsduringtheentireelectoralprocess.
■ Theyneedtoactivelyparticipateinnational,sub-na-
tionalandlocal-levelelectoralcoordinatingbodiesin
ordertomaximiseintra-governmentcooperationand
coordinationduringandbetweenelectoralprocesses.■ Therolesoftherespectivesecurityforcesareclearly
definedintheprovisionofelectoralsecuritywith
thepreferencethatthepoliceplaytheleadroleinan
integratedeffortthatcandrawuponsupportfrom
themilitaryifnecessary.■ Electoralassessmentsshouldbeconductedandse-
curityplanspreparedinadvanceoftheelectionday
inordertoensurethattraininghasbeenconducted,
communicationnetworksareinplaceandresponse
capacityhasbeentested.■ Securityforcesmustmaintainhighstandardsof
professionalismduringallphasesoftheelectoral
process.
Theimpactofbadgovernanceonpolicing,while
moresubtleinthepast,hasbeenacharacteristicof
Zimbabwethroughoutitshistory.Itwasacharacteristic
oftheviolencethatmarredthe1995one-partystateand
subsequentemergingdemocracy.In2000farminvasions
demonstratedthewayinwhichpolicedidnotuphold
thelaw.In2005OperationRestoreOrdersawprolific
policeabuseofinformalsettlementsandtraders.The
violenceandintimidationthatmarkedthedisputed
2008electionescalatedtheincidentsofpoliceabuse
andclearlydefinedthepoliceascarryingoutregime
policing.ThepoliceresideundertheDepartmentof
HomeAffairsandareoperationallyunderthecommand
ofacommissionergeneralwhoreportsdirectlytothe
president.Promotionsandrecruitmentwerealsoskewed
infavourofso-calledwarveterans.Currently,withthe
announcementoffurtherelections,thepoliceareagain
Country inputs on implementing the Code of Conduct
Challenges and opportunities – case studies
12� Institute for Security Studies
The SARPCCO Code of Conduct
beingusedasapoliticalinstrumenttoarrestopposition
membersandharasscivilsociety.TheGovernmentof
NationalUnitypresentsanopportunitytotakesecurity
sectorreformforward.However,thereformofthepolice
forceremainsoutstanding.
ZimbabwecouldserveasatemplateforSARPCCOto
fashionprogrammesforpolicereform.Whilethesituation
inthecountrymaynotatpresentbeconducivetosuch
reforms,theSARPCCOCodeofConductisnonethelessan
effectiveandunobtrusivewayoffulfillingotherobjectives
regardingtheachievementofpeaceandsecurity.
SouTh AFRICAAndrew Faull Researcher, Institute for Security Studies
TheSouthAfricanpolicehavehadtodealwithtwo
conflictingnarrativesoftheirroleandconduct,neither
ofwhichisintheascendancy,thuscreatingsignificant
frictionandconfusionamongpoliceoverwhichnarra-
tivetofollow.
Thefirstnarrativeisthatofthewaroncrime,in
whichthepoliceaimtocommunicateamessageoffear
tothecitizenrybycreatingacriminal‘other’.Policing
thatistoughoncrimeispopularandpopulist.However,
thisnarrativeanditsaccompanyingrhetoricultimately
contradicttheinternationalacceptedprinciplesof
policingascontainedintheSARPCCOCodeofConduct.
Suchacontradictionoccurswithregardtonon-discrim-
inationandrespectforallpersons,asitcreatesaspace
inwhichentiregroupscanbelabeled‘criminal’andso
exposethemtopoliceabuse.
Thesecondnarrativeisthatofapoliceforcethatis
primarilyconcernedwithrespectforhumanrights,due
processandthelaw.Itislessfrequentlydrawnupon
inthediscoursearoundpolicing,butthismessageis
unfortunatelyrenderedambiguousbythepresentfocus
onthewaroncrimenarrative.Thehardlinerhetoric
detractsfromemphasisoninternationallyrecognised
principlesofpolicepracticeandtheagreedethicsand
valuesintheSouthAfricanPoliceService(SAPS)and
suggestsa‘catchthematallcosts’approachthattrumps
respectforhumanrightsandprofessionalpolicing.
TheSAPShasadetailedCodeofEthicsandCodeof
Conduct,whichcoverthebulkofthecontentcoveredin
theSARPCCOCodeofConduct.AllmembersoftheSAPS
mustsignthesecodes.However,thevalueslaidoutin
themarenotalwaysadheredto.
TheSAPSisthelargestandbest-resourcedpolice
agencywithinSARPCCO.TheSAPSunderwentmajor
reformintheearly1990sandoperatesinanenvironment
characterisedbyhighlevelsofviolentcrime.Crimeand
policingarehighlypoliticisedissuesinSouthAfrica.
Crimereductiontargetsexpressedintermsofpercent-
ageshaveledtoanorganisationalcultureobsessedwith
reportedcrime(leadingtonon-reporting,theturning
awayofvictims,statisticmanipulation,etc.).
TheSAPShasgrownbyapproximately80000
toaround195000membersinthepasttenyears.
Quantityisemphasisedratherthanquality,andrecruits
areabsorbedintoanorganisationthatisdrivenby
performancepressure.
Inthepost-apartheidera,SouthAfricahaswitnessed
ashiftinthediscourseofpolicing,whichisnotably
manifestedinthechangeofreferencestothenamefrom
theSouthAfricanPoliceServicetotheSouthAfrican
PoliceForcebyitsleadership.3Constitutionally,theSAPS
remainsa‘service’,whichhasresultedinambiguous
communicationtoitsmembers.Theintroductionof
militaryranks,intendedtoimprovediscipline,hasalso
contributedtotheconfusion.
Ambiguitycanalsobeseeninthetrainingthat
thepolicehavereceivedtodate,whichhasfocusedon
theserviceelementinpolicing.Thesubsequentshift
infocustowardsamoreforcefulapproachtopolicing
appealstoboththepublicandpoliticians,buttheproper
courseofactionthatthepoliceareexpectedtotake
nowrequiresclarification.Thisdualnarrativemakesit
difficultforoperationalpolicetointerprettheirmandate
andknowwhatisnormativelyexpectedofthem.
ThemainchallengesidentifiedwithpolicinginSouth
Africarevolvearounddiscipline,leadershipandcor-
ruption.Thisiscomplicatedbyconcernsregardingthe
SAPSleadership,withrecentallegationsmadeagainst
seniorpoliceleadershipregardingnepotisticpromotions,
irregularfinancialmanagementandabuseofcrime
intelligence.Theseclaimshavethreatenedtoupsetposi-
tivegainsmadebytheSAPS.Toaddtothesechallenges,
controversiespersistaroundtheuseofforce,deaths
inpolicecustodyorasaresultofpoliceaction(908in
2009/10,upfrom792in2007/08),andtorture.
