COUNTRY PROFILE 2017–18 THE LOCAL GOVERNMENT SYSTEM IN BOTSWANA SUMMARY Botswana is a democratic republic with a two-tier system of government: national government headed by the president and local government headed by a mayor in towns/cities and a council chairperson in rural districts. There is no constitutional provision for local government in Botswana, and the main legislation is the Local Government Act 2012. The Ministry of Local Government and Rural Development is charged with providing policy direction and guidance. Local government comprises 16 administrative districts (ten rural and six urban). Under these, there are 23 sub-districts including four administrative authorities. Governance at the local level is also based on a traditional system of villages headed by a kgosi (chief). This traditional system works cooperatively with other district institutions. Following the 2014 local elections, 18.1% of councillors were women, and in 2016/17 local government expenditure was 12.0% of total government expenditure. Although councils have legal powers to collect certain taxes, levies and fees, national government provides up to 90% of their total recurrent revenue. Statutory council functions include provision of primary infrastructure, tertiary and access roads, health and sanitation, economic and physical development, collection and management of waste, and general maintenance of law and order.

1. NATIONAL GOVERNMENT Other relevant Acts include: Botswana is a democratic republic with nn a bicameral parliament made up of a Public Service Act 2008 national assembly which is advised on nn Town and Regional Planning Act 2013 social issues by the House of Chiefs or Ntlo nn Local Authority Procurement and ya Dikgosi.7.1a The president is the head of Assets Disposal Act 2008. state and government and is indirectly elected by the members of the national 2.3 Proposed legislative changes assembly to hold office for a maximum A process is underway to develop a aggregate period of ten years. Fifty-seven decentralisation policy. KEY FACTS of the 61 national assembly members are directly elected by universal adult suffrage 2.4 National urban policy POPULATION (2018 estimate): under the first-past-the-post system from 2,304,238 single-member constituencies. Four There is no national urban policy in members are appointed by the president Botswana. AREA (UN 2006): and endorsed by parliament. Following 582,000 sq km the 2014 election 9.5% of national 3. STRUCTURE OF LOCAL GOVERNMENT CAPITAL: assembly members were women.7.1b 3.1 Local government within the state The president and the attorney general Botswana is a unitary state that operates are ex-officio members of parliament. a two-tier system of government. The CURRENCY: The president appoints a cabinet of national government forms the first tier, pula (BWP) ministers from among members of the headed by the president. Councils form HEAD OF STATE AND GOVERNMENT: national assembly. The Ntlo ya Dikgosi the second tier, headed by a mayor in President has an advisory role and has a total of urban areas and a council chairperson in 34 members. Each locality has a district rural districts. FORM OF GOVERNMENT: commissioner (DC), who is the senior republic representative of national government in that district. The district commissioner 3.2 Ministerial oversight PARLIAMENTARY SYSTEM: coordinates development at district level The Ministry of Local Government and bicameral 7.3c and is the chairperson of the district/ Rural Development (MLGRD) is charged STATE STRUCTURE: urban development committee, which is a with providing policy direction and unitary planning body. guidance for socioeconomic and rural development at local level. It formulates LANGUAGES: and monitors implementation of policies English, Setswana (official) 2. LEGAL BASIS FOR related to local government. The MLGRD LOCAL GOVERNMENT has certain powers over councils and is NATIONAL ELECTIONS: 2.1 Constitutional provisions empowered by legislation to vary the last: Oct 2014, turnout: 83.7%; next: 2019 There is no constitutional provision number of councillors. The ministry has 7.2a : for local government in Botswana . responsibility for: WOMEN IN PARLIAMENT (2014) However, the 2016-launched Botswana 9.5% 7.2b nn providing basic physical and social Vision 2036 asserts that decentralisation LOCAL ELECTIONS: infrastructure of power, decision-making, resources last: Oct 2014, turnout: 84.6%; next: 2019 and service delivery will underpin the nn ensuring efficient operation of all Batswana governance system. local authorities through good WOMEN COUNCILLORS (2014): governance 18.1% nn serving as national government’s focal 2.2 Main legislative texts LOCAL GOVERNMENT EXPENDITURE point for local government policies The main legislative text is: as a percentage of total government and operational matters nn Local Government Act 2012.7.2c. budget 2014/15: 12.0%

