The SADF had started recruiting black South West Africans in 1974 and established segregated military and paramilitary units for semi-autonomous tribal entities such as Ovamboland two years later. PLAN had previously benefited from the deployment of white South African conscripts, reservists, and policemen unfamiliar with the terrain or environment; indigenous recruits were perceived as a means of mitigating this disadvantage. In April 1980, Administrator-General Gerrit Viljoen announced that transfer of some control over military and police forces to South West Africans would occur once the necessary structures were implemented. Through its defence headquarters in Windhoek, the SADF had exercised final authority on all military resources and counter-insurgency efforts. In theory, these arrangements were modified by the establishment of the South West African Territorial Force (SWATF) and the South West African Police (SWAPOL), since both of these forces were placed under the control of the interim government; the latter was also empowered to implement and oversee conscription as it saw fit. However, the SADF retained functional command of all military units; the senior general officer of the SADF in South West Africa also doubled as commander of the SWATF. By the mid 1980s the SWATF numbered about 21,000 personnel and accounted for 61% of all combat troops deployed along the Cutline. Both the SWATF and the Government of National Unity remained dependent on massive SADF military support.