ThereisalsoagrowingperceptionoftheSAPSas
corrupt,buttheorganisationhasbeenalmosttenyears
withoutestablishedanti-corruptionsystems.Inthis
context,groupsolidaritysupersedespeeraccountability,
withalackofreportingandpoorcommandandcontrol,
whichiscompoundedbydisparatepromotions.
Goodpolicingemergesinacontextinwhichpolice
officershavefaithintheirleadershipandwhereleaders
behavelikeidealpoliceofficers.Suggestionsthatleaders
arebeyondreproachcreatespacesinwhichotherpolice
feelfreetoignorecodesofconductorstandingorders.
AnotablechallengefacingtheSAPSisthatleadership
isseenasbeyondreproach,andthatdecisionsarenot
basedontheConstitutionandCodeofConduct,butare
guidedbyalternativeagendas.
Workshop Report� 13
Edited and compiled by Sean Tait, Cheryl Frank, Irene Ndung’u and Timothy Walker
Therewere,however,numerousopportunitiesfor
improvement,suchasthefactthattheSAPShastens
ofthousandsofhonest,dedicated,service-oriented
members.TheSAPSalsohasnumeroussystemsthat
(althoughtheycanbeenhanced)allowforchecksand
balancesinpolicingandpersonnelmanagement.These
systemsincludesystemsofinternaldiscipline.Atotal
of1421caseswereresolvedin2009/10.Othersystems
includetheexistenceofstrongunionsandthefact
thatallmemberssigntheSAPSCodeofConduct.SAPS
membersalsoworkunderfairlygoodconditions,are
wellresourcedwithfairlygoodpay,andenjoyemployee
supportservicessuchascounsellingandfinancial
management.Furthermore,policetraininghasbeen
extendedtotwoyearsfrom2011.
Furtheropportunitiescanbeidentifiedinlegislation
andindependentcivilianoversight,wherevibrantover-
sightarchitectureexists,includingcommunitypolicing
forums,theIndependentComplaintsDirectorate(ICD),
theCivilianSecretariatofPolice,themedia,opposition
parties,anindependentjudiciaryandcivilsociety.The
SouthAfricanpopulation,includingnon-citizens,is
alsoanincreasinglyempoweredone,augmentedby
thegrowthofsocialmedia.Areasfornewlegislation
alsoexisttofurtherempowertheICDandCivilian
SecretariatofPoliceandtocriminalisetorture.
Importantchallengesthatremainincludeissuesof
discipline,commandandcontrol,andinternalover-
sight.Internaloversightmechanismsremainweakin
theirapplicationandshouldbestrengthened.However,
solongasapopulist‘toughoncrime’discoursedomi-
natesinSouthAfrica,therewillalwaysbeloopholesfor
policetoescapesanctionasaresultofcontraveningthe
CodeofConduct.
LESoTho Katleho Pefole Transformation Resource Centre, Lesotho
TheLesothoMountedPoliceService(LMPS)ishighly
politicisedandfeared,andthereisworryingcompetition
betweentheLMPSandthemilitaryoverthedistribution
ofresources.Frequentcomplaintsaremadethatthe
militaryisfavouredoverthepolice.
Policetrainingisyetanotherconcern,giventherela-
tivelyshortperiodofsixmonths’basictraining.Whether
thisisanadequateamountoftimetofullycoverallareas
ofpolicingisdebatable.Accordingly,thereisincreasing
interestinpolicetrainingandeducationinLesotho.
Thereisapowerfuloutreachandpublicrelations
systeminplace,withastrongpolicemediathatcom-
peteswithothermediaincreatingpublicawarenessand
raisingsupport.
PoliceoversightInLesotho,however,isweak.Despite
theestablishmentofoversightandcomplaintbodies
withinthepoliceforce,primaryaccesstothesebodiesis
throughthestate.Complaintsfromprivatecitizensmust
firstbedirectedthroughtheInternalSecurityMinistry.
Privatecitizensdohaveaccesstocourtsandtheom-
budsman,butthelatterbodiescanonlyoffergeneral
recommendationsagainstcomplaints.
Thereisanefforttoaddressgenderimbalancesinthe
LMPSwithfemalepromotionandtheestablishmentof
theChildandGenderProtectionUnittoaddressdomes-
ticviolencecases.Sincethisunitwasestablished,there
hasbeengrowingawarenessoftherightsofwomenand
childreninLesotho.
Ongoingtensionexistsbetweenlawenforcementele-
mentssuchasthepolice,andtraditionalandcustomary
lawdeterminedbychiefs.
MALAWIPeter Ngulube Chinoko Executive director, Catholic Commission for Justice and Peace
ThegeneralfunctionsofthepoliceserviceinMalawi
includetheprevention,investigationanddetectionof
crime;theapprehensionofoffenders;thepreservation
oflawandorder;andtheprotectionoflife,property,
fundamentalfreedomsandtherightsofindividuals
throughtheenforcementofalllawsthatthepoliceare
directlychargedtouphold.
Regardingthepowers,dutiesandprivilegesofthe
police,officersarecompelledtoobeyalllawfuldirec-
tionsinrespecttotheexecutionoftheirdutiesand
promptlyobeyandexecuteallordersandwarrantslaw-
fullyissuedbyacompetentauthority.
Notableprogresshasbeenmadetoincreaserespectfor
humanrightsinMalawi,andtherehasbeenprogressive
improvementinawarenessoftheserights.However,atthe
sametime,fundamentalrightsareoftenbeingcurtailed.
Thepowersgrantedtothepolicetousefirearmsinthe
exerciseoftheirdutyisacontroversialissueinMalawi.
Theuseoffirearmsispermittedifanypersoninlawful
custodyisattemptingtoescape,andmaybedirected
againstanypersonwhobyforcerescuesorattemptsto
rescueanyotherpersonfromlawfulcustodyandany
personwhobyforcepreventsorattemptstopreventhisor
herownlawfularrest.Thisleaveswidelatitudeforabuse
andhasbeenexacerbatedbyrecentpoliticalstatements
thathaveintimatedthatashoot-to-killpolicyisinplace.
Arecentdevelopmentthatpreventsassemblyinfront
ofgovernmentbuildingshasthepotentialtoimpactnega-
tivelyonfreedomofassemblyandexpression,andonthe
roleofthepoliceinmanagingsuchdemonstrations.People
arelikelytoassembleinfrontofstatebuildingsdueto
14� Institute for Security Studies
The SARPCCO Code of Conduct
theirsymbolicvalue,andtheprohibitionofsuchprotests
isaworryingtrend,especiallyinthecurrentcontext.
Apositivedevelopmentinregardtonon-discrimina-
tionisthat‘bad’officersarebeingprosecuted,butthisis
temperedbyhowthepolicehave,onoccasion,beenused
bytheexecutivetoarrestmembersoftheopposition.
