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Funding Defense: Challenges of Buying Military Capability in Sub-Saharan Africa

Authored by Dr. Martin Revayi Rupiya, COL Daniel W. Henk.

September 2001

45 Pages

Brief Synopsis

Martin Rupiya, Director of the University of Zimbabwe's Centre for Defence Studies, and Daniel Henk of the Air War College provide one of the first comprehensive studies of defense budgeting practices in Africa. They assess both the problems with these practices and fruitful avenues of reform. By doing so, they provide a solid roadmap both for African leaders and for Americans concerned with the development of greater security in the region.

SUMMARY

The interests of the United States would be well-served in the emergence of a stable, secure and prosperous Africa, a fact acknowledged in the rhetoric of the current and previous Administrations. Since the end of the Cold War, the United States has been increasingly active in efforts to promote political and economic reform in African countries, including programs to democratize African security sectors. While the military (and other security force) establishments in Africa have many problems—and pose challenges to ongoing democratization efforts—few challenges are as potentially significant for good or ill as that of defense sector funding. The ability of African countries to provide the secure environment necessary for social and economic development requires the creation of the right kind of security establishments, legitimized by democratic processes, and empowered with adequate resources. It is very much in the U.S. interest to assist African societies in reform both of the security sector and of security sector financing.

The official data about African defense expenditure is scanty at best, often deliberately concealed and rarely provides the full story. At the same time, African leaders face increasing pressure from external partners and, in some cases, from their own populations, to reduce military forces and military spending. However, with a few egregious exceptions, African countries spend surprisingly little on defense—possibly less than is prudent. Military establishments typically are under-funded for basic military requirements, and spend an overwhelming and crippling proportion of their budgets on salaries and personnel allowances. They tend to be oriented against domestic rather than external threats, and tend to serve regimes in power rather than societies at large. (Though with over 50 separate countries on the continent, it is dangerous to generalize too broadly.)

What generally is missing in African countries is a transparent process, based upon broad national concensus, for defining security, formulating coherent national security strategy, allocating resources based on that strategy, then effectively overseeing implementation. African countries generally have not established national consensus on the nature of security they desire and the ways and means to achieve that security. This commonly results in defense establishments very poorly suited to any conceivable threat, unaccountable to the society at large and riddled with graft. Decisions on defense funding tend to come out of a small elite of government insiders, or from jockeying by major institutions (including the military) for a share of the national resources. Neither system results in a good return on the investment in defense.

That said, many African countries now are engaged in some process of government—including security sector— reform. These efforts are being assisted by a variety of external partners. There is widespread acknowledgement that reforms will not be quick and certainly will not be easy, but the potential results are well worth the effort. Part of the solution lies in the improvement of institutions and techniques for more efficient planning and more effective oversight of defense expenditure. But a more fundamental issue is the democratization of the whole process of deciding national priorities and allocating resources based on a true national consensus.

The United States is one actor in this critical drama, and the Department of Defense (DoD) is playing a key role. DoD activities include the long-standing Intenational Military Education and Training (IMET) program that trains foreign military personnel in a variety of skills, the Africa Crisis Response Initiative (ACRI), essentially a bilateral, tactical-level peace operations training program, various initiatives by the U.S. European and U.S. CentralCommands and the Africa Center for Strategic Studies (ACSS). The ACSS provides an exceptional forum in which senior African leaders—including those from civil society— can analyze and debate key issues that bear on defense sector reform. Though a relatively new program, ACSS has won wide acceptance and high praise from Africans. This clearly is one program that should be encouraged and enhanced.

A number of other innovative, relatively low-cost programs also could contribute substantial value to reform of defense funding in Africa. These could include targeted employment of contractors with unique expertise and an internship program in the United States for small numbers of African officials involved in defense budgeting.

The United States has a considerable long-term stake in the success of ongoing reform efforts in Africa—including those pertaining to the funding of security. Modest current U.S. investments could yield a substantial future payoff.

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