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Table 7.1a Distribution of councils and population 3.3.3 Land boards: These are corporate bodies responsible for land administration District Sub- Population Population % rural districts 2011 Census 2018 estimate 2011 Census and charged with holding tribal land for the purpose of promoting social and Central/ National 16 585,595 616,126 na economic development. When originally established the land boards were Chobe 0 23,347 27,628 na accountable to district councils; however, this changed over time and they now Francistown 0 98,961 111,706 na report directly to the Ministry of Lands and Gaborone 0 231,592 269,365 na Housing. Each of the 12 main land boards has eight members who are appointed by 2 43,095 52,168 na the minister, including the chairperson.

Jwaneng 0 18,008 20,259 na 4. ELECTIONS Kgalagadi 3 50,4952 57,294 na 4.1 Recent local elections Kgatleng 2 91,660 106,717 na The last local elections were held in October 20147.4, with a turnout of 84.6%. Kweneng 3 304,549 367,906 na The next elections are scheduled for 2019.

Lobatse 0 29,007 27,608 na 4.2 Voting system North-West/ Ngamiland 3 152,284 202,446 na Most councillors are elected, with North-East 2 60,264 69,137 na a minimal number (currently 19%) appointed by the minister at the Southern 5 197,767 217,736 na MLGRD. Elections take place every five years by universal adult suffrage using Selebi Phikwe 0 49,411 47,723 na the first-past-the-post system. The local elections take place at the same time South-East 5 85,014 106,224 na as the national elections. The country is Sowa Township 0 3,598 4,195 na divided into 16 districts, six of which are urban. Villages are clustered to make TOTAL 16 41 2,024,904 2,304,238 35.9 wards, represented by a councillor at both the sub–district/administrative 7.3a 7.3b Source: MLGRD communication with CLGF, 2011 Census and UNFPA population estimates authority and district levels. Councillor representation is similar in urban areas, where the area of coverage nn coordinating the activities of national 3.3.1 Urban and district councils: These is determined by the size of the government at district level are composed of elected and nominated population within a constituency. Each nn mobilising social welfare and members, with the district commissioner council is divided into wards and each community resources to facilitate as an ex-officio member. In the case of ward elects a single councillor. The both community participation district councils, kgosi and land board number of polling districts is reviewed in the development process and chairpersons (see Section 3.3.3) are after each population census. coordination of rural development. also ex-officio members. Councils are accountable to the electorate, and have both authority to take decisions within 4.3 Elected representatives 3.3 Council types their localities and discretion to allocate There are currently 490 council wards Local government comprises two resources within their area of jurisdiction. in Botswana. The smallest council has types of local administration: ten seven wards, while the largest has 140. rural and six urban districts (four 3.3.2 Tribal administration: Botswana’s There are currently 609 councillors in town councils, two city councils), 23 institution of traditional village Botswana of whom 490 are elected and sub-districts and four administrative leadership has both a traditional and 119 are nominated. Chairpersons/mayors authorities. In 2009 sub-council fora a development remit. It supports rural are indirectly elected from among were established – namely, sub-districts development initiatives, particularly the councillors for half the term of the and administrative authorities – which at the community level. It comprises council, that is, 2.5 years. are empowered to make decisions two units: judicial, led by the kgosi; and on development issues, except on administrative, headed by the tribal the following: raising of local revenue, secretary. The traditional system of 4.4 Women’s representation engaging in international relations and village leadership works cooperatively Following the 2014 local government formulation of by-law and guidelines. with councils. Each village is headed elections, 18.1% (110/609) councillors were These remain the responsibility of the by a chief, or kgosi, who is an ex- women, of which 63 were elected and district headquarters. Every council with officio member of the district council 47 nominated. This is down from 23.1% sub-districts may constitute up to two in their area of jurisdiction. The tribal (139/603) following the 2009 elections committees of any nature at all levels, administration system is supported by a and 19.6% (116/591) following the 2004 whereas a council without sub-districts traditional arbitration forum now known elections. Also following the 2014 election, may constitute up to seven committees. as the Customary Court of Appeal, and 18.8% (3/16) mayors/chairpersons were Due to the vastness of the country, by the Ntlo ya Dikgosi, which advises women, which is up from 6.3% (1/16) after councils can establish service centres to government on social matters. the 2009 elections and back to the level bring services closer to the people. of the 2004 elections: see Table 7.1b.

