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Republic <strong>of</strong> Botswana<br />

<strong>National</strong> <strong>Integrated</strong> <strong>Transport</strong> <strong>Policy</strong><br />

<strong>White</strong> <strong>Paper</strong><br />

For consultation<br />

Ministry <strong>of</strong> <strong>Transport</strong> and Communications<br />

JULY 2011<br />

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Page i


Botswana <strong>National</strong> <strong>Integrated</strong> <strong>Transport</strong> <strong>Policy</strong><br />

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Page ii


Botswana <strong>National</strong> <strong>Integrated</strong> <strong>Transport</strong> <strong>Policy</strong><br />

Preamble to the <strong>White</strong><br />

<strong>Paper</strong><br />

Context<br />

The transport Sector <strong>of</strong> Botswana has grown beyond all recognition since<br />

independence in 1966 and yet there has never been a transport policy. This<br />

document sets out the policies <strong>of</strong> the government, building on past successes,<br />

recognizing where improvement is still needed and setting a vision and direction for<br />

the next 30 years. The <strong>Policy</strong> is intended to get the most from the entire transport<br />

sector, to improve the quality <strong>of</strong> life <strong>of</strong> us all and that <strong>of</strong> our neighbours, by ensuring<br />

the management <strong>of</strong> the transport sector overall is completely integrated, taking into<br />

consideration the pressing issues <strong>of</strong> our time such as energy and environment and<br />

poverty alleviation; while laying the foundation for us to fully exploit the technologies<br />

<strong>of</strong> the future. Once adopted by the <strong>Government</strong>, the <strong>Policy</strong> will pave the way for<br />

moving rapidly forward on various Acts and Regulatory Instruments that will<br />

implement the <strong>Policy</strong> and also provide the basis for each <strong>of</strong> the different modes <strong>of</strong><br />

transport to develop and implement their own strategies<br />

Providing more open and accessible government<br />

The <strong>National</strong> <strong>Transport</strong> <strong>Policy</strong> <strong>of</strong> Botswana is a new style <strong>of</strong> document that sets out<br />

the vision and general directions for transport to the year 2035. The document aims<br />

to provide information in a readable and user friendly style as a part <strong>of</strong> a gradual<br />

process <strong>of</strong> providing more open and accessible government. Sometimes such<br />

documentation has tended to be technocratic, written by pr<strong>of</strong>essionals for<br />

pr<strong>of</strong>essionasl, and rarely read by the general public. But the wider public has a right<br />

to know, and it is the duty <strong>of</strong> any government to be fully informative <strong>of</strong> its intensions.<br />

More inclusive processes<br />

In finalizing these policies, all relevant government organizations have been<br />

consulted in accordance with procedures that are laid down by law. But for the first<br />

time an opportunity for members <strong>of</strong> the public to comment on the policies has also<br />

been provided. The final result is a set <strong>of</strong> Policies for <strong>Transport</strong> that is truly<br />

representative <strong>of</strong> all interests.<br />

Defining the <strong>National</strong> Interest<br />

Since Independence, Botswana has shown time and time again that it is peaceful<br />

loving nation and a liberal democracy where government is by the people for the<br />

people, functioning in a non-intrusive way and intervening only when it is considered<br />

to be in the national interest. This <strong>National</strong> <strong>Integrated</strong> <strong>Transport</strong> <strong>Policy</strong> sets out<br />

exactly what is in the national interest as far as transport is concerned.<br />

Providing the framework for decision making<br />

The policies that are set out in this document are general in nature, but specific in<br />

purpose because they provide a framework for the overall direction, organization,<br />

financing and regulation <strong>of</strong> the transport sector. With such a framework in place it will<br />

be much easier for all levels, both inside and outside government, to make the<br />

decisions that are needed. The <strong>Transport</strong> <strong>Policy</strong> will also make it much clearer to the<br />

many organizations that are involved in providing transport services to plan for the<br />

future which means better and more affordable services.<br />

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Botswana <strong>National</strong> <strong>Integrated</strong> <strong>Transport</strong> <strong>Policy</strong><br />

Breaking from the past<br />

The process <strong>of</strong> government is an every changing one, there is no ideal solution.<br />

