Responding to a series of questions from NCOP members, Minister Ntshavheni stated that the SSA had completed a full-scale internal skills audit to assess personnel competencies. “The skills audit has helped to clarify the skills and competency gaps within the agency,” she said. “It has supported the need for a skills refresh through both training and retraining, voluntary service packages, and alternative redeployment.”

The audit, she explained, was followed by the implementation of training programmes targeting core capabilities, including data science, cyber analysis, and intelligence tradecraft. “We need skills in data science and related fields. The recruitment process will close those gaps,” she noted, adding that career-pathing and succession planning frameworks were being finalised to support longer-term professional development.

Ntshavheni confirmed that with the General Intelligence Laws Amendment Bill (GILAB) being signed into law, the road has been paved for the structural separation of domestic and foreign intelligence branches within the SSA. However, she stressed that the two new entities were not yet operational. “They will only start to operate on the day that will be proclaimed by the President,” she said. “We are working to ensure that all necessary regulations are in place before the proclamation to mitigate risk and ensure accountability.”

She emphasised that while the agency is undergoing reconfiguration, it is not being dismantled, “There is neither a dissolution of existing structures nor the establishment of new entities, but an organisational reconfiguration of the SSA to enhance operational, strategic, and organisational efficiency.”

This process, she said, had been benchmarked against international best practices. “A team was appointed to study global intelligence models, and we were fortunate that this benchmarking work was completed before the amendment bill was finalised.”

In response to concerns over transparency and past political interference, the Minister reiterated that oversight of the intelligence sector remains with the Joint Standing Committee on Intelligence (JSCI) and the Inspector-General of Intelligence. “The JSCI has completed an induction at the SSA head office, and feedback indicates satisfaction with the level of disclosure,” she said. “We are also finalising internal regulations that will govern accountability and performance.”

When pressed about internal resistance to change, Ntshavheni acknowledged the challenge but stated that steps were being taken to address it. “We’ve appointed a dedicated change management officer to engage with staff and management,” she explained. “Management swaps have also been introduced to prevent the perception of purges, and we are using alternative deployment mechanisms so staff do not feel discarded but rather repurposed.”

She reported improved cooperation from within the agency, particularly among junior ranks: “Intelligence officers below management level have been very supportive of the changes, especially those recommended by the Zondo Commission and High-Level Review Panel.”

The Minister clarified that the SSA does not have arrest powers but contributes by collecting and sharing intelligence with law enforcement. “Our duty is to identify and profile syndicates so that the police do not just shoot in the dark,” she said. “We hand over what we gather to SAPS and other agencies.”

SSA, she explained, participates in the National Priority Crimes Operational Committee (NPCOC) and is part of the team developing a national integrated strategy to combat transnational organised crime. The strategy is expected to be finalised by September 2025.

She also confirmed that SSA is working closely with the Financial Intelligence Centre (FIC), the Financial Sector Conduct Authority, the Reserve Bank, and the banking industry to address money laundering, suspicious transactions, and criminal use of crypto-assets. “We have a solid working relationship in this environment,” she said.

Ntshavheni stated that SSA is actively monitoring political movements and support groups, both foreign and domestic, that may pose a risk to national security. “We are vigilant against disinformation campaigns, cyber operations, and ideological influences that could destabilise public trust in democratic institutions,” she said.

When asked about the spread of narratives that allegedly incite racial division or foreign intervention, she confirmed that “law enforcement agencies are investigating acts of treason relating to false information being spread internationally.” She acknowledged the need for better regulation of civil society organisations while affirming that constitutional freedoms would be respected. “The transformation of governance frameworks will not infringe on civil liberties but will strengthen oversight of nonprofit organisations,” she said.

Concluding her remarks, the Minister said that many of the reforms aim to institutionalise accountability mechanisms. “We are working to ensure that governance improvements are not tied to a particular minister but embedded within the system,” she stated. “People who hold the appropriate skills do not owe their position to anyone, and that helps depoliticise the agency.”

