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Telecommunications Reform in Botswana: a Policy Model for African States Patricia K

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Telecommunications Reform in Botswana: a Policy Model for African States Patricia K Wayne State University DigitalCommons@WayneState Communication Faculty Research Publications Communication 7-1-2001 Telecommunications Reform In Botswana: a Policy Model for African States Patricia K. McCormick Wayne State University, [email protected] Recommended Citation McCormick, Patricia K. "Telecommunications reform in Botswana: a policy model for African states." Telecommunications Policy 25.6 (2001): 409-420. Available at: http://digitalcommons.wayne.edu/commfrp/1 This Article is brought to you for free and open access by the Communication at DigitalCommons@WayneState. It has been accepted for inclusion in Communication Faculty Research Publications by an authorized administrator of DigitalCommons@WayneState. NOTICE IN COMPLIANCE WITH PUBLISHER POLICY: This is the author’s version of a work that was accepted for publication in Telecommunications Policy. Changes resulting from the publishing process, such as peer review, editing, corrections, structural formatting, and other quality control mechanisms may not be reflected in this document. Changes may have been made to this work since it was submitted for publication. This version has been formatted for ar- chiving; a definitive version was subsequently published in Telecommunications Policy, 25(6). July 2001. pp. 409-420. Available online at: http://dx.doi.org/10.1016/S0308-5961(01)00014-3 ! Telecommunications reform in Botswana: a policy model for African states PATRICIA K. McCORMICK, Department of Radio, TV and Film, Howard University, 525 Bryant St., NW, Washington, DC 20059, USA Corresponding author email:[email protected] tel:202-806-7929 Abstract Since the mid-1990s, Botswana has pursued a policy of telecommunications liberalisation. This article, based on fieldwork conducted in Botswana in the summer of 2000, analyzes several notable aspects of the process of reform and denotes those worthy of emulation by other African states. The participation and protection of domestic telecommunication users, transparency in decision-making, the creation of an independent regulatory agency, and the introduction of competition in the form of private cellular service providers are among those policy features that are recommended for replication. Various facets of the tendering process and subsequent licences granted to the mo- bile operators as well as recent legislation are also examined and commended. Keywords Policy; Reform; Africa; Botswana; Regulation and regulatory agency Reform of the telecommunications sector has na's telecommunications liberalisation policies become globally accepted as essential to promote can be considered a model for other African network efficiencies and extend the infrastructure states to emulate, especially member states of the to rural areas. The strategic importance of the Southern African Development Community sector is beyond dispute. The telecommunica- (SADC). In examining Botswana's telecommuni- tions sector is critical in enabling countries to cations policies, this article seeks to contribute to achieve social and economic development goals a dialogue among those who participate in the as well as compete in the international economy, challenge of planning, administering, and as- since effective use of electronic communication sessing the telecommunications sector in devel- permits improved coordination in the distribution oping countries. and production of goods and services. The tele- communications network is the most basic form METHODOLOGY of infrastructure for it serves as a platform and a catalyst for other industries, facilitating forward This work employs the case study, which draws and backward linkages within the economy. As upon multiple data sources to develop converg- developing countries modernize their economies, ing lines of inquiry or triangulation when inves- emphasis is placed on upgrading the telecommu- tigating a specific, contemporary phenomenon. nications infrastructure. To facilitate this process This study, based on field work conducted in reform of the sector is imperative. Botswana in the summer of 2000, draws on three Reform and privatization of the telecommu- primary sources of evidence: documentation, ar- nications sector have diffused rapidly interna- chival records, and elite interviews. Documenta- tionally, yet Africa remains a laggard in this pol- tion sources include, among other references, icy diffusion process. An exception to this gen- policy and legal documents from the Southern eral state of affairs is Botswana whose govern- African Transport and Communications Com- ment perceived insufficient telecommunications mission (SATCC), an organ of SADC, and the services as an impediment