The Progress of Good Governance in Botswana 2008

284 Pages·2012·6.33 MB·English

United Nations
Economic
Commission
for Africa
The Progress of Good
Governance in Botswana 2008
Final Report of the UNECA Project
Measuring and Monitoring Progress Towards
Good Governance in Africa:
The African Governance Report II (AGR II)
Botswana Institute for Development Policy Analysis
BIDPA
34179
Progress of Good Governance in
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The Progress of Good
Goyernance in Botswana 2008
Final Report of the UNECA Project Measuring and Monitoring
Progress Towards Good Governance In Africa: The African
Governance Report II (AGR II)
Author:
Jonathan Mayuyuka Kaunda
Contributors:
Gape Kaboyakgosi, Ibrahim Kamara, Tachilita Balule,
Keneilwe Mpule and Keneilwe Mapana
BOTSWANA INSTITUTE FOR
DEVELOPMENT POLICY ANALYSIS i
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LIBRARY
Botswana Institute for Development Policy Analysis
© BIDPA and United Nations Economic Commission for Africa (UNECA), 2008.
All rights reserved. No part of this publication may be reproduced, stored in a retrieval
system or transmitted in any form or by any means, electronic,
mechanical, photocopying, recording or otherwise, without the written
permission of the copyright owners.
Design and layout: Bay Publishing (Pty) Ltd., Gaborone, Botswana.
Printed by Printing & Publishing Company Botswana, Gaborone, Botswana, 2009.
ISBN 978-99912-464-1-3
The views expressed in this book do not necessarilly represent the opinion of BIDPA or
UNECA but that of the authors.
Contact details:
Public Sector Unit
Botswana Institute for Development Policy Analysis
Private Bag BR 29
Gaborone, Botswana
Tel: [phone]
Fax: [phone]
Homepage: http://www.bidpa.bw
Table of Contents
List of Tables and List of Figures 6
Acronyms 8
Acknowledgements 11
Executive Summary 13
1 Introduction 19
1.1 Objectives of the Governance Project 19
1.2 Outline of the Report 20
2 Methodology 22
2.1 Establishment of a Steering Committee 22
2.2 The Pre-Launch in Country Conference 23
2.3 The Expert Panel Survey 23
2.4 The Desk-Based Research 25
3 Political Governance 27
3.1 Democratic Regime and Structure of Political Representation 28
3.2 Social Inclusiveness in Political Representation 34
3.3 Public Voices and Legitimacy of Political Framework 37
3.4 The Integrity and Legitimacy of the Electoral Process 41
3.5 Conclusion 47
4 Economic Governance and Public Financial Management 49
4.1 Economic Growth, Development and Structural Transformation 49
4.2 Public Financial Management 63
4.3 Management of the Tax System 72
4.4 Management of Public Enterprises 75
4.5 Integrity in the Monetary and Financial System 79
4.6 Conclusion 82
5 Private Sector Development and Corporate Governance 85
5.1 Development of the Private Sector 85
5.2 Partnership between the Public and Private Sectors 91
5.3 The Protection of Property Rights 93
5.4 Corporate Governance 95
5.5 Conclusion 98
6 Institutional Checks and Balances 99
6.1 The Constitution 99
6.2 Effectiveness of the Executive 101
6.3 Effectiveness of the Legislature 102
6.4 Effectiveness of the Judiciary 110
6.5 Effectiveness of Non-State Actors 118
6.6 Conclusion 122
7 Institutional Effectiveness and Accountability of the Executive 124
7.1 Quality of the Executive and the Public Service 124
7.2 Effectiveness of Procedures for Combating Corruption and
Integrity of the Executive Branch 129
7.3 Role and Capacity of Local Governments 131
7.4 Role of Traditional Structures in Government 136
7.5 Role and Capacity of Law Enforcement Agencies 137
7.6 Transparency and Accountability of the Executive 141
7.7 Policy-Making Process and Coherence 146
7.8 Service Delivery 147
7.9 Conclusion 158
8 Human Rights and the Rule of Law 160
8.1 The Legal and Institutional Regime for Human Rights Norms
and Enforcement 163
8.2 The State of Human Rights and the Rule of Law in Botswana 164
8.3 Law Enforcement Agencies and Human Rights Violations 166
8.4 Civil and Political Rights 167
8.5 Gender Equality and Human Rights 168
8.6 Socio-Economic and Cultural Rights 169
8.7 Civil Society and the Human Rights Regime 169
8.8 Peace and Conflict Management 170
8.9 Conclusion 170
9 Institutional Capacity Building for Good Governance 172
9.1 Context and Environment for Capacity Building 172
9.2 Capacity Gaps in the State Sector 175
9.3 Capacity Gaps in Non State Actors 180
9.4 Towards Enhancing Capacity 186
9.5 Recommendations for Enhancing Capacities 187
10 Progress of Good Governance: Comparison Between the AGR 1
and AGR II Studies 190
10.1 Botswana’s Governance Agenda 190
10.2Botswana’s Governance Performance 191
10.3Comparison of the 2003 and 2007 Governance Studies 198
11 Conclusion 201