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Table 7.1b Women councillors and mayors following the last three local elections level consultative meetings. Each district administration is headed by 2004 2009 2014 a district commissioner appointed Councillors # % # % # % by the permanent secretary to the president. Each district commissioner Female councillors 116 19.6 139 23.1 110 18.1 has authority over the development, implementation and monitoring of their Male councillors 475 80.4 464 76.9 499 81.9 local district/urban development plan. Total councillors 591 100.0 603 100.0 609 100.0 Local authorities, headed by council secretaries/town clerks, and heads of Chairpersons departments for national government provide effective communication links Female mayors 3 18.8 1 6.3 3 18.8 between communities and national government. At national government Male mayors 13 87.2 15 93.8 13 87.2 level, the MLGRD is well represented Total mayors 16 100.0 16 100.0 16 100.0 in cabinet with a minister and two assistant ministers. Additionally, in Source: MLGRD correspondence with CLGF 2012 the government established Note: Figures may not sum to totals due to rounding. a parliamentary committee, the Local Governance and Social Welfare Committee, which is responsible for 5. SYSTEMS FOR 6. ORGANISED LOCAL GOVERNMENT local governance issues at national COMMUNITY INVOLVEMENT 6.1 National local government association level. Local authorities can also establish 5.1 Legal requirement The Botswana Association of Local national and international twinnings The Local Government Act establishes Authorities7.6 (BALA) is a voluntary with other local authorities to undertake village/urban development committees organisation established in 1983 to development projects of common at ward and village levels, whose role promote unity, solidarity, cohesion and interest and benefit. is to coordinate development at the cooperation among local authorities. local level in line with Botswana’s The association also engages and 8. MONITORING SYSTEMS principle of bottom-up planning, where collaborates with government on matters A number of independent scrutiny developments are to be discussed with that affect its members. Under the Local mechanisms ensure the accountability communities before implementation. Government Act 2012, the association was of local authorities: mandated to develop a code of conduct nn 5.2 Implementation for its members, which was ratified by the Auditor General’s Department is members in 2013. The association is also a statutory authority which audits the Local government uses a bottom- enshrined in the Local Government Act accounts of all councils annually up planning approach whereby 2012 and its objectives are to: provide nn communities are consulted during the the Local Authorities Public Accounts and strengthen local governance; provide drafting of district/urban development Committee, appointed by MLGRD, opportunities for members to discuss plans. These plans take a long-term examines the accounts of local issues of common interest; collaborate view (five to six years). The consultations authorities periodically and engage with national government are done with the participation of all nn the Ombudsman deals with on matters of mutual interest; and build institutions operating at the district complaints of maladministration partnerships, networks and coalitions level, coordinated by the Office of the nn the Directorate on Economic Crime with strategic organisations. Its main District Commissioner. The village/ and Corruption investigates alleged funding is from national government. ward development committees cases of corruption in local authorities. Some donor agencies have also provided which were established by the Local modest support. These organisations derive their authority Government Act 2012 are used to reach from the constitution and from acts of the community. Dikgosi (traditional parliament such as the Ombudsman leaders) play a critical role in mobilising 7. INTERGOVERNMENTAL RELATIONS Act, the Corruption and Economic Crime communities for consultation on all Good intergovernmental relations are Act, the Accounts and Audit Act and the government policies and programmes promoted through various mechanisms Local Authority Procurement and Asset at the local level. such as national and local-level forums including kgotla meetings and high- Disposal Act. 5.3 ICT use in citizen engagement Table 7.2a Aggregate income and expenditure for local government 2016/17 As part of the Botswana e-Government Master Plan 2015–20217.5, there is a local Income BWPm Expenditure BWPm government information initiative. Centre–local transfers 3,530 Administration