The Minister also highlighted the importance of performance management frameworks and regulatory clarity: “Accountability will no longer depend on favours. It will be guided by regulations and operational directives that bring certainty to how intelligence work is executed.”

While noting that reform is ongoing, she affirmed that capacity exists within the SSA to support current operations: “We are not yet where we want to be, but we are on track.”

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Alongside Lucas, the new members were sworn into the JSCI on 01 April 2025, further strengthening parliamentary oversight of intelligence operations. The newly appointed members are Doris Eunice Dlakude, Mluleki Dlelanga, Tshilidzi Bethuel Munyai, Kenneth Mosimanegape Mmoiemang, Jane Seboletswe Mananiso, Dianne Kohler, Jeanne Marguerite Adriaanse, and Nicholas Georg Myburgh. These members took their oaths before Judge President Nolwazi Mabindla-Boqwana of the Western Cape Division of the High Court during a formal swearing-in ceremony at Parliament.

The JSCI is responsible for overseeing the operations of South Africa’s intelligence agencies, including the newly established intelligence branches, following the restructuring of the State Security Agency (SSA). The committee ensures that these agencies operate within legal frameworks and do not overstep their mandates. As Chairperson, Lucas will be responsible for leading investigations, reviewing intelligence budgets, and ensuring compliance with national security legislation.

The appointments to the JSCI come at a pivotal time as South Africa implements the General Intelligence Laws Amendment Bill (GILAB), which was signed into law by President Cyril Ramaphosa, albeit after a 10 month delay. This legislative reform marks a significant overhaul of South Africa’s intelligence services and strengthens oversight mechanisms.

The GILAB amends key intelligence-related laws, including the National Strategic Intelligence Act of 1994, the Intelligence Services Act of 2002, and the Intelligence Services Oversight Act of 1994. Among its major reforms, the law disestablishes the State Security Agency (SSA) and replaces it with two distinct entities. The Foreign Intelligence Service (FIS) will be responsible for foreign intelligence gathering, identifying both opportunities and threats to national security. The Domestic Intelligence Agency (DIA) will focus on counter-intelligence and gathering domestic intelligence to detect internal security threats. In addition, the law re-establishes the South African National Academy of Intelligence (SANAI) and the Intelligence Training Institute to enhance intelligence capacity-building.

Further provisions include the introduction of stricter measures regarding bulk interception of internet traffic entering or leaving South Africa, requiring internal authorisations and court reviews. The law also enhances financial management and expenditure oversight of intelligence entities under the JSCI’s purview and provides greater autonomy for the Inspector-General of Intelligence and the National Intelligence Coordinating Committee (NICOC) in making administrative and operational decisions.

With these structural reforms, the JSCI’s role in ensuring that intelligence agencies function lawfully and effectively becomes even more crucial. The committee will oversee the budgets, operations, and conduct of both the FIS and DIA, ensuring compliance with national security policies and legal frameworks.

The restructuring aligns with the recommendations of the 2018 Presidential High-Level Review Panel on the SSA and the Judicial Commission of Inquiry into State Capture (the Zondo Commission). These reports highlighted past intelligence abuses, political interference, and financial mismanagement within the SSA, necessitating urgent reforms to restore integrity and effectiveness within the intelligence sector.

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The General Intelligence Laws Amendment Bill signed on Friday is the basis for significant reforms of South Africa’s intelligence services that will be accompanied by improved oversight and accountability.

In a statement, the Presidency said the amendment Act amends the National Strategic Intelligence Act of 1994, the Intelligence Services Act of 2002, and the Intelligence Services Oversight Act of 1994.

“Among other reforms, the amendment Act disestablishes the current State Security Agency as a national government department and replaces it with two separate departments.

“The new departments are the Foreign Intelligence Service (FIS) which shall be responsible for foreign intelligence gathering so as to identify opportunities and threats to National Security, and the Domestic Intelligence Agency (DIA) which shall be responsible for counter-intelligence as well as the gathering of domestic intelligence in order to identify threats to National Security,” the Presidency said.

