Workshop Report The SARPCCO Code of Conduct€¦ · Taking stock and mapping out future action ISS...

Workshop Report

The SARPCCO Code of ConductTaking stock and mapping out future action

ISS

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Edited and compiled bySean Tait, Cheryl Frank, Irene Ndung’u and Timothy Walker

16–17 March 2011, Johannesburg, South Africa

As a leading African human security research institution, the

Institute for Security Studies (ISS) works towards a stable and

peaceful Africa characterised by sustainable development,

human rights, the rule of law, democracy, collaborative security

and gender mainstreaming. The ISS realises this vision by:

� Undertaking applied research, training and capacity building

� Working collaboratively with others

� Facilitating and supporting policy formulation

� Monitoring trends and policy implementation

� Collecting, interpreting and disseminating information

� Networking on national, regional and international levels

© 2011, Institute for Security Studies

Copyright in the volume as a whole is vested in the Institute for Security Studies, and no part may be reproduced in whole or in part without the express permission, in writing, of both the authors and the publishers.

The opinions expressed do not necessarily refl ect those of the Institute, its trustees, members of the Council or donors. Authors contribute to ISS publications in their personal capacity.

ISBN 978-1-920422-60-8

First published by the Institute for Security Studies,

P O Box 1787, Brooklyn Square 0075

Pretoria, South Africa

www.issafrica.org

Cover photograph Provided by the ISS

Cover design compress.dsl +27 21 886 9387

Content design, layout Marketing Support Services +27 12 346-2168

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


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.


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



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.


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


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



■ AnassessmentoftheMalawiPoliceagainsttheCode

ofConductcanstrengthenCSOcoordination,col-

laborationandadvocacy,andincreasethefocuson

thedemandsideofpolicereform,especiallybynon-

stateactors,whoshouldbemoreassertiveincalling

forreforms.


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


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



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.


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



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.



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



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;



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



■ 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.


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



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



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.


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


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


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


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


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


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



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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