TheIndependentComplaintsCommission,whichis
empoweredtoreceiveandinvestigatecomplaintsbythe
publicagainstpoliceofficersandthepoliceservice,to
investigatedeathsorinjuriesasaresultofpoliceaction,
andtoinvestigatealldeathsandinjuriesthatoccurin
policecustody,isyettobeestablished.
Inrelationtotortureandcruel,inhumanordegrad-
ingtreatment,Malawiwascommendedforpassingvery
clearlegislationthataimstostopanyoccurrenceof
thesecrimes,butatthesametimethebeatingofthose
inpolicecustodycontinues.Itisalsocommendablethat
personsincustodyhaveaccesstomedicalcare(includ-
ingantiretrovirals),itiseasyforrelativestovisitthose
incustodyandlegalcounsellinghasbeenmadeavail-
able.Oneofthemostpositivedevelopmentsthathas
beennotedisthatthereisincreasingsupportforvictims
ofcrimethroughvictimsupportunitsandcounselling.
Thisdevelopmentalsoindicatesthattheprofessional
conductofthepoliceisimproving.
Inconclusion,Malawiansshouldcontinuetostrive
foranindependentpoliceforcethatrecruitsaccording
tomerit.Thisprocessshouldbesimultaneouslycomple-
mentedbyareviewofarchaiclaws.
Buildingademocraticpoliceforcecanbeassistedby
increasingcommunityawarenessoftheSARPCCOCode
ofConductamongcivilsocietyinMalawi.ThePolice
TrainingSchoolshouldalsocontinuetobeorientatedto
upholdingtheCode–currentlymostjuniorofficersare
notawareofitsexistence.
NAMIbIAPauline Dempers National coordinator and co-founder, Breaking the Wall of Silence Movement
Sharon Kasanda LED project coordinator, Urban Trust of Namibia
TheNamibiaPoliceServicewasestablishedinthe
1990s.Duetothepoliticalhistoryofthecountry,
ex-combatantswererecruitedintothepolicewithout
necessarilyreceivingpolicetraining,andthishas
causedproblemsespeciallyregardingthecredibility
andprofessionalismofthepolice.Thereisnoformal
forumforinteractionbetweenthepoliceandthepublic
andthereforelittlespacetoencourageengagement.
Nonetheless,civilsocietyandthepoliceinNamibiahave
agoodworkingrelationship.
TheSARPCCOCodeofConductisneitherwellknown
norwidelyusedinNamibia.Thisisattributedtotheper-
ceptionthattheCodeisjustanotherregionalarrange-
ment.Instead,policeconductisgovernedbytheexisting
PoliceActof1990andtheConstitution.Theexisting
legalregimeisseentocaterforthearticlescontained
withtheSARPCCOCode,however.
AnumberofchallengesfacethepoliceinNamibia,
withpolicetrainingremainingoneofthemostsignifi-
cant.Currently,traininglastsforsixmonthsanditisde-
batablewhetherthisisadequateforthecomprehensive
acquisitionofrequisitepolicingskills.Concernaround
excessiveuseofforcebythepoliceisongoing.Thelack
ofresourcestoeffectivelycarryoutpolicedutiesis
anotherareaofconcernandresultsinslowresponse
timesthatunderminepolicecapability.
Thepublicarealsonotawareoftheirrights.
Membersofthepubliccontinuetomistrustthepolice
andasaresultdonotreportcrimesforfearofbeing
victimisedorbrandedascriminalsthemselves.
ChallengesfacedbyCSOsinseekingtounderstand
thechallengesfacedbythepoliceincludedifficulties
withinformationanddatagathering.Whendatais
finallyreceived,itisoftenoutdated.Therearealsofew
credibleoversightagenciesandaccessiblemonitoring
toolsforholdingthepoliceaccountable,especiallywhen
humanrightsareviolated.
Recommendationsforovercomingtheabovechal-
lengesincludetheneedtoraiseawarenessofwhatis
consideredtobedesirablepolicing.TheSARPCCOCode
ofConductcouldbeusefulinthisregard.Secondly,
civilsocietyshouldengagethepoliceagreatdealmore,
includingdraftingshadowreportswhentheopportunity
permitsandlobbyingandadvocatingforthereformof
outdatedlawsandtheintroductionofneededlegislation
suchasthatpertainingtoaccesstoinformation.
TANZANIA Adv. Shilinde Ngalula Legal and Human Rights Centre
ThepoliceforceinTanzaniaisgovernedbytheUnited
RepublicofTanzaniaConstitutionof1977;thePolice
ForceandAuxiliaryServiceAct,Cap.322oftheLaws
ofTanzania,whichestablishesthepoliceforceandits
broadfunctions;thePoliceForceandPrisonService
RegulationsActof1995,whichlaysdownstaffregula-
tions;andtheCodeofConductandthePoliceGeneral
Orders,whichprovidefortheday-to-dayoperationsof
thepoliceforce.Otherlawsthattouchonpoliceduties
andfunctionsincludetheTanzaniaPenalCode,Cap.
16;theCriminalProcedureActof1985;theEvidence
Actof1967;thePreventionofTerrorismActof2002;
Workshop Report� 15
Edited and compiled by Sean Tait, Cheryl Frank, Irene Ndung’u and Timothy Walker
internationallaw;UNconventionsanddeclarations;and
bilateraltreaties.Regionalconsensusandgroupresolu-
tionsalsogovernpolicinginTanzania.
ThepowersandfunctionsofthepoliceinTanzania
includethepreservationofpeace;themaintenanceof
lawandorder;thepreventionanddetectionofcrimes;
theapprehensionandguardingofoffenders;andthe
protectionofpeopleandproperty.
Internalandexternaloversightandaccountability
mechanismsgovernthepoliceinTanzania.Senioroffic-
ersarechargedinaccordancewiththePoliceForceand
PrisonServiceRegulationsActof1995.Juniorofficers,
ontheotherhand,aregovernedinaccordancewiththe
PoliceGeneralOrdersof2006.
ExternaloversightofthepoliceinTanzaniaisexer-
cisedbyParliamentthroughparliamentarycommittees,
therelevantministryorthroughthecourts.Legalpro-
ceedingsareinstitutedforcivilandcriminalactscarried
outbybothseniorandjuniorstaff,whoarechargedin
accordancewithcivilandcriminallaw.Forcriminalacts,
accusedofficersaresuspendedpendinghearingoftheir
casesincourts.Otherexternaloversightmechanisms
includespecificprobecommittees,theCommissionof
HumanRightsandGoodGovernance,thePreventionand
CombatingofCorruptionBureau,andcivilsocietyand
themedia,whoplayawatchdogrole.Regionalandinter-
nationalactorsalsooverseepoliceworkandholdthem
accountableforviolationsofinternationallaw.