The amendment Act also re-establishes the South African National Academy of Intelligence (SANAI) and Intelligence Training Institute for both Domestic and Foreign Intelligence capacities.

The wide-ranging amendments constitute implementation of the recommendations of the 2018 Presidential High-Level Review Panel on the State Security Agency (SSA) and of the Judicial Commission of Inquiry into Allegations of State Capture, Corruption and Fraud in the Public Sector (the Zondo Commission).

“The law also addresses concerns about bulk interception by intelligence services of internet traffic entering or leaving South Africa, by introducing new measures including authorisation within the intelligence services as well as court reviews of such interception,” the statement read.

The law provides for the administration, financial management and expenditure of the intelligence service entities to be within the ambit of the oversight of the Joint Standing Committee on Intelligence – a multiparty committee of Parliament that processes public complaints about the intelligence services and monitors the finances and operations of these services.

The newly enacted amendments also provide for greater autonomy for the Inspector-General of Intelligence and the National Intelligence Coordinating Committee (NICOC) in making administrative and functional decisions.

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The GILAB is designed to modernise intelligence laws and enhance the operational efficiency of South Africa’s intelligence agencies. By updating the legal framework within which intelligence bodies operate, the bill aims to improve national security and ensure better coordination among agencies.

However, despite its passage on 16 May 2024, the bill has not yet been enacted, leading to questions about the impact of this delay on the safety of the Republic.

Section 84 of the Constitution mandates that the President must carefully review and apply his mind before assenting to any bill. While this process is an important safeguard, critics argue that the extended delay is excessive and could hinder intelligence operations.

The Minister in the Presidency has defended the delay, stating that the intelligence community has used this time to “prepare the Agency for the implementation of the Bill.” However, this reasoning has been met with scepticism.

Nicholas Myburgh, member of parliament for the Democratic Alliance, who serves on the Ad Hoc Committee on Intelligence, has strongly criticised the delay, questioning both the justification given by the Minister and the President’s inaction.

“Firstly, since the Minister has indicated that SSA is using the President’s inordinately long delay in assenting to the GILAB ‘to prepare the Agency for the implementation of the Bill,’ it begs the question: what exactly do these preparations entail?”

“Secondly, it raises the legitimate expectation of the rapid and fully effective implementation of the Bill once the President has considered it important enough to sign.”

Myburgh did not hold back in his criticism of the President’s handling of the bill, expressing concern over the prolonged inaction.

“It is quite extraordinary that 10 months after Parliament passed the Bill, widely considered as crucial to the safety of the Republic and the operational efficiency of the SSA, the President is either sleeping on the job or simply being reckless with the security of the state.”

With intelligence threats evolving rapidly, the delay in enacting the bill has raised alarm bells. While the government maintains that preparations are underway, there is growing pressure on the President to provide clarity on when he intends to sign the bill into law.

As security concerns continue to mount, many believe that the urgency of the situation demands swift action. The delay has sparked debate over whether constitutional processes are being followed responsibly or whether inaction is placing South Africa’s security at unnecessary risk.

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In a rare public statement, the SSA categorically denied the existence of such an operation and rejected any suggestion that it was involved in manipulating state apparatus for political purposes. The agency emphasised that its activities are strictly governed by established Operational Directives, with additional regulatory frameworks currently being developed to enhance oversight and accountability. The SSA further reiterated that all legally mandated oversight mechanisms remain fully functional.

The Ministry in The Presidency issued the statement, reaffirming the government’s commitment to transparency, accountability, and good governance within the SSA.

The SSA has been undergoing significant restructuring, following recommendations from the Zondo Commission. The commission highlighted several operational weaknesses within the agency, including its unlawful merger of domestic and foreign intelligence functions into a single entity. This consolidation, deemed unconstitutional and inefficient, prompted calls for reform to restore the SSA’s original structure and mandate.