Botswana remains a relatively young state in the World, but by 2035, which is the<br />

time horizon <strong>of</strong> this policy, the period <strong>of</strong> independent sovereignty will have reached<br />

nearly 70 years and the ways governance will have dramatically changed. And yet,<br />

the policy is designed to be robust, setting our principles that will stand the test <strong>of</strong><br />

time, and minimizing detail that is invariably more time dependent. For example, one<br />

<strong>of</strong> the fundamental principles <strong>of</strong> policy making that breaks from the past is that <strong>of</strong><br />

devolving decision making and responsibility to the most appropriate level.<br />

<strong>Transport</strong> <strong>Policy</strong> Document Structure<br />

Foreword by H.E. the President <strong>of</strong> the Republic <strong>of</strong> Botswana<br />

The statement by the Head <strong>of</strong> State fully supporting the policy providing instruction to<br />

<strong>Government</strong> to prepare legislation, fiscal and other instruments needed for its<br />

implementation.<br />

Introduction by Hon Minister <strong>of</strong> <strong>Transport</strong><br />

A statement concerning the overall management <strong>of</strong> the transport sector including its<br />

contribution to the economy, social, environmental, health and other polices and<br />

sectors.<br />

Glossary <strong>of</strong> Terms<br />

The list <strong>of</strong> terms and definitions used in the <strong>White</strong> <strong>Paper</strong><br />

The challenges for the transport sector<br />

This first section sets out the context and rationale for the transport policy, covering<br />

the general economy, trade, tourism, transit, transport in society, a summary <strong>of</strong> what<br />

has been done and the main challenges facing the sector overall. (Prepared by the<br />

Permanent Secretary <strong>of</strong> the Ministry <strong>of</strong> <strong>Transport</strong> and Communications)<br />

Sector Policies<br />

Part 1 - <strong>Transport</strong> Sector Management Policies<br />

This section sets out the main policy principles that affect the all modes <strong>of</strong> transport<br />

covering management, addressing the needs <strong>of</strong> transport user, raising quality,<br />

development, energy and environment and ensuring social responsibility. It is the first<br />

time that such principles have been established in Botswana.<br />

Part 2.1 Public Passenger <strong>Transport</strong> – Affordable safe and convenient<br />

Providing accessible, affordable and efficient public transport – meeting the needs <strong>of</strong><br />

society and caring for safety and environment - covering urban transport, social<br />

services, spatial planning and urban development, congestion, buses, bus systems,<br />

parking, domestic and international passenger railways, traffic management also<br />

management and financing issues, quality licensing, inspection and enforcement.<br />

Part 2.2 Freight Intermodal and logistics - Meeting the needs <strong>of</strong> a changing economy<br />

Policies that address new markets and opportunities whilst making the industry more<br />

responsible; SADC integration, safeguarding the environment, ensuring the optimum<br />

use <strong>of</strong> transport modes, promoting , intermodality and quality, introducing new<br />

technology, EDI, Telematics, logistics requirements, MMT and IMT Border crossings<br />

and trade facilitation. Protecting the environment and improving energy efficiency.<br />

Sub-Sector Policies<br />

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Botswana <strong>National</strong> <strong>Integrated</strong> <strong>Transport</strong> <strong>Policy</strong><br />

Part 3.1 Road Infrastructure – Raising standards, sharing the cost.<br />

Guaranteeing the sustainable provision <strong>of</strong> roads that addresses needs <strong>of</strong> all users,<br />

covering network classification, improving asset management, organisation, road<br />

financing, investment funding and prioritisation, reducing accidents and<br />

environmental impact.<br />

Part 3.2 Railway <strong>Transport</strong> - Modernising to provide better services<br />

Ensuring that railways meet new challenges and fully participate in the transport<br />

sector by understanding market needs, stimulates competition, reduces tariffs and<br />

commercial pricing, management and restructuring, accounting and costing<br />

information, regulation, safety and quality, environment and energy, consumer<br />

protection and user information development including new rolling stock, and<br />

infrastructure.<br />

Part 3.3 Aviation <strong>Policy</strong> – Broadening Horizons<br />

Planning for improvement <strong>of</strong> strategically important airports, implementation <strong>of</strong><br />

international conventions, Improving safety, ATC, market integration, airport<br />

ownership and management, integration with public transport; pricing services;<br />

development planning, investment funding, environmental impact and climate change<br />