PublicexperienceofpolicinginTanzaniaischar-
acterisedbyillegalarrestanddetention,tortureand
excessiveuseofforce,corruption,partiality(especially
experiencedduringpoliticalrallies),extra-judicial
executions,andabuseofdueprocess.Thisiscontraryto
theexpectationsthepublichaveofademocraticpolice
organisationthatissupposedtobeaccountabletothe
law,democraticstructuresandthecommunity;should
betransparentinitsactivities;andshouldgivepriority
toprotectingindividualrightswhileprovidingprofes-
sionalservices.Itshouldalsoberepresentativeofthe
communityitserves.
OtherchallengesfacingpolicinginTanzaniainclude
inadequateinfrastructureandequipmentsuchasinfor-
mationtechnology,ineffectiveinstitutionalframeworks,
andbudgetarylimitationsandconstraints.
PolicereforminTanzaniacanbetracedtothesocial,
economicandpoliticaltransformationsofthe1980sand
1990s.Thesetransformationsresultedintheintroduc-
tionofaliberaleconomyanddemocracythroughthe
introductionofamulti-partypoliticalsystemandthe
incorporationofbasicrightsintotheConstitution.In
respondingtothesechanges,thegovernmentinitiated
broad-basedpoliciessuchastheNationalDevelopment
Vision2025,thePovertyEradicationStrategyandthe
PovertyReductionStrategy.Majorreformprogrammes
includethePublicServiceReformsProgramme,the
LocalGovernmentReformProgramme,thePublic
FinancialManagementReformProgramme,theNational
Anti-corruptionStrategy,theLegalSectorReform
Programmeandthestrengtheningofthebusinessenvi-
ronmentinTanzania.
ThevisionofthePoliceReformProgramme
2006–2015istohaveaprofessional,modernand
community-centredforcewithamissionofestablishing
amoredispersed,visible,accessibleandservice-oriented
policeforcethatinteractsfreelywiththecommunityin
theprotectionofthelifeandpropertyofallpeople.The
reformsarealsoaimedatintroducingcommunitypolic-
inginordertoenhancepartnershipswiththepublic.
Theaimofa‘professional’forceistohaveaworkforce
thatcanmaintainlawandorderandupholdtherule
oflawwhilerespectinghumanrightsprinciplesand
standards.
Someofthesuccessesofthereformssofarinclude:
■ TheintegrationbythePoliceAcademyofhuman
rightsprinciplesandtheteachingofcustomercare
skillsinitscurriculum■ TheestablishmentoftheTanzaniaFemaleNetwork,
which,amongotherthings,hasfacilitatedtheestab-
lishmentofgenderdesksatpolicestations■ Theintroductionofcommunitypolicingandthe
publicationofself-helpkitsforsuchpolicing■ Theestablishmentofpolicewebsitesandthefacilita-
tionofaccesstopoliceinformation(includingsuch
basicinformationastelephonenumbers)■ ThereductionincrimeratesandprevalenceofHIV/
AIDSamongpoliceofficers
TheSAPRPCCOCodeofConductisamongmanyinter-
national,regionalandsub-regionalinstrumentsthat
providestandardrulesforpolicerespectfortheruleof
lawandhumanrightsprinciples,andproperstandards
forpolicewhenexecutingtheirdutiesandfunctions.
However,someofthechallengeswithimplementing
theSARPCCOCodeofConductinclude:
■ Thelackofmechanismsforenforcingcompliance
withtheCode■ TheCode’slackoflegitimacy,becauseithasnotbeen
ratifiedbystateauthorities■ Theabsenceofadvocacyandlobbyingstrategiesfor
implementingtheCode■ Theabsenceofmonitoringandevaluationtoolsfor
theimplementationoftheCode■ Thelackofindicatorsforoutcomesresultingfromthe
implementationoftheCode
16� Institute for Security Studies
The SARPCCO Code of Conduct
■ ThelackofcommunityawarenessoftheCodein
Tanzania
TheongoingpolicereformprocessinTanzaniarepre-
sentsagoodopportunitytointegratetheSARPCCOCode
ofConductintotheTanzaniaPoliceForce.
DEMoCRATIC REPubLIC oF CoNgoAlain Kateta Avocats des Droits de l’Homme
TheDemocraticRepublicofCongo(DRC)isavastcountry
withapopulationofapproximately65millionpeople.It
isborderedbyninecountriesandisstillrecoveringfrom
decadesofconflict.Foralongtime,theDRCdidnothave
apoliceforce,whichwasonlyestablishedin2002.
Giventhepoliticalhistoryofthecountry,thepolice
forcefacesmanychallenges.Thelackofapoliceacademy
fortrainingpolicerecruitsiscitedasacriticalchallengefor
thecountry.Thisisparticularlysogiventhenumberofex-
combatantsrecruitedintothepoliceforcewithoutappro-
priatetraining.PublicperceptionofthepoliceintheDRC
isoneofdeepmistrust.Policeofficersarewidelyperceived
asbeingbrutal,inefficientandcorrupt.Theharassmentof
humanrightsdefendersbythepoliceisalsoprevalent.
Thepolice–populationratiointheDRCislowat1
policeofficerforapproximately1143people.Stationsare
alsolocatedatgreatdistancesfromlargesectionsofthe
population,whichmakesaccesstothepolicetoreport
casesdifficult.
TheDRCisamemberofSADC,andintroducingthe
SARPCCOCodeofConductintothecountrypresentsan
opportunitytoframewhatanacceptablepoliceforce
shouldlooklike.TheCommissionforPoliceReformsin
theDRC,whichincludeshumanrightsdefendersand
CSOs,meetsregularlywiththegovernmentandcould
beanimportantentrypointforintroducingtheCodeof
Conduct.ThereisalsoaNetworkonSecurityandJustice
intheDRC,whichisveryactiveand,assuch,isanother
avenueforintroducingtheCodeofConduct.
ZAMbIADr Robert Matonga President, International Physicians for the Prevention of Nuclear War
Zambiainheritedacolonialpoliceforcethatwas
regardedasbrutalandrepressive.Sinceindependence
in1974,thatperceptionpersists.Underthesingle-party
system,policebrutalitybecameworseandthecountry
existedinastateofemergencyfor27years.
OneofthechallengeswithpolicinginZambiais
thelowpolicenumbers.Thereare26000policefora
countrywithapopulationof27millionpeople.The
excessiveuseofforceandcorruptionareongoingchal-
lenges.Thepoliceforceisalsopoorlyresourcedand
porousborderscompoundproblems.
Overthepasttenyearstherehavebeenongoing
policereforms.Thereisnowapublicrelationsdepart-
mentwithinthepoliceandtheorientationoftheforce
hasbeenchangedtothatofservice.Therehavealso
beeneffortstoenhancecivilsociety–policerelations
andthishasbeendonemainlythroughtheintroduc-
tionofcommunitypolicing.Theaimofthereformsis
tocreateaprofessional,leanandaccountablepolice
servicethatanswerstotheneedsofthepeople.
