A naval exercise off the South African coast in January 2026, dubbed Will for Peace and involving the warships of South Africa, China, Russia, the United Arab Emirates (UAE) and Iran, elicited international and domestic controversy. It also contributed to a further souring of relations between South Africa and the US.
Under pressure at home, South Africa’s defence ministry appointed a board of inquiry to investigate whether an instruction by President Cyril Ramaphosa not to involve Iran had been defied.
The exercise and its controversies have placed the spotlight on the South African Navy’s diplomatic role. André Wessels, who has extensively studied the history of the navy, unpacks this role.
What is the Will for Peace 2026 exercise and what is the controversy around it?
Navies traditionally take part in training exercises with other navies. This enhances interoperability and builds mutual trust.
Over time, many foreign warships have visited South African ports, including 23 in 1961, 50 in 1968 and 41 in 1973.
However, in reaction to South Africa’s domestic policy of apartheid, foreign warship visits almost dried up between 1977 and 1989. Once South Africa became a democracy in 1994, foreign warships poured back into the country’s ports, for example 35 from 15 countries in 1997.
New alliances allowed the country’s navy to take part in exercises with the navies of Argentina, Brazil and Uruguay, Germany, India and Brazil, and Russia and China.
The January 2026 exercise was branded as one of navies belonging to the expanded Brics intergovernmental organisation. But, strictly speaking, Brics+ is not a military alliance. It is significant that India, Brazil, Indonesia and Egypt, which are members, did not send ships to participate, probably so as not to offend the US. But it was the first-ever visit by a UAE warship to South Africa.
Iranian “grey diplomats” (a term used to describe navy warships) had previously visited South African ports in 1970, 1972, 1974, 1975, and in 2016-2017.
The current geopolitical situation is challenging. There are tensions between the US and Iran (for, among other reasons, the latter’s nuclear arms ambitions); the Russia-Ukraine war continues; and diplomatic relations between the US and South Africa are strained (partly because of the Trump administration’s unproven allegations of a white genocide in South Africa). Given this situation, the naval exercise should not have taken place.
South Africa should as far as possible stay neutral in international affairs to, among other things, safeguard its economic interests. Furthermore, its navy had very little to gain and can ill afford negative publicity, especially when it transpired that the government had apparently asked that Iran not participate. The facts in this regard, however, must still be determined by a government-appointed board of inquiry.
What role can and should a navy play in a country’s foreign policy?
The traditional exchange of diplomats between friendly countries, reciprocal visits by heads of states and cabinet ministers, and the holding of summit meetings are not the only means of strengthening relations between countries.
It has been, for example, the practice of seafaring countries to send warships to one another from time to time. The South African Navy is no exception.
Since 1922, South African warships have undertaken numerous flag-showing cruises (meaning diplomatic visits) to many countries. These visits have nothing to do with “gun-boat diplomacy”, which is diplomacy backed by the threat of military force.
Warships play a very important role in diplomacy. The presence of a warship can be the most tangible and visible sign of bilateral and multilateral friendships. When ships of a navy take part in combined exercises or international humanitarian and peacekeeping missions, those ships can generate mutual trust. The warships become diplomatic tools of the highest national value.
It is indeed one of the stated aims of the South African Navy: to conduct, among other things, assistance operations, including diplomatic support.
What phases can be identified in the navy’s diplomatic role?
In 1946, the South African Naval Forces were reconstituted as a permanent part of the Union Defence Force. In 1951, it became the South African Navy.
The period 1946 to 1973 was a phase of normal relations with most countries in the west. There were 37 flag-showing cruises. This included 16 visits to European colonial possessions in Africa, six transoceanic deployments (to South America, Europe and Australia), and visits to many ports during the delivery voyages of 26 new vessels for the navy.
Then followed a phase of growing isolation (1974-1979) because of the internal political situation in South Africa over apartheid. In these years the SA Navy only undertook four flag-showing cruises.
The 1980-1987 period was a phase of total isolation as far as foreign visits by South African warships were concerned. The navy was from time to time (since 1975) deployed in a supporting role for the other arms of the South African Defence Force during the Namibian War of Independence (1966-1989), a conflict that spilled over into Angola.
Then followed a transitional phase (1988-1993), with political negotiations taking place from 1990 onwards. Gradually, ports opened up and no fewer than 19 flag-showing cruises took place.
With the birth of a democratic South Africa in April 1994, the country was officially welcomed back as a respected member of the international community. Over a period of three years (1994-1996), South African warships visited at least 29 ports in at least 23 countries during eight flag-showing cruises.
So, after years of isolation, the navy played a major role in establishing ties of friendship. It also established several new ties with African, Asian and South American countries.
Unfortunately, in the years 2018 to 2025, not a single tailor-made South African Navy flag-showing cruise took place, mainly because of budgetary constraints.
However, in February 2026, the warship SAS Amatola sailed to India for an international fleet review and to participate in Exercise Milan, involving the Indian and other visiting navies.
What does the future hold for the navy’s ‘grey diplomats’?
The primary role of the navy must always be to conduct operations in defence of South Africa. But in times of peace, it has an equally important role to play. This includes search and rescue, relief operations, assistance to state authorities, regional assistance operations and flag-showing cruises.
A warship is both a reflection and projection of the state it represents. It is, therefore, important that the ships are not undersized or under-equipped. A South African warship is South African territory afloat, and its presence in foreign waters sends a signal of support to the country’s allies.
Hopefully the navy will in future have at its disposal the necessary funds – and ships – to meet all the demands of its mission statement.
André Wessels in the past received funding from the National Research Foundation, but not since 2017.
This article was originally published on The Conversation. Read the original article.
