2025-2026 Budget Vote 8 National Treasury (State Security Agency) Debate: Speech by Ms Khumbudzo Ntshavheni, Mp, Minister in The Presidency
Honourable House Chairperson.
Honourable Chairperson of the Joint Standing Committee on Intelligence, the Honourable Sylvia Lucas-Isaacs.
Honourable Members of the Joint Standing Committee on Intelligence.
The Acting Director General of the SSA, Ambassador Tony (Gab) Msimanga.
The Acting Coordinator of the National Intelligence Coordinating Committee (NICOC) Dr. Ntandazo Sifolo.
The Inspector-General of Intelligence, Mr Imtiaz Fazel.
Top Management Committee of the SSA
Ladies and gentlemen.
Honourable Members,
The year 2025 marks 30 years since the establishment of a civilian intelligence service. As we mark this important milestone of our existence, we are reminded of the journey undertaken by men and women for the protection of our national sovereignty and national security, a journey characterized by challenges overcome, milestones achieved, and lives positively impacted. We also mark this anniversary fully cognisant of the weaknesses that beset us and the dangers such weaknesses posed to national security and national sovereignty. But most importantly, we mark the 30th Anniversary of the civilian intelligence service with a new mandate to modernise and improve the effectiveness and accountability of South Africa's intelligence apparatus, whilst addressing past weaknesses, strengthen national security, and enhance the role of intelligence in a democratic society. This new mandate derives from the General Intelligence Laws Amendment Act that was driven by the 6th administration and passed by the 6th Parliament.
Addressing Past Weaknesses
Several Commissions, Review Panels and internal investigations Reports have documented in detail the weaknesses that confronted the SSA and made very particular recommendations to address the challenges that confronted the SSA. We remain focused on implementing the recommendations, tracking the progress thereof and reporting same to the National Security Council (NSC) and the Joint Standing Committee on Intelligence. (a) Dealing with allegations of malfeasance, corruption, and unethical conduct.
Specific to the recommendations of the High-Level Review Panel and Zondo Commission on dealing with allegations of malfeasance, corruption, and unethical conduct. In line with the recommendations of the High-Level Review Panel, the panel of 2 independent senior counsels and counsel have commenced their work to assess the allegations made in various reports with a view to initiate disciplinary actions or recommend referral of cases for prosecutorial action by the relevant authorities. This initiative forms part of our broader effort to strengthen consequence management within the Agency, reinforce institutional accountability, and restore integrity to the civilian intelligence services. To prevent recurrence, we are strengthening our risk management system within the SSA.
(b) Enhancing the role of intelligence in a democratic society
The High-Level Review Panel highlighted a need for a comprehensive National Security Strategy (NSS) to guide the work of the National Intelligence Structures and government in general. In March 2024, Cabinet approved the National Security Strategy for implementation. To enhance the role of intelligence in a democratic society, the High-Level Review Panel has recommended that we reaffirm our commitment to transparency and accountability and ensure that our national security priorities are accessible and understandable to all South Africans.
In this regard and following extensive consultations and legal guidance on the implications of publishing material produced by National Intelligence Structures, I shall release, for the first time in the history of South Africa, the public versions of the National Security Strategy, the National Intelligence Estimates (2019 – 2024) with its National Intelligence Priorities.
(c) Implementation of the General Intelligence Laws Amendment Act
The GILAA establishes new intelligence structures, provides for improved oversight and accountability of intelligence services, including enhanced independence for the IGI and NICOC. In terms of the new structures, the GILAA establishes the South African Intelligence Service, the South African Intelligence Agency, the National Communications Centre, and the South African National Academy of Intelligence. To ensure an efficient and streamlined organisational structure, these new departments and structures will be supported by a Shared Services capacity that will consolidate key administrative and support functions across the civilian intelligence community.
In this regard, the NICOC and Office of the Interception Centred structures have been approved, and the filling of vacancies will be completed over the next 24 months. Similarly, the Office of the Inspector-General of Intelligence is currently filling its vacancies in line with its available budget. We are not only finalising the organisational structures but the relevant Regulations that will govern them and their coordination and collaboration.
We are mindful of the work underway in the Parliament regarding the RICA Bill but we have requested the Department of Justice and Constitutional Development to also prioritise the broader overhaul of the RICA framework as initiated through the RICA Reform Task Team (RRTT). The OIC has commenced drafting legislation that will govern interception and bulk surveillance for national security purposes as also raised in Amabhungane ConCourt Judgement because RICA will not sufficiently address requirements of national security. In addition, we are focused on building lawful interception capabilities for the OIC which will be at par with advancement of technology and provide ability to respond to the emerging challenges. Capabilities such as data analytics and use of artificial intelligence (AI) will enhance the ability to analyse big data, identify threats, and predict patterns of behaviour from intercepted data and generate insights for the Law Enforcement Agencies (LEAs) to act pre-emptively and thus enhance the crime fighting effort. Thus, resources will be directed towards investment on state-of the-art technologies that will enable interception, processing and data analysis to stay ahead of emerging threats.