Oversightofthepoliceincludesbothinternaland
externalmechanisms(Parliament,thePoliceService
Commissions,thePublicComplaintsCommissionsand
judicialreviews).
Inthepolice,thereisagenerallackofawarenessof
theSARPCCOCodeofConduct,exceptamongseniorof-
ficers.Thereisanopportunitytodeepentheapplication
anduseoftheCodeofConductaspartoftheongoing
policereformsinthecountry.
MoZAMbIquEJoao Jose Uthui National Forum of Mozambique NGOs
TherewaslittleawarenessoftheSARPCCOCodeof
ConductinMozambiquebeyondthepoliceleadership.
Itwasalsodifficulttoascertaintheextenttowhichthe
Codewasbeingimplemented.Informationinthisregard
wasnotreadilyavailable.
Despitethechallengesofpoliceabuseandcorrup-
tion,therehavebeenanumberofpositivedevelopments
thatincludefocusedeffortsataddressingthecrimesof
corruptionandviolenceagainstwomen.Screeningfor
newrecruitpoliceofficersnowincludesscreeningbythe
communitiestheywillservetodouble-checkthedesir-
abilityofthenewrecruits.
PublicawarenessoftheSARPCCOCodeofConduct
andeffortstoencouragecompliancecouldassistin
promotingamoreethicalandprofessionalpoliceforce
inMozambique.
Workshop Report� 17
Discussion
ThE vALuE oF ASSESSINg ThE APPLICATIoN oF ThE CoDE oF CoNDuCT
WhileeachcountrywasrequiredtoapplytheCode
domestically,therewasadearthofstudiesacrossthe
regionontheextenttowhichpolicingconformedto
theprinciplesoftheSARPCCOCodeofConduct.The
proposedassessmentofthepoliceinSouthernAfrica
againsttheCodeofConductwasconfirmedasan
importantexercise.
Anassessmentwouldbeanimportanttestofhow
institutionshaveread,domesticatedandimplemented
theCodeofConduct.Suchanassessmentwouldalso
revealsub-culturesinpoliceorganisationsandpractices
thatoccurwithinspecificcontexts.
TheSARPCCOCodeofConductisindicativeofwhat
peopleexpectofthepolice.Thepublicthereforealso
havetherighttoassessandoverseepolicing.
PoLICINg IN SouThERN AFRICA
Theparticipantscongratulatedthepresentersforthe
studiespresented,astheyhadilluminatedtheareas
civilsocietymustbecomeawareofandcanengage.The
presentationsprovidedideasonhowtherolethatethical
policingplaysindemocraticgovernanceandeveryday
lifecanbedisseminatedamongorganisationsandthe
membersofpublicwhodonotworkonpolicingonaday-
to-daybasis.
Whilethepresentationsnotedsimilaritiesinpolicing
acrosstheSADCregionthatwereusefulasabasisfor
awiderconceptualapproach,itisequallyimportantto
considerandappreciatethediversityanddifferences
amongthecountriesoftheregion.
Respondentsalsostatedthatthepolice,civilsociety
andstatesintheregionshouldactivelyworktocounter
asituationwherethecivilianpopulationgrowsever
morefearfulofthepolice.Currentlythereisawhole
rangeofcrimesthatarenotpolicedduetoalackoftrust
inthepoliceandapopulationfearfulofcomingforward
withinformation.Amilitarisedresponsetocrimeexac-
erbatesthesituation.
Policebrutalitywasalsonotedasacross-cutting
probleminmostcountriesrepresentedattheworkshop.
Structuresthatarecurrentlyinplaceforoverseeing
policeconductneedtobestrengthenedand,insome
instances,established.Oneofthemosturgentgapsto
addressinpolicingisfortheprofessionaluseofforce
withintheparametersofthelaw.
ChALLENgES IN ASSESSINg CoMPLIANCE WITh ThE CoDE oF CoNDuCT
TherewasconsensusontheusefulnessofKatlehoPefole’s
presentationontheresearchprocessesandchallenges
involvedintestingtheindicatorsinLesotho,particularly
thedifficultiesinacquiringinformation.Researchers
undertakingtheassessmentneededtobenimbleand
changemethodologywhennecessary,giventhelackof
documentationandpoorveracityofthedocumentation.
Inaddition,anyassessmentofpolicingacrossthe
regionneedstobemindfulofuniquedifferencesandin
particularofthefactthatinsomejurisdictionsinthe
regiontheruleoflawdoesnotexist,makingtheapplica-
tionoftheCodelargelyacademic.
Policepracticesalsoremainveryopaqueanditis
difficulttodiscerntheextenttowhichhigh-levelim-
plementationoftheCodeofConducttranslatesintothe
18� Institute for Security Studies
The SARPCCO Code of Conduct
dailybehaviourofthepoliceontheground.Abalance
ofquantitativeandqualitativeinformationtoallowfor
interpretationsandanalyseswasrequired.
Theinterfacebetweenapolicestationandthesur-
roundingcommunitywasarichsiteofresearchinto
policeconduct.Itwasnotimmediatelyclearhowmany
stationswouldbenecessarytoconstitutearepresenta-
tivenationalsamplesizeandthecriteriaforselection.
Inaddition,researchersmustfindoutaboutpolice
trainingandrecruitmenttoascertainhowpolicewere
preparedfortheirultimateobservanceoftheCodeof
Conductduringtheexecutionoftheirday-to-dayduties.
Onthefaceofit,sixmonthsofbasicpolicetraining
seeminadequatetoinstilthevaluesandbehaviour
expectedfromthepoliceintermsoftheCode.
Managingpoliceexpectationswasanimportant
aspectofthestudy.Thepolicewereoftendissatisfied
withtheinterpretationsandconclusionsreached.
However,theresultsofanyassessmentscouldbeseen
aspositiveastheyidentifiedcriticalareasofchange
that,ifundertaken,couldhaveasignificantimpacton
howthepolicedidtheirworkandhowthiswasexperi-
encedandperceivedbythecitizens.