5.4 Local economic development (LED) Restricted na Staff 2,073 The LED framework, approved by cabinet in Oct 2016, guides people centred Unrestricted na Property maintenance 756 local economy initiatives. The MLGRD in collaboration with CLGF, UNDP and Locally raised revenue 2,717 Operational costs 234 BALA (see 6.1), are assisting the districts Property taxes na Services to map their LED strategy which will assist comminities in determining the Licences and fees na Development 2,757 future economic activities in the area. TOTAL INCOME 6,247 TOTAL EXPENDITURE 5,819

Note: Figures may not sum to totals due to rounding Source: MLGRD communication with CLGF

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Table 7.2b Local government expenditure as a percentage of total government expenditure 2013–17

2014/15 2015/16 2016/17 2017/18 2018/19 actual actual actual estimated budgeted BWPbn BWPbn BWPbn BWPbn BWPbn

Total government expenditure 50.56 55.96 51.81 na 45.94

Total local government expenditure 5.82 na 6.21 na 6.28

Local government expenditure as a percentage of total government expenditure 11.5% na 12.0% na 13.7%

Source: MOI communication with CLGF, Budget Statement 2016 and table 2a.7.9

9. FINANCE, STAFFING AND RESOURCES 10. DISTRIBUTION OF SERVICE REFERENCES AND USEFUL WEBSITES 9.1 Local government expenditure DELIVERY RESPONSIBILITY 7.1a portal In 2016/17, local government expenditure 10.1 Overview of local government www.gov.bw was 12.0% of total government service delivery responsibility 7.1b Women in national parliaments. expenditure: see table 7.2b. Councils are organised into departments Inter-Parliamentary Union to facilitate service delivery and each www.ipu.org/wmn-e/classif.htm has jurisdiction over its own area. 9.2 Locally raised revenue 7.2a Botswana Constitution www. Coordination of council plans and parliament.gov.bw/documents-and- Councils have statutory powers to collect activities is done through various reports/constitution-of-botswana certain taxes, levies and fees to cover mechanisms and forums organised their operating expenses. Local sources 7.2b Botswana Vision 2036, p.27 by national government. Functions of of revenue include rates, service levies www.statsbots.org.bw/2036-vision councils include provision of primary and user charges including abattoir 7.2c Local Government Act 2012 http:// education infrastructure, public health fees, trade licences, beer levy, interest aceproject.org/ero-en/regions/ and sanitation, waste management, on investments, housing rents, and any africa/BW/Local%20Government- tertiary and secondary roads and other sources of revenue as determined District%20Councils%20Act.pdf other areas such as social welfare and from time to time. Since 2012, property 7.3a National Statistics Office, 2011 community development, remote tax and business tax are applicable in Census www.cso.gov.bw area development and maintenance both urban and district councils. of public facilities. Local authorities 7.3b UNFPA population estimates are empowered to undertake other www.statsbots.org.bw/sites/ 9.3 Transfers functions related to those specified by default/files/publications/ National government provides 90% legislation and as advised by the MLGRD. population_projection.pd and 80% of district and urban councils’ 7.3c Ministry of Local Government and Rural Development recurrent budgets, respectively; and 10.2 ICT use in service delivery 100% of their capital budgets. Councils www.mlg.gov.bw Some of the services offered by councils also receive development grants from 7.4 Election Commission www.iec.gov.bw can be found on their websites. In national government. Since Botswana’s addition, the MLGRD is piloting a 7.5 Botswana e-Government domestic government revenues are ‘service hall’ concept in two councils, Master Plan 2015-2021 largely generated by mining and Kweneng and Gaborone, in response to www.cit.co.bw/downloads/e- national taxes, the revenue is pooled feedback from customers highlighting govenment%20master%20 and shared between national and local slow turnaround time, disjointed and plan%20presentation%20to%20 government. fragmented services, manual services, 14th%20e-government%20 poor record management, and excessive board%20version2.pdf 9.4 Loans bureaucracy. The service halls represent a 7.6 Botswana Association of Local No information is available. first step towards joined-up government Authorities www.bala.org.bw and a ‘one-stop shop’ approach where 7.7 No references for this section a number of services can be provided 9.5 Local authority staff 7.8 No references for this section under one roof and also offered online. The Department of Corporate Services 7.9 Based on figure BWP5.82bn within the MLGRD is responsible in table 2 and BWP50.56bn in for recruitment, postings, transfers, 10.3 The role of local government section 71 the 2016/17 budget in promotions, training, discipline and in achieving the UN Sustainable brief www.gov.bw/en/Ministries– conditions of service of senior staff in all Development Goals (SDGs) Authorities/Ministries/Ministry- local authorities. The administrative heads Vision 20367.10 aligns Botswana’s national of-Finance-and-Development- of councils are town clerks in urban agenda with the global agenda for Planning1/latest-news-/ districts and council secretaries in rural sustainable development, and its THE-2016-BUDGET-SPEECH districts. The responsibility for lower grade associated sustainable development 7.10 Botswana Vision 2036 www. staff lies with the local authority and the goals and the principles of the Africa statsbots.org.bw/2036-vision local district commissioner. Councillors Agenda 2063. A substantial role is 7.11a UN 2012 statistics surface area receive remuneration at a level envisaged within Vision 2036 for local http://unstats.un.org/unsd/ determined by national government. government both in terms of governance demographic/products/dyb/ Strategic leadership at local authority and local economic development. dyb2006/Table03.pdf level is provided by mayors in towns and 7.11b Commonwealth Local council chairpersons in rural districts. Government Knowledge Hub www.clgf.org.uk/resource-centre/ knowledge-hub 7.11c UNDP HDR Botswana country profile http://hdr.undp.org/en/ countries/profiles/BWA