In response, the government introduced the General Intelligence Laws Amendment Bill, which seeks to separate the SSA’s domestic and foreign intelligence branches into distinct entities. This restructuring is intended to enhance operational focus, prevent political interference, and ensure intelligence operations align with constitutional principles.

The bill was presented to President Cyril Ramaphosa on 16 May 2024 and still awaits his signature before it can be passed into law. However, despite the legislation not yet being enacted, SSA Minister Khumbudzo Ntshavheni has confirmed that preparations for its full implementation are already underway.

Despite these ongoing reforms, key national security documents, which were expected to guide the SSA’s future operations, have yet to be made public. Two major documents, the National Security Strategy (NSS) and the National Intelligence Estimate (NIE), were previously announced in Parliament, with scheduled releases in September 2024 and August 2024, respectively. However, neither has been formally published.

The National Security Strategy (NSS) was developed in consultation with the Joint Standing Committee on Intelligence (JSCI) of the 6^th Administration and approved by Cabinet in the previous financial year 2023/24. It is intended to serve as a strategic blueprint for intelligence operations, outlining the SSA’s approach to safeguarding national security and defining key priorities.

The National Intelligence Estimate (NIE) was prepared by the National Intelligence Coordinating Committee (NICOC) in collaboration with the JSCI. This document is expected to provide a comprehensive analysis of national security threats, categorising them by severity and priority.

However, the delay in their release is linked to a major administrative hurdle, the absence of a new JSCI. The JSCI, is only parliamentary body responsible for intelligence oversight, and has yet to be constituted under the 7th administration, creating a gap in official intelligence governance. Minister Ntshavheni has stated that once the JSCI is formally established, a progress report on the SSA’s reforms will be submitted, followed by the official release of the NIE.

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The decision follows recommendations from the High-Level Review Panel, which found that the SSA had been compromised by corruption and mismanagement, often serving private interests rather than the state. In response, the agency is focusing on redefining its mandate, improving personnel management, and modernising its intelligence capabilities.

One of the key issues driving the restructuring is the aging workforce at senior levels, with many top officials, including Deputy Director-Generals (DDGs), set to retire within the next two to five years. To prevent a leadership gap, the SSA is introducing succession planning, career progression initiatives, and alternative deployment strategies to ensure a steady pipeline of skilled intelligence officers.

As part of the transition, the SSA has conducted a comprehensive skills audit with 99.5% compliance, providing a clear assessment of the agency’s existing expertise and capacity gaps. To address these shortcomings, a new training programme will be launched in January 2025, alongside a curriculum review at the intelligence academy to adapt to digital-era security challenges.

The restructuring is also financially driven. The National Treasury has allocated R11 billion to cover pension penalties for early retirements, with funding becoming available on April 1, 2025, on a first-come, first-served basis. The SSA has already begun engagements to secure its share of the funding and ensure compliance with legal frameworks governing early retirement.

Recognising that such major organizational changes could create anxiety among employees, the SSA has appointed an experienced change management expert to facilitate communication, address concerns, and ensure buy-in from senior and middle management. Engagements with staff representatives are ongoing to prevent misinformation and resistance.

Beyond personnel restructuring, the SSA is also implementing business process re-engineering to strengthen accountability, governance, and oversight mechanisms. The Minister in the Presidency has committed to establishing independent disciplinary panels chaired by senior counsel to hold officials accused of corruption and misconduct accountable.

The reforms align with the General Intelligence Laws Amendment Bill (GILAB) 2024, which is expected to provide further impetus for restructuring once enacted. The ultimate goal is to create an intelligence agency that is lean, effective, and focused on national security priorities, addressing weaknesses identified in the Report on the July 2021 unrest.

As the SSA moves forward with these critical reforms, the success of the restructuring will depend on effective implementation, leadership stability, and the ability to navigate internal resistance, ensuring that South Africa’s intelligence operations regain credibility and efficiency.