DEEPENINg ThE CoDE oF CoNDuCT – ADvoCACy oPPoRTuNITIES
Discussionswerefacilitatedundertheheadings:
■ HowtoengageSARPCCO■ DeepeningtheCodeofConduct■ Policecapacitybuilding■ HowtomaximiseregionalsupportamongAPCOF
members
how to engage SARPCCo
■ Unfortunately,therehasbeenaless-than-enthusias-
ticresponsefromSARPCCO.■ SARPCCOmaynotnecessarilyberesistanttothe
CodeofConduct,butratherthequestioniswhether
theCodeisontheorganisation’sagendaandhas
beenprioritised.Ifithasnotbeenprioritised,civil
societyshouldadvocatethatitisaffordedthepriority
itdeserves.Civilsocietyneedstofindwaysofengag-
ingconstructivelywiththiskeysecurityactor.■ Engagementshouldbepursuedattheregionallevel,
butalsoindividuallythroughdomesticpoliceagen-
ciesandtherelationshipsbetweenCSOsandtheir
countries’police.■ Engagementwiththepoliceatthelocalandregional
levelsshouldbesustained.Eventhoughtheremay
befall-outs,itiscriticaltobuildtrustbetweenthe
policeandCSOs.Suchrelationshipsareimportant,
particularlybecausesomepolicedohaveinfluence
andarewillingtoembracechange.Itisalsofromsuch
relationshipsthatspoilersandchampionsofapplying
andpromotingtheCodeofConductcanbeidentified.■ Otherregionalentitiesalsoprovideopportunityfor
engagement:■■ TheSADCOrganonPolitics,DefenceandSecurity
Cooperationwouldbeanotherwayofgetting
regionalbuy-in.Anassessmentofwhatiscur-
rentlytakingplaceinSADCcountriesshouldbe
undertakenfirst.Lessonscanthenbedrawnfrom
thesestudiesandpresentedtotheSADCOrgan
onPolitics,DefenceandSecurityCooperation,
underwhichSARPCCOnowfalls.TheOrganhas
recognisedtheimportanceofacodeofconduct
forsecurityforcesinitsstrategicplanandcould
benefitgreatlyfromthetypeofstudydiscussed
here.Theneedforaprotocolonpolicingcould
alsobeadvocated.■■ TheSADCNGOForumhasbeeninterestedin
developingitsfocusonthepoliceandcouldbean
importantpartner.■■ TheSADCParliamentaryForumisanother
importantpartnerinpromotingethicalpolicing
intheregionandcouldbeinterestedinthestudy
anditsoutcomes.
Deepening the Code of Conduct
■ ThereisaneedtopopularisetheCodeofConductas
atoolformonitoringhumanrightsadherence,espe-
ciallyamonghumanrightsbodies,gendergroupsand
others.■ Oversightmechanismssuchasparliamentsandna-
tionalhumanrightscommissionscouldbesupported
intheirworkbybeingengagedinthestudy.■ Radioandtheprintmediaareeffectivetoolsforcom-
munityawarenessraisingandmobilisationonthe
SARPCCOCodeofConduct.■ Aninter-agencyseminarorworkshopforrelevant
stakeholdersontheresultsofthestudywillhold
furtheradvocacyprospects.■ Thereportfromthisworkshopshouldbedissemi-
natedtoAPCOFmembers.
Police capacity building
■ Monitoringindicatorscouldbeanimportanttraining
toolforthepoliceineducatingmembersontheCode
ofConduct.Traininginstitutionsshouldbeengaged
andofferedthepublication.Wherepossible,civil
Workshop Report� 19
Edited and compiled by Sean Tait, Cheryl Frank, Irene Ndung’u and Timothy Walker
societyandgroupslikeAPCOFshouldadvocatethat
theCodeofConductisincorporatedincurriculaat
policetrainingcolleges.■ TheCodeofConductshouldberegardedasoneinter-
ventionandnotasasilverbullet.
how to maximise regional support among APCoF members
■ ThelackofuptakeoftheCodeofConductbySADC
countriesmaynotnecessarilybeanissueofdisinter-
estordisengagement.Rather,thereisneedtoseek
waysofgainingentryfromdifferentlevels(national
andregional)inordertoprofiletheCode.■ Holdingaregionalworkshopfororganisationsthat
offerpolicetrainingcouldbeonewayofraising
awarenessoftheCodeofConduct.■ TheCodeofConductneedstobecomearegionally
ownedproduct.■ Therecurringchallengeishowtopracticallyrespond
toissuesofpoliceconductespeciallyduringelec-
tions.Itwasnoted,forinstance,thattherewillbe
electionsin2011infourSADCcountries.TheCodeof
Conductsetsastandardforpolicethatisasapplica-
bletopolicinganelectionastoanyotherpoliceduty.■ Thereislittlevalueincomparingcountryimplemen-
tationoftheCodeofConductduetothedifferent
contextsthatexistineachcountry.However,apply-
ingtheindicatorscouldinfuturecreateabaseline
forestablishingorcomparingperformanceamong
countries.■ ThepresentopportunityinLesothoisthatbyapply-
ingtheindicatorsandassessingcompliancewiththe
Code,anagendaforchangehasbeenset.■ PopularisingandshowcasingtheLesothocasestudy
couldgosomewayinpromotingtheassessment
oftheCodeintheregion.Thereportfromthis
workshopshouldthereforebedisseminatedtoother
countries.Atleasttwoothercountriesshouldalsobe
identifiedforaninitialstudy,andacomparisoncould
thenbemadeofthethree.■ Existingnetworksareanotheravenueforpopularis-
ingtheCodeofConduct,forinstanceSASDEM,
IANSAandotherregionalsecuritysectorreform
networks.■ Invitingpolicetoseminarssothattheycanalsoraise
concernsandchallengesisimportant.■ Othermeetingstakingplaceacrosstheregioncanbe
usedtodisseminateandraisetheissuesdiscussedin
thismeeting.
SeanTaitofferedasummaryoftheissuesthathad
emergedduringthetwo-dayworkshop.Henotedthat
thepresentationshadconfirmedtheutilityofthe
SARPCCOCodeofConduct,butthatthereisanongoing
needtoidentifywaysofenhancingitsapplication.He
identifiedcontinuedcommunicationamongAPCOF
membersascriticaltomaintainingthemomentum
achievedduringtheworkshop.
Inconclusion,itwasagreedthataregionalAPCOF
networkwouldbesupportedusingthisworkshopasits
genesisandtheCodeofConductasafocalissue.APCOF
wouldseektoreportbackatleastquarterlytothis
group.Anincrementalassessmentofpoliceagencies
intheregionwouldbeundertaken.APCOFwouldbe
contactingparticipantstotakethisforward.
Theworkshopdiscussions,monitoringindicatorsfor
theCodeofConduct,andtheplanstoassesscompliance
withtheCodewouldbecommunicatedtotheSADC
OrganandSADCParliamentaryForum.
MrTaitthankedparticipantsfortheirattendance,
thoughtsandtime,andtheefforttheytookinprepar-
ingtheirpresentations.HealsothankedtheISSforits
contributiontowardshostingtheworkshop.
20� Institute for Security Studies
Duringherclosingremarks,MsFrankreflectedon
whetherthegovernmentsoftheSADCregionaredeliv-
eringonissuesimportanttotheregion.Shelaudedthe
workshopasanimportantforuminwhichthecurrent
stateoftheruleoflawfortheregionhadbeenestab-
lished,especiallyonissuesofjustice,andexpressed
hergratitudetothepresentersfortheirpresentations.
