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Research Paper Research Paper THE ROLE OF LOCAL INSTITUTIONS IN COMMUNAL AREA DEVELOPMENT IN BarSWANA by Louise For tmann LAND TE.NURE. CENTER An Institute for Research and Education on Social Structure, Rural Institutions, Resource Use and Development Land Tenure Center I 300 University Avenue University of Wisconsin-Madison Research Paper U.S. ISSN 0084-081 S Madison, Wisconsin 53706 THE ROLE OF LOCAL INSTITUTIONS IN COMMUNAL AREA DEVELOPMENT IN BorSWANA by Louise Fortmann Thi.s study was funded by the Agency· for International Development, washington, cc. All views, interpretations, recommendations and conclusions expressed in this publication are those of the author and not necessarily those of ~he supporting or cooperative organizations. Land~· Tenure Center LTC ResearchPaper 91 university of Wisconsin-Madison November 1986 THE ROLE OF LOCAL INSTITUTIONS IN COMMUNAL AREA DEVELOPMENT A SUMMARY REPORT by Louise Fortmann APPLIED RESEARCH UNIT MINISTRY OF LOCAL GOVERNMENT AND LANDS * ** LAND TENURE CENTER UNIVERSITY OF WISCONSIN-MADISON November 1986 All views, interpretations, recommendations, and conclusions are those· of the author and not necessarily·thoseofsupporting or cooperating institutions. INTRODUCTION This paper is one of thirteen reports produced by the Botswana Local In­ stitutions Research Project. The project was a collaborative effort by the Land Tenure Center and the Applied Research Unit of the Ministry of Local Gov- ernment and Lands. Earlier versions of these reports were published in ... Bo­ tswana •by the. Ministry, in limited numbers. LTC is reproducingthern in its 'publication series to ensure the availability of some excellent primary infor- mation on Botswana to scholars in the u.s. and elsewhere outside Botswa:na. .The research project is in three parts. The results of a localinstitu­ tions inventory are presented in the first five reports. A later research phase, focused·. on local institutions· and resource management, is represented by the next six reports. Finally/there are. two summary reports, directed to policy-makers. LTC wishes to express its appreciation, first, to the Project Coordinator, Louise Fortmann. Vast amounts of her thought and energy have. gone into this project, and in retrospect, we feel that few others could have made Bomuch of this .researchopportunity. Second, LTC < is grateful to the members of the re­ search team, the authors . of these reports. Their exceptional .• commitment to the research shows.in the project. LTC wishes to thank the Ministry of Local Government and Lands, • and par­ ticularly the staff of the Ministry I s Applied .Research Unit. LTC is grateful to the three Permanent Secretaries during whose tenure •the research ·was·.·carried out: B.K.Temane, Sam Mpuchane, and Peter Molosi. We are particularlyappre­ ciativeof the efforts of two successive heads of the ARU. Dr. Stephen Turner, who was Head of the Unit at the inception of the. project and throughout most of the field research, played a major role in the planning of the project. Ms. Nomtuse.~1bere, the current Head, saw the project to completion and through the all-important review and policy-discussion stages. Their support and encour- agementwasunstinting. Finally, the. research was funded by AID/Gaborone through its Rural .Sector Grant. The project would, of course, not have been possible·without.thisfund­ ing, but it. also benefited greatly· from the active interest and involvement of John Pielemeier, Project Officer during the formative stages of .the .·project, and his successor, Laurier t~aillioux. John W. ·Bruce Africa Program Coordinator v BOTSWANA LOCAL INSTITUTIONS RESEARCH PROJECT PAPERS c. Brown, V. Bontsi, K. Gobotswang, K. Kgabi,.T.Selato, A Study of Local Institutions in Kgatleng District. G. Childers, GovernmE1ntSettlement or People's Community: ~ Study of Local rnstitutionsinGhanzi District. A. Rude, K. Gofamodimo, D. Keebine, O. Mobusa,W. Raditloaneng, G. Sere­ bolo, Report on Local Institutions in Five Villages in the Southern District Communal First Development Area. G. Childers, Local Institutions in NgamilandCFDA. A. Manzardo, Planning for Local Institutions Development in the CFDAs of Botswana. A. Rude, Agricultural Cooperatives in Southern District CFDA. F. Zufferey,A Study of Local Institutions and Resource Management Inquiry in Eastern Central District. L. Fortmann, U. Edzani, K. Gobotswang,A. Magama, L. Motswogole, T. Wot9, Local Institutions, Village Development, and Resource Management: Case Studies from Northeast District, Botswana. F. Zufferey, A Study of Local Institutions in Mopipi Communal First Devel­ opment Area, Central District. C. Brown, Resource Management in KwenengDistrict. L. Fortmann,The Role of Local Institutions in Communal Area Development. C. Brown, Issues in Communal Resource Management. B. Machacha, Botswana's Land Boards as Land Management Institutions. vi REPUBLIC OF BOTSWANA Road 200 ..