The politics of development in Botswana : a model for success? http://www.aluka.org/action/showMetadata?doi=10.5555/AL.SFF.DOCUMENT.crp3b10008 Use of the Aluka digital library is subject to Aluka’s Terms and Conditions, available at http://www.aluka.org/page/about/termsConditions.jsp. By using Aluka, you agree that you have read and will abide by the Terms and Conditions. Among other things, the Terms and Conditions provide that the content in the Aluka digital library is only for personal, non-commercial use by authorized users of Aluka in connection with research, scholarship, and education. The content in the Aluka digital library is subject to copyright, with the exception of certain governmental works and very old materials that may be in the public domain under applicable law. Permission must be sought from Aluka and/or the applicable copyright holder in connection with any duplication or distribution of these materials where required by applicable law. Aluka is a not-for-profit initiative dedicated to creating and preserving a digital archive of materials about and from the developing world. For more information about Aluka, please see http://www.aluka.org The politics of development in Botswana : a model for success? Author/Creator Picard, Louis A. Publisher L. Rienner Publishers (Boulder) Date 1987 Resource type Books Language English Subject Coverage (spatial) Botswana Source Northwestern University Libraries, Melville J. Herskovits Library of African Studies, 968.11 P586p Rights By kind permission of Louis A. Picard and Lynne Rienner Publishers, Inc. Description The State and Society. The Tswana Polities and British Colonialism in Southern Africa. Bureaucrats and Chiefs: Contradictions of Indirect Rule. Recruitment in the Civil Service: The Oxbridge Model, Localization, and the Protectorate. Colonial Economic Policy: Benign Neglect or Structural Underdevelopment? Crisis and Containment: The Limits of Nationalism in the Bureaucratic State. Independent Botswana: Containment, Electoral Mobilization, and the Multiparty System. Local Government Institutions: Patterns of Autonomy and Control. The Politics of Human Resource Constraints. Changing Rural Development Priorities in a Growth Economy. Conclusion. Format extent 309 pages (length/size) http://www.aluka.org/action/showMetadata?doi=10.5555/AL.SFF.DOCUMENT.crp3b10008 http://www.aluka.org 4 'Qý." 4 'Qý." tv 4w M1 .. ......... K l:1 To ltM ' AýM.U21 T _%a 'tj ý.ø ffl M-%4i1 14 g. lut k. r2 Rri, ij i2 d Li MM oý 1, 'Ellill-? . .... .... ..... f M .... ...... The Politics of Development in Botswana tk lln Ö!g! The Politics of Development in Botswana A Model for Success? Louis A. Picard Lynne Rienner Publishers * Boulder & London I Published in the United States of America in 1987 by Lynne Rienner Publishers, Inc. 948 North Street, Boulder. Colorado 80302 © 1987 by Lynne Rienner Publishers, Inc. All rights reserved Library of Congress Cataloging-in-Publication Data Picard, Louis A. The politics of development in Botswana Bibliography: p. Includes index. 1. Botswana-Politics and government-To 19662. Botswana-Politics and government-19663. Botswana-Economic conditions. 4. BotswanaEconomic conditions-1966- . I. Title. JQ2760.A2P53 1987 968.l'l 86-31331 ISBN 0-931477-95-6 (lib. bdg.) Printed and bound in the United States of America The paper used in this publication meets the requirements of the American National Standard for Permanence of Paper for Printed Library Materials Z39.48- 1984. 0 Contents List of Tables and Figures vii A Note on the Usage of Terms ix Preface xi 1 The State and Society 1 2 The Tswana Polities and British Colonialism in Southern Africa 25 3 Bureaucrats and Chiefs: Contradictions of Indirect Rule 46 4 Recruitment in the Civil Service: The Oxbridge Model, Localization, and the Protectorate 70 5 Colonial Economic Policy: Benign Neglect or Structural Underdevelopment? 96 6 Crisis and Containment: The Limits of Nationalism in the Bureaucratic State 121 7 Independent Botswana: Containment, Electoral Mobilization, and the Multiparty System 145 8 Local Government Institutions: Patterns of Autonomy and Control 177 9 The Politics of Human Resource Constraints 202 10 Changing Rural Development Priorities in a Growth Economy 231 11 Conclusion 269 Selected Glossary 276 Selected Bibliography 281 Index 292 Tables and Figures Table 1.1 De Jure and De Facto Population 1971-1985 4 Table 2.1 Police Force Background of Bechunanland District Officers 33 Table 2.2 Familial Connections of Bechuanaland District Officers: Pre-1937 Recruitment Pattern 34 Table 3.1 Reserve Administration Budgets, 1950 58 Table 4.1 Dominions Office Officials 73 Table 4.2 Locally Recruited Officers and CAS Officers, 1937and1949 81 Table 5.1 British Grants-in-Aid, 1956 to 1968 102 Table 5.2 Administrative Positions in Bechuanaland 104 Table 7.1 Botswana National Assembly Elections, 1969-1979 163 Table 8.1 Deficit Grants to District Councils, 1972-1976 186 Table 8.2 Central District Income and Expenditures, 1972-1976 