Shenotedthatdiscussionsthathademergedduringthe
workshopwerecriticalleveragingtoolsfortheCodeof
Conduct,asareCSOsintheregion.Whatisimportant
movingforwardfortheAPCOFnetworkistomaintain
momentumfromtheworkshopdiscussionsandto
nurtureandstrengthenoneanother’sworkespecially
onsecurityissues.
Finally,MsFrankthankedAPCOFforholdingthe
networktogetherandencouragedothermembersofthe
networktocontinuetosupportAPCOF.Shealsothanked
participantsfortherichdiscussionsandencouraged
themtomovediscussionsforwardintheirrespective
countriesandtokeepcommunicationlinesopen.
Concluding remarksCheryl Frank
Director, Pretoria office, ISS
Workshop Report� 21
1 JForman,Securitysectorreform:whatroleforcivilsociety?,in
MCaparini,PFluriandFMolnar(eds),Civil society and security
sector reform,Geneva:DCAF,2006.
2 NBall,Civilsociety,goodgovernanceandthesecuritysector,
inMCaparini,PFluriandFMolnar(eds),Civil society and security
sector reform,Geneva:DCAF,2006.
3 Thiswasintroducedin2010.Therankshavebeenremilitarised,
andwhiletheConstitutionstillsreferstothePoliceServices,it
isnowcommonforthepolicetorefertotheorganisationasthe
SouthAfricanPoliceForce.
Notes
22� Institute for Security Studies
Appendix A
Group photo
Photo 4 Workshop participants: Ten years of the Southern African Regional Police Chiefs Cooperation organisation
(SARPCCo) Code of Conduct – Taking Stock and Mapping out Future Action, 16–17 March 2011
Workshop Report� 23
TEN YEARS OF THE SARPCCO CODE OF CONDUCT – TAKING STOCK AND MAPPING OUT FUTURE ACTION16–17 March 2011, Johannesburg, South Africa
16 March 2011
8:30 – 9:00 Registration
9:00 – 9:30 Introduction Sean Tait, coordinator, APCOF
9:30 – 10:00 Opening addressProf� Elrena van der Spuy, Centre of Criminology, UCT and director, APCOF
10:00 – 10:30Promoting the implementation of the SARPCCO Code of Conduct: monitoring tools, their utility and application, and indicators for implementing the Code of Conduct
Amanda Dissel, APCOF
10:30 – 11:00 Tea
11:00 – 11:30 Using the SARPCCO Code of Conduct to promote the rule of law: the utility of the Code in promoting the rule of law in Malawi
Jacques Carstens, team leader, Technical Facilitation Unit, Promotion of the Rule of Law and Civic Education Project, Ministry of Justice and Constitutional Affairs, Malawi
11:30 – 12:00 Applying the indicators: lessons from the field Katleho Pefole, Transformation Resource Centre, Lesotho
12:00 – 12:30 Panel discussion All presenters
12:30 – 13:30 Lunch
13:30 – 14:00 Regional perspectives: towards more effective responses to organised crime in Southern Africa: project results and implications for policing in the region
Annette Hübschle, EROC Project, ISS
14:00 – 16:20Country inputs on implementing the Code of Conduct: challenges and opportunities: case studies
All participants
14:00 – 14:10 Democratic Republic of Congo
14:10 – 14:20 Malawi
14:20 – 14:30 Mozambique
14:30 – 14:40 Namibia
14:40 – 14:50 South Africa
14:50 – 15:00 Tanzania
15:00 – 15:30 Tea
15:30 – 15:40 Zambia All participants
15�40 – 15:50 Zimbabwe
17 March 2011
9:00 – 9:30 Recap
9:30 – 11:30 Working groups: Deepening the Code of Conduct – Advocacy opportunities All participants
11:30 – 12:30 Plenary and closure
12:30 – 13:30 Lunch and departure
Appendix B
Workshop programme
24� Institute for Security Studies
Title Name Organisation E-mail address
1 MrBoichoko Abraham Ditlhake
SADC Council for NGOs abied@sadc-cngo�org�bw
3 Mr Alain Kateta Avocats des Droits de l’Homme a_kateta@yahoo�fr
4 Mr Katleho Pefole Transformation Resource Centre, Lesotho pefole@trc�org�ls
5 Mr Peter ChinokoCatholic Commission for Justice and Peace, Malawi
chinokopeter@yahoo�com
6 Mr Jacques Carstens Rule of Law Project, Malawi jcarstens@ruleoflawmw�org
8 Dr Joao Jose Uthui National Forum for Mozambique NGOs joaouthui@yahoo�com�br ruthui@yahoo�com�br
9 Ms Pauline Dempers Breaking the Wall of Silence Movement, Namibia paulinedempers@yahoo�com
10 Prof� Elrena van der Spuy Centre of Criminology, University of Cape Town Elrena�VanDerSpuy@uct�ac�za
11 Ms Annette Hübschle ISS, Cape Town ahubschle@issafrica�org
12 Ms Amanda Dissel APCOF adissel@cybersmart�co�za
13 Mr Sean Tait APCOF sean@apcof�org�za
14 Mr Andrew FaullResearcher, Crime and Justice Programme, ISS, Pretoria
afaull@issafrica�org
15 Ms Sandra Oder Peace Missions Programme, ISS, Pretoria, soder@issafrica�org
16 Ms Cheryl Frank Director, ISS Pretoria office cfrank@issafrica�org
17 Mr Casper Badenhorst ISS consultant cbadenhorst@issafrica�org
18 Ms Asanda Conjwa APCOF asanda@apcof�org�za
19 Ms Abeda Bhamjee Southern Africa Litigation Centre abeda�bhamjee@gmail�com
20 Adv� S Moleshe Independent Complaints Directorate smoleshe@icd�gov�za
21 Mr I Kgamanyane Independent Complaints Directorate ikgamanyane@icd�gov�za
22 Mr David Bruce Centre for the Study of Violence and Reconciliation dbruce@csvr�org�za
23 Adv� Shilinde Ngalula Legal and Human Rights Centre, Tanzania ngalula71@yahoo�com
24 Dr Robert MtongaInternational Physicians for the Prevention of Nuclear War
robertmtonga@yahoo�co�uk
25 Dr Martin RupiyaCentre for Defence Studies, University of Zimbabwe
mrupiya@gmail�com
26 MrReginald Chidawanyika
Lawyers for Human Rights, Zimbabwe regchidaz@yahoo�com
27 Ms Louise Ehlers Open Society Institute for South Africa LouiseE@osisa�org
28 Mr Leopoldo de Amaral Open Society Institute for South Africa LeopoldoA@osisa�org
Appendix C
List of participants
Workshop Report� 25
6thANNUALGENERALMEETING
27–31AUGUST2001
MAURITIUS
