For countries undergoing broad political transformation, such as South Africa, the transformation of the police force will be a key objective. How is a move from a colonial-style paramilitary to an impartial service suitable for democratic rule achieved? What are the problems most likely to be encountered? How can these be overcome?
This paper shows how the transformation of the police service cannot be separated from the multiple restructuring process taking place throughout state institutions. There is also a need to be realistic about the limits of formal policing agencies during wider societal transformation.
The first phase of police transformation in South Africa was from 1990 to 1994, when the liberation movements were un-banned and negotiations started. During this time restructuring was planned. The second phase of transformation was from 1994 to 1999, during which time, in theory, institutions were restructured; service delivery was redistributed; human resources were developed; a service ethos was promoted; policing was democratised; and equal opportunities were introduced.
In spite of the ideals of transformation, policing indicators were worse in 1998 than in 1994. There had been a rise in deaths in police custody, corruption, police absenteeism and prisoners escaping. At the same time there had been a fall in prosecution rates, conviction rates, police morale and civilian satisfaction.
A number of factors explain the worsening situation:
- During transformation, there was a focus on internal restructuring rather than on service delivery. There was no change-management process to inform police what should be left behind as part of the old order and what should be taken forward.
- It was relatively quick to change symbols (e. g. uniforms, insignia) however this was perceived as window dressing as there had been inadequate preparation. It was also seen as costly when remuneration was and remains inadequate.
- An affirmative action policy was put into place for recruitment and promotion and there was also lateral entry of liberation army staff. This process remains contentious and is a reason for mistrust and a lack of networking.
- The social terrain changed to one in which borders are opened and there is an influx of organised crime from other countries, Africans are no longer automatically perceived as criminals and crime rises dramatically.
- The step-change from confession-based policing to evidence-based investigations requires re-skilling. Police cling to the archetypal script of the need to be ‘tough’ to be effective and this makes substantive change more difficult.
- Corruption rises as police feel betrayed by the old regime for not taking responsibility for their overt and implied instructions. Corruption is then dealt with by prosecution rather than by better management.
The South African experience illustrates that successful transformation of a police service requires:
- Clear management principles, for example, ensuring people understand why change is necessary, how change will take place and that they will be assisted through re-skilling.
- Efficient information flows that are able to resist emerging divisions that may arise through new policies and programmes.
- A cultural transformation that understands that the world of the ‘old guard’ has become complex, less predictable and more frightening. If this is not addressed, there will be a yearning for the ‘good old days’ and resistance will be heightened.
- A model of change that suits the particular societal context.