to sustainable devel- Telecommunications Regulators Association of opment, and it is this perception that has served Southern Africa (TRASA). Archival records as the impetus for sector restructuring. Botswa- draw upon records of the telephony service pro- 2!!!!!DIGITALCOMMONS@WSU | 2001! TELECOMMUNICATIONS REFORM IN BOTSWANA | PATRICIA McCORMICK viders under analysis, namely the Botswana Tel- suing, indeed high external indebtedness can be ecommunications Corporation, Mascom Wireless retained under such circumstances. Botswana, and Vista Cellular. In gathering data, open-ended however, has profited from strong national unity interviews were conducted with a variety of peo- and good and stable governance. The govern- ple intimately involved with Botswana's tele- ment is styled on a Westminster system with an communications sector, including the principal executive President as head of state and govern- economist of the Ministry of Works, Transport ment. Although the country boasts several politi- and Communications, the chief executive officer cal parties with elections held every 5 years, the of Mascom Wireless, the general manager of Botswana Democratic Party (BDP) has been in Vista, and staff of the Botswana Telecommunica- power since independence in 1966. Furthermore, tions Corporation (BTC) as well as the executive despite the turbulence in the region, Botswana chairman and other staff members of the regula- has remained unmarred by war. tory agency in Botswana, the Botswana Tele- These positive attributes not withstanding, communications Authority (BTA) (1997). the country does face obstacles to its continued growth and expansion. Notably, the country must Socio-economic profile of Botswana diversify its economy and its trading partners for, like other countries in the region, it is highly de- Despite its small population of some 1.5 million pendent on the Republic of South Africa whose people scattered across a semi-arid terrain of economic fluctuations directly affect Botswana. more than 580,000 km2, Botswana boasts a vi- A downturn in the South African economy in brant export economy based in large part on its 1999 adversely affected industrial production, optimal utilization of fortuitous mineral deposits, specifically automobiles. According to Siddiqi notably diamonds. After a protracted search of (1999, pp. 6 and 7), approximately 95% of vehi- 12 years, the discovery of diamonds in 1967 cles assembled in Botswana are exported to dramatically altered the rate of development in South Africa and some 70% of consumer imports Botswana. According to a Presidential Task are from South Africa. Furthermore, Botswana's Group for a Long Term Vision for Botswana currency, the pula, is pegged to a basket of cur- (1997, p. 15), between 1966 and 1995 Botswa- rencies, 60% of which is dominated by the na's per capita GDP witnessed an average annual weighting of the South African rand. To maintain increase of around 6%. In per capita terms, Bot- the competitiveness of manufactured exports to swana's foreign exchange reserves are among the South Africa, writes Siddiqi (1999, p. 7), the highest in the world and the country is consid- rand will continue to be targeted by the central ered one of the richest non-oil producing states in bank's exchange rate policies. Employment in the Africa. It has enjoyed a healthy balance of pay- country too must be remedied. Although the offi- ments surplus since 1985. Due to sound public cial unemployment rate is 21%, unofficial esti- sector management, its key debt ratios, negligible mates place it closer to 40%. In the course of in comparison with other developing countries, economic diversification, the employment issue effectively result in net negative external debt. too must be redressed. The country's economic health, however, is over- Fully cognizant of the perils of a mono- ly dependent on diamonds, precariously so, as commodity economy, albeit one based on dia- diamonds contribute on average to 75% of export monds, the government has introduced fiscal pol- earnings, one-third of GDP and more than one icies aimed at fostering economic diversification. half of government revenue (Siddiqi, 1999, p. 6). Other than the vehicle assembly industry and a Botswana's characterization as one of the few soda ash plant, efforts to diversify the economy African success stories is not due, though, entire- have to date witnessed little success. The Bot- ly to diamonds. As noted elsewhere on the conti- swana Ministry of Finance and Development nent, natural resources, such as oil, are readily Planning, however, recently approved and pub- exploited with no general economic benefits en- lished the Privatisation Policy for Botswana 3!!!!!DIGITALCOMMONS@WSU | 2001! TELECOMMUNICATIONS REFORM IN BOTSWANA | PATRICIA McCORMICK Government Paper No. 1 of 2000 (2000, p. 3), in 1980 through 1995 the BTC operated
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