hARARE RESoLuTIoN oN ThE SARPCCo CoDE oF CoNDuCT FoR PoLICE oFFICIALS
InviewoftheobjectivesandprinciplesofSARPCCOas
statedinitsConstitution;
FollowingtherecommendationsofthePoliceChiefs
attheHumanRightsWorkshop,inKasane,Botswana,
8–10February2000;
ConsideringthereportbytheChairmanofthe
LegalSub-CommitteeonitsmeetingheldinMangoshi,
Malawi,8–12JanuaryandHarare,Zimbabwe,3–5July
2001,itisagreedasfollows:
■ ThattheattachedCodeofConductforPoliceOfficials
isadoptedasaminimumstandardforpoliceforces/
servicesintheregion
■ ThateachmemberofSARPCCOtakestheneces-
sarymeasurestoimplementnationallytheCodeof
ConductforthePoliceOfficialsandtoadoptittoits
ownnationalrequirements,ifnecessary
■ ThattheLegalSub-CommitteeofSARPCCOshall
overseetheeffectivedissemination,promotionand
implementationoftheCodeofConduct,including
providingadviceonnationallegislationrequired
tofullyimplementtheCode.Annualreportstothe
SARPCCOAnnualGeneralMeetingshallbeprovided
bytheLegalSub-Committeeonitsmonitoringofthe
implementationoftheCodeofConduct
■ ThattheTrainingSub-CommitteeofSARPCCOshall
producefortheSARPCCOChairmanwithinthree
monthsofthepassingofthisresolution,acompre-
hensivetrainingplanandcurriculumontheCodeof
Conduct
■ ThatajointworkshopoftheLegalandTraining
Sub-Committees,beconvenedtoassisttheTraining
Sub-Committeetodrawupatrainingplanonhow
theSARPCCOCodeofConductcouldbetaughttoall
PoliceOfficialsintheregion
■ ThattheTrainingSub-CommitteeofSARPCCOshall
provideannualreportstotheSARPCCOAnnual
GeneralMeetingonthetrainingithasprovidedand
facilitatedontheCodeofConduct.
CoDE oF CoNDuCT FoR PoLICE oFFICIALS
Preamble
We, the Chiefs of Police of the:
RepublicofAngola;
RepublicofBotswana;
KingdomofLesotho;
RepublicofMalawi;
RepublicofMauritius;
RepublicofMozambique;
RepublicofNamibia;
RepublicofSouthAfrica;
KingdomofSwaziland;
UnitedRepublicofTanzania;
RepublicofZambia;andthe
RepublicofZimbabwe,
AsmembersoftheSouthernAfricanRegionalPolice
ChiefsCo-operationOrganization(SARPCCO);
GUIDEDbythefollowingprinciples:respectforall
humanlife;reverenceforthelaw;integrity;service
excellenceandrespectforpropertyrights;
RECOGNIZINGthatethicalstandards,inparticular
humanrightsnorms,areanimportanttoolinthepro-
fessionalizationofpoliceforces/serviceseverywhereand
inSARPCCOmembercountries;
DESIROUSofintegratinghumanrightsinSARPCCO
policetrainingandpractices,inlinewiththevaluesand
idealsofSARPCCO;
CONSIDERING thatitisdesirablethatpoliceofficers
havetheactivemoralandphysicalsupportofthepublic
theyareserving;
AWAREoftheneedtodisseminatebestpractices
andstrengthenrespectforhumanrightsinSARPCCO
membercountries;
REAFFIRMING thecommitmenttoahighdegreeof
professionalisminservingthepublic;
Appendix D
SARPCCO Code of Conduct
26� Institute for Security Studies
The SARPCCO Code of Conduct
HEREBY AGREE AS FOLLOWS:
Respect for all human life
Article 1Respect for human rights
Intheperformanceoftheirduties,policeofficialsshall
respectandprotecthumandignityandmaintainand
upholdallhumanrightsforallpersons.
Article 2Non-discrimination
Policeofficialsshalltreatallpersonsfairlyandequally
andavoidanyformofdiscrimination.
Article 3Use of force
Policeofficialsmayonlyuseforcewhenstrictlynecessary
andtotheextentrequiredfortheperformanceoftheir
dutiesadheringtonationallegislationandpractices.
Article 4Torture, cruel, inhuman or degrading treatment
Nopoliceofficial,underanycircumstances,shallinflict,
instigateortolerateanyactoftortureorothercruel,
inhumanordegradingtreatmentorpunishmentto
anyperson.
Article 5Protection of persons in custody
Policeofficialsshallensuretheprotectionofthehealth
ofpersonsintheircustodyand,inparticular,shalltake
immediateactiontosecuremedicalattentionwhenever
required.
Article 6Victims of crime
Allvictimsofcrimeshallbetreatedwithcompassion
andrespect.Policeofficialsshallensurethatproperand
promptaidisprovidedwherenecessary.
Reverence for the law
Article 7Respect for the rule of law and Code of Conduct
Policeofficialsshallrespectandupholdthelawandthe
presentCodeofConduct.
Integrity
Article 8Trustworthiness
Thepublicdemandsthattheintegrityofpoliceofficials
beabovereproach.Policeofficialsshall,therefore,
behaveinatrustworthymannerandavoidanyconduct
thatmightcompromiseintegrityandthusundercutthe
publicconfidenceinapoliceforce/service.
Article 9Corruption and abuse of power
Policeofficialsshallnotcommitorattempttocommit
anyactofcorruptionorabusepower.Theyshallrigor-
ouslyopposeandcombatallsuchacts.
Policeofficialsshallnotacceptgifts,presents,
subscriptions,favours,gratuitiesorpromisesthatcould
beinterpretedasseekingtocausethepoliceofficialto
refrainfromperformingofficialresponsibilitieshonestly
andwithinthelaw.
Service excellence
Article 10Performance of duties
Policeofficialsshallatalltimesfulfilthedutiesimposed
uponthembylaw,inamannerconsistentwiththe
highdegreeofresponsibilityandintegrityrequiredby
theirprofession.
Article 11Professional conduct
Policeofficialsshallensurethattheytreatallpersonsin
acourteousmannerandthattheirconductisexemplary
andconsistentwiththedemandsoftheprofessionand
thepublictheyserve.
Article 12Confidentiality
Mattersofaconfidentialnatureinthepossessionof
policeofficialsshallbekeptconfidential,unlessthe
performanceofdutyandneedofjusticestrictlyrequire
otherwise.
Respect for property rights
Article 13Property rights
Intheperformanceoftheirdutiespoliceofficialsshall
respectandprotectallpropertyrights.Thisincludesthe
economicaluseofpublicresources.
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Workshop�Report