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George had asked Minister Nshavheni which steps had been taken “taken to reverse the amalgamation,” of the State Security Agency (SSA). The question was based on the findings by Health Literacy Research and Practice into the SSA in 2018, which stated “the amalgamation of National Intelligence Agency and South African Secret Service into the SSA did not achieve its purported objectives and was contrary to existing policy.”

In her response, Minister Nshavheni noted the “process to amend the laws is done through the General Intelligence Laws Amendment Bill, which has been passed by parliament namely the National Assembly and is now awaiting the President to sign the Bill into law.”

Further, she reiterated the Government’s full commitment to “the process of reversing the amalgamation.”

“The Agency, through the GILAB Implementation Task Team, have already developed a high-level structural design of both the South African Intelligence Service (Foreign Service) and South African Intelligence Agency (Domestic Service). Once the Bill is enacted into legislation, the President will appoint the Directors-General of the two new Departments, who may further refine the proposed structures and make determinations on the priority areas for capacitation taking into consideration budgetary implications,” said Minister Nshavheni.

On 15 July 2024, Minister Nshavheni announced during the SSA Budget Vote, that she intended to release the National Security Strategy in September 2024, “in accordance with the law and best practice.”

Cabinet had further reportedly approved the 2024/25 National Intelligence Estimate (NIE), which was prepared by the National Intelligence Co-ordinating Committee (NICOC) alongside the Joints Standing Committee on Intelligence (JSCI). The NIE “provides an analysis of the prevailing threats to national security and [classifies] them according to severity and priority for implementation.” Minister Ntshavheni stated that once the JSCI of the 7^th administration had been established, a progress report of the implementation would be handed over and followed by the release of the 2024/25 NIE in August 2024.

However, as of 22 October 2024, neither the NIE or the National Security Strategy have been released.

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To date, the completed recommendations notably include the re-establishment of the National Security Council (NSC), and a thorough audit of all the SSA’s technological assets and the development a consolidated asset register. The pre-SDP structure has been re-instituted, but the restructuring of the Agency has been suspended, until the restructuring task team completes its work in preparation of the implementation of the General Intelligence Laws and Amendments Bill (GILAB 2024). Management and staff displaced by SDP process have either been reinstated or are gainfully deployed.

The vision and mission, scope and structure of a national intelligence training and education capacity is under review, and the SSA is developing an appropriate career advancement protocol. Further, the agency is developing exit options for existing staff.

“The education, training and development of intelligence officers should ensure extensive knowledge and understanding of the constitutional, legislative and other prescripts relating to intelligence as well as the definition of, and procedures for dealing with manifestly illegal orders,” said Minister Ntshavheni.

Ntshavheni stated that senior appointments, “including those of Deputy Directors-General, should be made in accordance with the Recruitment and Appointment Directives and Regulations, as is the norm in government.”

“While the prerogative to appoint a head of service/s should remain with the President, such appointment should follow a similar process as currently being undertaken for the appointment of the National Director of Public Prosecutions or as recommended in Chapter 13 of the National Development Plan,” added Ntshavheni

Furthermore, the Minister revealed the Agency would conduct an urgent policy review of the Agency’s security vetting mandate, and “urgently institute a major project to plan for and resource a medium- to long-term recapitalisation of the Agency’s technological capacities.”

Drafting of the new National Security Strategy is also underway, with staff being consulted on the changes emerging out of review recommendations.

The Minister called for the ministries of State Security and Justice to “urgently attend to the strengthening of the capacity of the judicial authority established in terms of RICA and the expediting of the review of the RICA legislation.”

The SSA is further exploring idea of a dedicated capacity for the Joint Standing Committee on Intelligence (JSCI) and the establishment of the intelligence coordination mechanisms through regulations.

“The remaining recommendations will be implemented as soon as the GILAB becomes law. When the Joint Standing Committee on Intelligence is set up, I commit to brief the Committee on progress that has been made in implementing the remedial actions,” said Ntshavheni.

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