186 Table 8.3 District and Town Council Election Results, 1966-79 191 Table 9.1 Staffing Patterns in Bechuanaland Civil Service, 1964 204 Table 9.2 Appointments and Promotions in the Botswana Civil Service 205 Table 9.3 Localization in the Botswana Public Service 208 Table 9.4 Expansion of the Botswana Civil Service 210 Table 9.5 Volunteer Officers in District Councils, the District Administration, and the Ministry of Local Government and Lands in August 1975 215 Table 9.6 Administrative Attitudes Toward New Land Policy, by Administrative Type 223 Table 9.7 Administrative Attitudes Toward New Land Policy, by Salary and Administrative Responsibility 225 Table 9.8 Administrative Attitudes Toward New Land Policy, by Salary and Related Salary Range 226 Table 9.9 Administrative Attitudes Toward New Land Policy, byLevelofEducation 227 Table 10.1 Status of TGLP Ranch Allocation, 1981 254 Figure 1.1 Republic of Botswana 6 Figure 4.1 Official Lines of Communication in Bechuanaland 72 Figure 8.1 District Level Organizations in Botswana 179 A Note on the Usage of Terms It should be noted that in this book, following the Sotho-Tswana practice, the people of Botswana are called Batswana. One person is a Motswana; the language is Setswana. The root word, Tswana, is used to describe attributes such as "Tswana culture." Ethnic subdivisions subdivide in the same way, for example, Ngwato, Mongwato, and Bamangwato. Currency use in Southern Africa can be confusing. Until 1961, the South African pound (f) was used throughout the High Commission Territories. In 1961, the South African government divided the pound in half and renamed it the Rand. From 1961 until 1976, the Rand was used in Botswana. In that year the Government of Botswana introduced a national currency, the Pula, which was initially at a par with the Rand. It has been necessary for historical accuracy to use a number of terms that today have negative or inaccurate connotations. The use of such words has been limited as much as possible. At various points, however, terms such as "native authority," "tribal," and "tribal administration" appear in the text. Rather than clutter the book with quotation marks, the terms are simply used in the context which they would historically or legally appear. The term "tribal administration" in particular continues to be used in an informal and non-disparaging sense in Botswana and it is in that sense that I use the term here. Preface I trace the origins of this book to July of 1980 and my arrival in Botswana for an eighteen-month assignment at the Institute of Development Management, just a few days before the death of the country's first president, Sir Seretse Khama. As I witnessed the events surrounding President Khama's funeral and the orderly transition to the presidency of Quett Masire, I felt that this might be an opportune time to examine the nature of the post-colonial state in this unique African country and to relate post-independence developments to the some eighty years of colonial rule that preceded the establishment of the Republic of Botswana. I did not think then that this task would occupy my time off and on for the better part of six years. In 1975 I spent nine months in Botswana on a Fulbright fellowship conducting dissertation research on role changes among field administrators. As is the case with many dissertations, mine had several different, somewhat contradictory, focuses and a methodology (role analysis) with which I had become increasingly uncomfortable while in the field. Rather than shucking the theory and finding a new analytical framework, I plodded on and completed a dissertation that was overly long and more than somewhat disjointed. Although it was an adequate dissertation, it was not, and never would be, a book. Had I not returned to Botswana in 1980, I would have published a number of academic articles out of the dissertation and then gone on to other research. The return to Botswana gave me a second chance. This book is the result. The research for the book took place in three phases. In spite of the imperfections of the dissertation, the research conducted in 1975 provided a great deal of the documentary material. Two sojourns at the University of Wisconsin in 1976 and 1978 (the latter year at the superb Land Tenure Center) provided me with much of the primary and secondary documentation on rural development and land tenure. xii The Politics of Development in Botswana The third phase of the research was carried out between 1980 and 1984 after I had finally defined a topic for the book. Eighteen months of residence in Botswana and extended visits to the country during 1982 and 1984 were essential both to complete my collection of documentary materials and to keep up-to-date on political changes and policy shifts. Critics of Botswana's policy process point to the country's reputation as a "paper mill." Shelf after shelf in the Botswana National Archives are filled with policy documents, many written by expatriates, that gather dust.