Stopping the Spies. Jane Duncan

to co-ordinate the work of the feuding intelligence agencies. The SSC was meant to be subordinate to cabinet and advise it on intelligence matters. Strategic intelligence is distinct from tactical and operational intelligence, in that governments can use it to formulate high-level policy and strategy, while the agencies generally use tactical intelligence to formulate plans to implement strategy. Strategic intelligence is the visionary component of the intelligence cycle. Consequently, it should be developed by civilian agencies that are not operational, as agencies that both develop and act on intelligence experience intolerable conflicts of interest. Yet the various intelligence agencies in South Africa were all highly operational, engaging in counter-insurgency attacks against the liberation movements and their supporters in the regional states.

      When P.W. Botha became President of South Africa, he elevated the SSC above cabinet as the strategic decision-maker on policy. He also promoted the DMI to the level of lead intelligence agency, responsible for the strategic intelligence function, in spite of the fact that he had restructured the civilian intelligence function by replacing BOSS with the National Intelligence Service (NIS) – based on academic principles of passive intelligence-gathering – in the wake of a politically damaging scandal involving BOSS. This pro-military restructuring led to the widespread militarisation of society from the late 1970s onwards, and prevented the emergence of political (as opposed to military) solutions to South Africa’s crisis, at least until the late 1980s. This was because the military ‘securocrats’ – or senior officials in the security establishment (especially in the military), who exercised undue influence over national policy – saw the struggle against apartheid and capitalism in South Africa through a counter-revolutionary lens requiring overwhelmingly military responses, with some concessions being granted to ensure limited incorporation of what were considered to be moderate black figures into the political system. The P.W. Botha regime also promoted the development of special operations units in the various intelligence agencies, to deal with the perceived revolutionary threat. These units conducted many covert operations against the liberation movements both inside and outside the country. They engaged in the full repertoire of dirty tricks against their enemies, including spreading disinformation about them, and engaging in kidnapping, arrest, torture, poisoning and assassination. As these units were meant to operate ‘off the books’, in that their operations were not meant to be traced back to the government, the most violent units were expected to raise their own funds as well. As a result, a unit like the notorious Civil Cooperation Bureau (CCB) morphed into a criminal outfit involved in trafficking drugs, diamonds and weapons, prostitution and extortion, in addition to engaging in extra-legal assassination of political activists.

      As in many other countries, South Africa’s signals intelligence capabilities were located in the military, as government considered cryptography to be a military function primarily. The SADF established a Signals Intelligence Unit as part of its tactical intelligence function.⁴ Until 1975, GCHQ had a direct presence in South Africa, through the naval base in Simonstown, but it abrogated this role after the North Atlantic Treaty Organisation (NATO) imposed an arms boycott on the country. Reportedly, at the time both GCHQ and the NSA were accommodated at the South African Navy’s listening post in Silvermine, Cape Town, which was located strategically between the Indian and Atlantic Ocean trade routes, and which monitored the movements of Russian and Chinese shipping around the Cape. This signals intelligence facility was built and paid for by NATO countries in 1973 in spite of mounting international pressure on them to cut ties with South Africa.⁵ However, in terms of the UK–US agreement (the forerunner of the Five Eyes agreement), GCHQ retained responsibility for monitoring sub-Saharan Africa. As a result, it resorted to using its listening posts in British High Commissions in front-line states such as Swaziland, Zambia and Malawi, intercepting intelligence on South Africa after the Simonstown Agreements and collecting intelligence on the activities of the various liberation movements in the region, including the ANC, as well as South Africa’s counter-insurgency activities in the front-line states. On balance, GCHQ’s interventions supported apartheid and disadvantaged the front-line states, as the British feared that the Soviet and Cuban presence in the region might increase if South Africa’s liberation movements became stronger. The UK and Germany also provided communications surveillance equipment to apartheid South Africa, in spite of a 1977 UN arms embargo on the country, with Germany supplying most of the equipment. GCHQ and the apartheid government resumed a more explicit partnership in the 1980s, sharing intelligence about the activities of the ANC, including intelligence gathered from GCHQ’s listening post in Zambia, where the ANC was headquartered for much of the time it was in exile. GCHQ had superior signals intelligence-gathering capabilities, and thus shared its intelligence on the ANC with South Africa, in return for information on Cuban and Soviet activities in the region.⁶

      ANC INTELLIGENCE IN EXILE

      The ANC also established its own intelligence capabilities in exile. According to the Truth and Reconciliation Commission (TRC), there was no evidence presented to it that the ANC’s main rival in exile, the Pan Africanist Congress (PAC), had a security division responsible for dealing with suspected dissidents or infiltrators.⁷ The ANC established defensive intelligence capabilities in 1969, called the Department of National Intelligence and Security, or ‘NAT’ (apparently shorthand for National Security), under the leadership of Moses Mabhida, after the organisation had suffered significant military losses.⁸ At the time of its establishment and into the 1970s, NAT was small, with no formal structures, and focused mainly on providing security services to the office of the ANC president. But as the apartheid offensive intensified and new recruits flocked to join the ANC in wake of the Soweto uprisings and subsequent crackdowns, the ANC began to recognise that it needed more intelligence capacity. As a result, it established collaborative relationships with Soviet bloc countries – largely the USSR and East Germany – for military and intelligence training. These countries had a vested interest in seeing the collapse of apartheid and colonial domination around the world, given their commitment to proletarian internationalism. The liberation movements, in turn, were extremely grateful for these displays of solidarity, and forged close ties with countries in the Soviet bloc and with the non-aligned movement, which opposed the apartheid regime.