To prepare for the implementation of the new structures, we undertook a skills audit which had over 96% compliance supported by a competency assessment. The skills audit and competency assessment highlighted the skills and competency gaps, some of which the organisation has started to address through training interventions by the Intelligence Academy. The next intake of cadets will focus on much needed skills of data analytics, data science, artificial intelligence amongst others which will be supported by clear career pathing and progression plan. The Intelligence Academy has also commenced with its repositioning as a fully fledged academy with SAQA accredited courses. which process will include collaboration with other institutions of higher learning to ensure skills portability.
Professionalisation of the service
The need for an established career pathing and progression, and succession policy has been made more clearer during the current implementation of the Voluntary Severance Programme (VSP), where members stated predominantly the following reasons for taking up the VSP:
Many indicated that they were responding positively to the broader government programme of managing down the public service wage bill and allowing for employment opportunities for younger people who could bring fresh ideas and skills,
The mechanism afforded a few applicants the opportunity to exit due to health problems not serious enough to warrant consideration of a medical boarding,
A small number cited family responsibilities that were detracting from their ability to be optimally productive.
Applicants felt that they had reached the ceiling of their growth in the organization and due to advanced age, they had less prospects of growing.
To date, applications from 228 members (8% of staff establishment) had their applications for VSP approved and the bulk of the applications (76.3%) came from the G3, P1 & P2 levels. These are the higher-level generalists and the professional bands, who despite majority of the holding qualifications have remained in the same position for an extended period with no prospects of career growth in their remaining years of service. The VSP programme is supported by a dedicated change management initiative
Strengthen national security
(a) Fight Against Organised Crime
The shadow of organised crime in South Africa stretches far and wide. The problem of organised crime is a serious and complex challenge that undermines national security, social stability, economic development, and the rule of law. It is no longer limited to local gangs—it includes transnational syndicates involved in Drug trafficking, Human trafficking and smuggling, rhino poaching, Illegal mining and smuggling of precious metal and Cybercrime and financial fraud. In South Africa, organised crime is closely linked to Illegal mining (“zama zamas”), Gang violence, Hijacking and extortion rackets Corrupt procurement and looting of state-owned entities and Cross-border smuggling (drugs, cigarettes, firearms). Organised Crime causes economic damage and distortion by diverting billions from the legal economy through money laundering, tax evasion, and counterfeit markets. Furthermore, it discourages investment, raises the cost of doing business, and distorts fair competition.
Cases of extortion pervade industries such as construction, transport, small and large business enterprises, and new trend of water mafias which is underpinned by damaging critical water infrastructure thus undermining both service delivery and economic development. This cannot be left unattended.
As we ramp up the fight against organised crime and to direct its approach in this fight, the SSA is finalising its Anti-Organised Crime Strategy whilst also participating in processes of drafting the National Anti-Organised Crime Strategy which is spearheaded by the South African Police Service. In addition, the SSA is leading the drafting of South Africa’s Counter-Proliferation Strategy.
Furthermore, the SSA is continues to employ its resources, together with local and international partners, to stem illicit financial flows generated by organised crime enterprises and to play its role in safeguarding our country’s economy. We have made significant progress in this regard, contributing to South Africa’s substantial completion of all 22 FATF action items, paving the way for an on-site visit and our country’s anticipated removal from the greylist.
We are also seized with addressing the threats posed by gangsterism and all its permutations, including kidnappings and demands for ransom, in an effort to ensure that our people are and feel safe. We acknowledge that no single government agency, on its own, can effectively address this threat. Therefore, as the SSA, we are committed to continue our participation in multi-stakeholder forums aimed at devising and implementing coordinated interventions. As the SSA, we will continue to lead and provide guidance to further enhance current counterintelligence coordination initiatives, especially at provincial and local government level to create awareness of risk to national security and required mitigating measures to be instituted.
(b) Counter Terrorism Efforts:
Honourable Members,
In some regions, organised crime groups form alliances with terrorist or insurgent groups, thus creating hybrid threats (e.g., arms-for-drugs exchanges, smuggling routes). We continue to monitor if such linkages are emerging in South Africa. With its multifaceted and ever evolving forms, terrorism stands as one of the most pressing and insidious threats to global peace and security in the 21st century. Terrorism is no longer confined by geographic boundaries or political ideologies, it has transformed into a truly global phenomenon, impacting nations regardless of their economic standing, political system as well as cultural heritage.
South Africa’s terrorism threat landscape is informed by developments and trends domestically and outside South Africa’s borders. In February 2023, the Financial Action Task Force (FATF) designated South Africa as a jurisdiction under increased monitoring, more commonly referred to as grey-listing. Subsequent to South Africa’s grey-listing, the country has been diligently carrying out a range of strategic legislative, institutional and operational interventions aimed at rectifying the identified deficiencies and ensuring removal from the grey-list.
As the National Intelligence Priorities (NIPS) mandated the SSA to focus on Terrorism and Terror Financing as a matter of priority, the SSA has increased its ability to identify potential terror financing cases by broadening its understanding of terror financing both analytically and operationally. We are also increasing our counterterrorism focus and we will continue to be involved in Bilateral engagements with foreign counterparts on counterterrorism, and terror- financing including through the SADC Regional Counter Terrorism Centre.