38 www.clgf.org.uk/botswana COUNTRY PROFILE 2017–18 THE LOCAL GOVERNMENT SYSTEM IN botswana

Annex 7a Summary of service provision in different spheres of government in Botswana

Delivering authority

Services National government City/town councils Rural councils Remarks

GENERAL ADMINISTRATION Police n Fire protection n n Criminal justice n Ministry of Labour and Home Affairs is responsible for civil Civil status register n status register Statistical office n Electoral register n

EDUCATION Pre-school (kindergarten and nursery) n n Primary n n Government offers only at reception class level, private pre- Secondary n schools offer at a lower level Vocational and technical n Some apprenticeship training Higher education n brigades are community-owned Adult education n

SOCIAL WELFARE Family welfare services n n Welfare homes n Social security n n n PUBLIC HEALTH Primary care n Inspectorate for Licensing Hospitals n responsible for vector control and household malaria spray Health protection n n n HOUSING AND TOWN PLANNING Housing n n n Self-help housing loans Town planning n n n administration overseen by Ministry of Lands and Housing Regional planning n TRANSPORT Roads n n n Transport n Urban roads n Botswana is a landlocked country Urban rail n so has no ports Ports Airports n ENVIRONMENT AND PUBLIC SANITATION Water and sanitation n Refuse collection and disposal n n Cemeteries and crematoria n n Provided by water utility Slaughter-houses n n n corporations Environmental protection n n Consumer protection n CULTURE, LEISURE AND SPORTS Theatre and concerts n n n Museums and libraries n Parks and open spaces n n Sports and leisure n n n Religious facilities UTILITIES Gas services District heating Water supply n n n Electricity n ECONOMIC Agriculture, forests and fisheries n Economic promotion Trade and industry n n n

n sole responsibility service n joint responsibility service n discretionary service

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