Part 3.4 Marine, River and Pipeline <strong>Transport</strong> <strong>Policy</strong> – Adapting to new markets and<br />

new opportunities<br />

Though not so obvious, Botswana has interests in maritime, river and, in the longer<br />

term, pipeline transport to secure its trade and diversity the sector. Policies are to set<br />

out the ownership and responsibility, planning port hinterland services, improving<br />

performance, diversifying services, providing information, improving operational<br />

efficiency, expansion to meet new demand, River <strong>Transport</strong> <strong>Policy</strong> covers provision <strong>of</strong><br />

clean safe and affordable transport for the 21 st century, integrated with other<br />

transport modes, open to competition, better organised and managed, appropriate<br />

user fees for cost recovery, raising standards, increasing navigable capacities,<br />

information systems, marketing and promotion. Pipeline transport comes into its own<br />

after 2020 to provide secure dedicated supplies <strong>of</strong> an increasingly valuable and<br />

scarce commodity.<br />

Part 4 Key Investments<br />

A list <strong>of</strong> the main investment programmes and major projects that will transform lives<br />

and shape the future <strong>of</strong> the country well into the 21 st century.<br />

Part 5 Supporting Information to Monitor and Evaluate the <strong>Policy</strong><br />

The transport <strong>Policy</strong> must be robust, but information is still important including the key<br />

forecasting indicators against which policy implementation can be monitored and<br />

definition <strong>of</strong> the Strategic <strong>Transport</strong> Network ( to come )<br />

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Botswana <strong>National</strong> <strong>Integrated</strong> <strong>Transport</strong> <strong>Policy</strong><br />

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Botswana <strong>National</strong> <strong>Integrated</strong> <strong>Transport</strong> <strong>Policy</strong><br />

CABINET OF MINISTERS OF BOTSWANA<br />

Order<br />

Dated ____________200_ № _____________<br />

Gaborone<br />

The Botswana <strong>National</strong> <strong>Integrated</strong> <strong>Transport</strong> <strong>Policy</strong><br />

“<strong>Transport</strong> – Time for Change”<br />

By Order <strong>of</strong><br />

President <strong>of</strong> Botswana<br />

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Botswana <strong>National</strong> <strong>Integrated</strong> <strong>Transport</strong> <strong>Policy</strong><br />

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Botswana <strong>National</strong> <strong>Integrated</strong> <strong>Transport</strong> <strong>Policy</strong><br />

Foreword by HE<br />

President <strong>of</strong> the<br />

Republic <strong>of</strong> Botswana<br />

This <strong>Transport</strong> <strong>Policy</strong> is the first for Botswana and it provides a complete departure<br />

from the past. The policy is designed to be highly readable and accessible to a wide<br />

audience on the internet. The <strong>Policy</strong> is aimed to directly address the needs <strong>of</strong> society,<br />

<strong>of</strong> creating more openness and <strong>of</strong> fostering understanding <strong>of</strong> the vision and direction<br />

that your government will take. This policy is in line with its commitment to reform in<br />

the NDP 10.<br />

Our transport systems are now extensive and have evolved over the years to support<br />

society through all <strong>of</strong> its historical changes. The road, railways and aviation systems<br />

are now at a level that put us into the category <strong>of</strong> some middle income countries,<br />

although water and pipelines have yet to make their contribution. There is much to be<br />

done, but it is the way that decisions will be made in the future that will be different<br />

from the past. I expect to see far more accountability and transparency, with<br />

decisions being taken at the right level.<br />

As such there will be a change in the role <strong>of</strong> the <strong>Government</strong> from that <strong>of</strong> state<br />

ownership, central planning and regulation. <strong>Government</strong> used to see its role as<br />

influencing the economy through ownership and control and reigning in the private<br />

sector through financial and quantitative regulations. Whereas governments today<br />

have divested state assets, deregulated price controls and acknowledge that<br />

commercial and not political forces are the best drivers <strong>of</strong> efficiency.<br />

And yet it is true to say that government remains an experiment. The conventional<br />

wisdom <strong>of</strong> privatisation still pervades almost all contemporary thinking, we know that<br />

privatisation is not a perfect solution either, the financial crisis has starkly exposed the<br />

problems that lack <strong>of</strong> regulation can have and experience gained from privatisation<br />

has been mixed.<br />

The <strong>National</strong> <strong>Integrated</strong> <strong>Transport</strong> <strong>Policy</strong> has been prepared at a time <strong>of</strong> where the<br />