11.1 Sustaining Good Governance and State Capacity' 204
Appendices 206
Appendix B.l: Selected Tables from C.l 206
Appendix C.l Indicators for Monitoring Progress towards Good Governance 233
Appendix C.3 Desk Research Instrument 263
Appendix D-1: Profiles of Respondents who Attended the Seminar on
the State of Governance in Botswana 274
Appendix D2.A: Profiles of all Respondents of the Expert Panel C.l
Questionnaire 275
Appendix D2.B: List of all Respondents of the Expert Panel C.l
Questionnaire 277
Appendix E: Timetable for Annual Public Budgeting (2005/06) 280
List of Tables and Figures
List of Tables
Table 1: Elections and parliamentary seat distribution 1965-2004 30
Table 2: Women in parliament and cabinet 36
Table 3: Ratio of women in decision-making positions (per cent) 2002 36
Table 4: Trends in the composition of GDP (per cent of total GDP) 51
Table 5: Per capita GDP growth rates (at constant 1993/94 prices) 51
Table 6: Real exchange rate (RER) indices (USD/Pula, Sept. 2006 = 100) 51
Table 7: Trends in the composition of exports as a percentage of total exports 52
Table 8: Investment in future growth (aggregate investment as a percentage of GDP) 53
Table 9: Social development indicators, 2006 55
Table 10; Selected social indicators in 2002 55
Table 11: Persons living below one US dollar per day 56
Table 12: GINI coefficient 56
Table 13: Unemployment rate, 1993-2006 57
Table 14: Education and health social indicators 58
Table 15: National resources utilised for HIV/AIDS response 63
Table 16: Government revenue as percentage of GDP, 1996-2005 64
Table 17: Trends in the budget 65
Table 18: Pattern of government expenditure as percentage of GDP 66
Table 19: Public budget allocations, 2007-08 67
Table 20: Sources of government financing: percentage of total revenue 73
Table 21: Proportions of tax revenues, 2005/06 73
Table 22: Interest rate, exchange rate and inflation trends 81
Table 23: Banking sector concentration 81
Table 24: Selected indicators related to access to the public services 150
Table 25: Health facilities in Botswana 150
Table 26: Land ownership by gender 151
Table 27: Access to clean water supply 151
Table 28: Primary and secondary school attendance, 2003 152
Table 29: Enrolment at all levels by gender (1992-2001) 155
Table 30: Ibrahim Index of African governance: Botswana 2000, 2002 and 2007 193
Table 31: TI Corruption Perceptions Index (CPI) Botswana 2007 193
Table 32: Botswana WGI percentile rank differentials, 1996-2007 196
List of Figures
Figure 1: Trends in foreign direct investment net inflows, 1980-2005 53
Figure 2: Trends in recurrent and development expenditures 66
Figure 3: Control of corruption in comparison with SSA, 2006 72
Figure 4: WBI Botswana governance indicators, 2007 (compared with SSA
regional average) 192
Figure 5: Voice and accountability 1996-2007 193
Figure 6: Political stability, 1996-2007 194
Figure 7: Government effectiveness, 1996-2007 194
Figure 8: Regulatory quality, 1996-2007 195
Figure 9: Rule of law, 1996-2007 195
Figure 10: Control of corruption, 1996-2007 196
Acronyms
AAT Association of Accounting Technicians
ACCA Association of Chartered Certified Accountants
ACDC Association of Citizen Development Consultants
ARV Anti Retroviral
BBS Botswana Bureau of Standards
BCP Botswana Congress Party
BDC Botswana Development Corporation
BDP Botswana Democratic Party
BEAC Botswana Economic Advisory Council
BEDIA Botswana Export Development and Investment Agency
BFTU Botswana Federation of Trade Unions
BIA Botswana Institute of Accountants
BIDPA Botswana Institute for Development Policy Analysis
BITS Botswana Information Technology Society
BNF Botswana National Front
BOCCIM Botswana Confederation of Commerce, Industry and Manpower
BOCONGO Botswana Council of Non Governmental Organisations
BOTEC Botswana Technology Centre
BPC Botswana Power Corporation
BPS Botswana Police Service
BSE Botswana Stock Exchange
BURS Botswana Unified Revenue Services
CEDA Citizen Entrepreneurial Development Agency
CEDAW Convention on the Elimination of All Forms of Discrimination Against
Women
CKGR Central Kalahari Game Reserve
COBIT Citizen Owned Businesses in Information Technology
CPD Continuing Professional Development
CSO Central Statistics Office
CTB Central Tender Board
DCEC Directorate on Corruption and Economic Crime
DDC District Development Committee
DPSM Directorate of Public Service Management
EC SAFA East, Central and Southern African Federation of Accountants
EISA Electoral Institute of Southern Africa
ESAAMLG Eastern and Southern Africa Anti Money Laundering Group
FAP Financial Assistance Policy
FATF Financial Action Task Force
FDI Foreign Direct Investment
FES Friedrich Ebert Foundation
FIAS Foreign Investment Advisory Services