(c) Border insecurity and migration:
Honourable Members,
The intersection of border security and migration presents a multifaceted challenge with profound implications for individual states and nations globally. In a globalising world characterised by porous borders, ease of movement of goods and people as well as the rapid flow of information through technology-enabled channels, our security is increasingly becoming entangled with that of our region of Southern Africa, the continent of Africa and indeed the rest of the world.
These dynamics necessitate a comprehensive understanding of how migration flows and border management strategies directly influence state resources, infrastructure, social services and ultimately the broader security posture of the country. South Africa like other states with a significant illegal migration challenge is at risk of threats as they present and manifest at its ports of entry. The SSA is increasing its focus on border and ports of entry security to improve its support to other border security role-players such as the BMA, SAPS and SANDF, to secure territorial integrity in the land, aviation and maritime domains, and National sovereignty through providing information and intelligence to mitigate and counter threats.
(d) Cybersecurity
Honourable Members,
During our budget vote last year, we indicated that before the end of 2024-2025 financial year, we will commence with the legislation process to develop the cybersecurity Bill for consideration by Parliament. In this regard, we are finalising consultation on the draft Cybersecurity Strategy.
The purpose of a Cybersecurity Strategy is to provide a clear, structured, and proactive approach to protecting an organization’s digital assets, information systems, and critical infrastructure from cyber threats. It aligns cybersecurity efforts with national interests. The draft strategy focuses on
1. Protect Information and Systems by ensuring the security, confidentiality, integrity, and availability of ICT systems and digital infrastructure.
2. Build Resilience and Incident Response by developing the capability to detect, respond to, and recover from cyber incidents and minimize disruption to services and operations during cyberattacks or breaches.
3. Strengthen National Security by Protecting critical infrastructure (e.g., energy, transport, healthcare, finance, communications) from cyber-enabled threat and enhance national defense and intelligence capabilities in the cyber domain.
4. Promote Awareness and Cyber Hygiene by educating employees, citizens, or stakeholders about safe digital practices, and fostering a culture of cybersecurity through training, awareness campaigns, and responsible behaviour online.
5. Foster Collaboration and Information Sharing by Enhancing coordination between government, private sector, academia, and international partners. The NICOC will soon develop coordination capacity for an integrated national intelligence structures cybersecurity coordination to support the work of the SSA and other role players.
The SSA and The World:
Honourable Members,
SSA remains mindful of the linkages of our national security to that of our neighbours, the continent and the world. SSA has been active in supporting government’s work in the context of SADC, SACU, the AU, BRICS, the United Nations and bilateral relations. Our work includes working closely with partner intelligence and security services in identifying the common security threats affecting the region and most of which would pose a threat to South Africa’s national security. Recognising the new threats emerging from the digital space, the SSA has been proactive in pioneering discussions on collaboration among African countries for investing in sovereign digital infrastructure that is interoperable. In this regard, the SSA as the Southern African Regional Chair of the Committee of Intelligence and Security Services of Africa (CISSA) has been at the forefront of initiating dialogue within the Southern African region on building strategies for technological sovereignty
In support of South Africa’s multilateral programmes, the SSA provides both Threat, Risks and Opportunities assessments as well as Intelligence briefs in preparation for the participation of South Africa’s various delegations to multilateral bodies and the implementation of multilateral agreements with a view to supporting South Africa’s international agenda. The SSA has through quarterly Continental Stability Assessments and other products on transnational threats such as terrorism forewarned on regional instability that could constitute an impediment to the operations of South African businesses wishing to invest in Africa. Recent global developments such as the roll-out of global tariffs and the withdrawal of international aid to African economies have also
been factored into the SSA’s assessments on threats, risks and opportunities to South Africa’s economic diplomacy.
As a modern intelligence service that is not confined to understanding old threats, the SSA is preoccupied with the implications of the current geopolitical climate and on multilateralism and cooperation as these are crucial avenues for advancing South Africa’s positions and security the national interest. In this regard, we will continue providing government with the best available information on threats and opportunities to our bilateral and multilateral agenda as well as on how the country could best expand its trade and economic partnerships.
The SSA is also preoccupied with the impact to national security and interests arising from the ensuing global conflicts. We are aware that some of the global conflicts, despite their geographic location, invariably impact South Africa and Africa in general either through imported threats or disruption of essential supply chains. We will therefore dedicate our resources, skills and efforts towards understanding the dynamics of these conflicts so that we are able to provide government with the most accurate and reliable forewarning on their projected impact. This would allow government to remain fully briefed and able to take necessary policy positions or diplomatic interventions required to safeguard the national security and interest of the Republic.
Conclusion
Intelligence exists primarily to safeguard the sovereignty of the state. It must fulfill this role by identifying and countering potential threats, using the instruments and resources available to it. I table Budget Vote 8: National Treasury (State Security Agency) for your support to enable us to deliver on this mandate.