~ I , I 22" 21" I Z AM B A ANGOLA / / l~- RHODESIA REPUBLIC OF SOUTH AFRICA I .... ' 21" 21" I vii Table of Contents List of 'Tables xi Acknowledgments xiii List·ofAbbreviations vx 1. INTRODUCTION 1 2. TRADITIONAL INSTITUTIONS 5 Chiefs and Headmen 6 Strengthening theA Role of the ChiefIHeadman in Development 11 The Kgotla 12 Judic~al Funct~ons 12 Communication Functions 16 Strengthening the Role of the Kgotla in Development 16 The Ward System 21 The Potential Developmental Role of Traditional Institutions 22 3. VILLAGE DEVELOPMENT COMMITTEES 25 Participation 25 Projects 28 Problems 34 Inappropriate Organizational Structures 34 Financial Fears 37 Trust 39 Relations between Traditional and Modern Village Leaders 39 Strengthening the Role of theVDC in Development 40 4. 'OTHER' MODERN ORGANIZATIONS 43 GeneraL Observations 45 Strengtheni'ng the Role of Other Modern Organizations in Development 48 5 • GOVERNMENT INVOLVEMENT IN COMMUNAL DEVELOPMENT 51 Community-Governmental Links 51 The Imposition of Priorities and Organizational Forms 54 The Bureaucratization of Action 55 ix Table of Contents List of Tables xi Acknowledgments· xiii List of Abbreviations vx 1. INTRODUCTION 1 2 • TRADITIONAL INSTITUTIONS 5 Chiefs and Headmen 6 Strengthening the Role of the Chief/Headman in Development. 11 The Kqotla 12 Judicial Functions 12 Communication Functions 16 Strengthening the Role of the Kgotla in Development 16 The Ward System 21 The Potential Developmental Role of Traditional Institutions 22 3. VILLAGE DEVELOPMENT COMMITTEES 25 Participation 25 Projects 28 Problems 34 Inappropriate Organizational Structures 34 Financial Fears 37 Trust 39 Relations between Traditional and Modern Village Leaders 39 Strengthening the Role of the VDCinDevelopment 40 4 • OTHER MODERN ORGANIZATIONS 43 General Observations 45 Strengthening the Role of Other Modern Organizations in Development 48 5 • GOVERNMENT INVOLVEMENT IN COMMUNAL DEVELOPMENT 51 Community-Governmental Links 51 The Imposition of Priorities and Organizational Forms 54 The Bureaucratizat~on of Action 55 ix The Lack of Accountability 56 The Lack of Coordination within Government 58 Improving the Quality of Government Involvement in Communal Development 58 6 • OTHER ISSUES 59 Self-Help 59 Empty Villages 63 The Effects of Out-Migration 63 Returnees 64 Involvement of Migrants 64 Participation by Women 65 Resource'Management 66 7 • SOME C9NCLUD;ING THOUGHTS 71 Accountability and Authority 71 The Endurance of Traditional Inst~tutions 72 The Question of Spatial Units and Human Conununities 73 The Qu'estion of Politics 74 APPENDIX A. Tables AI-A8 77 BIBLIOGRAPHY 89 x ---------List of Tables Table 1 Local Institutions Survey Sites 2 Table 2 Role of the Village Headman/Chief 8 Table 3 Court Cases Heard in Kgotla, 1916-75 13 Table 4 Characteristics of the Kgotla in Institutions Study Villages 14 Table 5 Percent of People Who Speak when Attending Meetings 18 Table 6 Kgotla Meetings in Study Villages During 12-Week Observa- tion Period 19 Table 7 VDC Meetings in Study Villages During 12-Week Obsirvation Period 27 Table 8 VDC Projects Identified in other Studies 29 Table 9 Characteristics of VDCs -in Study Villages- 30 Table 10 VDC Projects in Study Villages by Ministry 34 Table 11 Meetings of Other Modern Organizations in Study Villages During l2-Week Observation Period 46 Table 12 Participation of Councillors in Village Affairs 53 Table 13 Women's Participation in Village Organizations 67 Table A-I Who Attends Village Meetings 77 Table A-2­ Composition of Modern Organizations in Northeast and Cen­ A-8 tral District Villages 82 xi Acknowledgments Large numbers of people were involved in this project over its two-year duration. The greatest debt is owed to the people of the survey villages who offered hospitality and assistance to yet another set of researchers. One can. only hope that this time their patience will be rewarded by prompt and effec­ tive government action. This report is a summary of work that was undertaken by project staf'f and ~linistry of Botswana research assistants. Many of the ideas and insigh.ts are theirs, not mine. They were: project Staff: Chris Brown, Gary Childers, An­ drE?w Manzardo, Kathryn 'Rick, Andrew Rude, Joyce Stanley,and Freddie Zufferey; University of Botswana: K. Gofamodimo, D. Keebine, 0 • Mobusa , S. ModukarneIe , G. Koketso, S. Sekwakwa,M. Makunga, CJ Maphorisah, A. Magarna, T. Woto, L. Motswogole, U. Edzani, C. Botana, W. Ongadile, E. Zibani, J. Camm, and T. Botsang. Dr. Dominic Milazi, Head, Department of Sociology, University of Botswana, assisted in finding students to participate in the project. Project staff
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