<strong>Government</strong> is predicting a deficit by 2016 for the first time in our history and we<br />

know that diamond revenues, that have supported our development so well, will run<br />

dry by 2021. This policy has been prepared in difficult financial times; but it is exactly<br />

at times like this when the issues are most apparent, opportunities for reform and<br />

improvement are evident and clear direction is needed.<br />

The <strong>Policy</strong> represents a new style <strong>of</strong> government which demands new principles<br />

objectives and long term strategy to drive it. The <strong>Policy</strong> is not intended to provide a<br />

detailed plan, as this is not now considered to be the competency <strong>of</strong> the executive<br />

branches <strong>of</strong> <strong>Government</strong>, but it does provide the essential framework in which the<br />

road, railways, water and aviation systems can proceed to prepare their own<br />

programmes and plans for a better future.<br />

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Botswana <strong>National</strong> <strong>Integrated</strong> <strong>Transport</strong> <strong>Policy</strong><br />

The <strong>Policy</strong> recognizes that Botswana is not isolated and on the contrary aims to take<br />

a leading role in the region and become more prominent in international community.<br />

Botswana has responsibilities immediately to all <strong>of</strong> its neighbours to integrate with<br />

their systems and standards and also to the wider international community in terms <strong>of</strong><br />

environment and energy.<br />

Overall, the <strong>Policy</strong> underlines that transport is a public good which means that the<br />

value <strong>of</strong> transport is worth much more than price that we pay for it – transport benefits<br />

the whole <strong>of</strong> society.<br />

The time horizon for this <strong>Policy</strong> is 2036. In the first five years it is expected that<br />

investment will be limited and the strategy is to restructure and reform the sector and<br />

make the best use <strong>of</strong> existing resources but moving forward to 2025 and as transport<br />

demand increases and transport management has improved, then transport systems<br />

are expected to be modernized. Beyond 2025, there are many imponderables such<br />

as the effect <strong>of</strong> climate change, availability <strong>of</strong> energy, new technology such as video<br />

conferencing and e- shopping that may even reduce the need to travel that make<br />

longer term planning more complex.<br />

I want to emphasise three principles that underpin our policy:<br />

1) Ensuring that users’ needs are reflected in providing affordable, efficient, safe<br />

and clean transport;<br />

2) Strengthening the management <strong>of</strong> the <strong>Transport</strong> Sector so that its overall<br />

cost <strong>of</strong> providing transport to society is better aligned to the capacity <strong>of</strong> the<br />

economy;<br />

3) Moving towards Regional Integration and adopting regulations and norms<br />

which are considered to be in the <strong>National</strong> interest<br />

Your <strong>Government</strong> believes that this is the time for change, to make a better life for all<br />

citizens, transport together with energy and environment lie at the heart <strong>of</strong><br />

<strong>Government</strong> <strong>Policy</strong>.<br />

HE The President <strong>of</strong> the Republic <strong>of</strong> Botswana<br />

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Page x


Introduction by Hon<br />

Minister <strong>of</strong> <strong>Transport</strong><br />

and Communications<br />

<strong>Transport</strong> is a means to an end and not an end in itself. It exists to serve, together<br />

with lands and housing other sectors, such as agriculture, mining industry and<br />

tourism. I am sure that we have achieved a great deal over the last 2 generations.<br />

The quality <strong>of</strong> life <strong>of</strong> nearly all citizens has changed enormously. One only has to ask<br />

our senior citizens how things used to be, how long it took to reach the cattle posts,<br />

how long to reach clinics and schools and how long to deliver important supplies and<br />

services, to be told very clearly that things have got a lot better. And yet, as<br />

conditions have improved so expectations have risen. Pot holes are not to be<br />

tolerated <strong>of</strong> course, but we can travel at speeds <strong>of</strong> 120 km over much <strong>of</strong> the road<br />

network these days. Accidents are unacceptably high, but we all have a responsibility<br />

to drive more carefully and with greater thought for others, especially pedestrians.<br />

It would also to be true to guard against complacency because there are many things<br />

that need improving, and that following years <strong>of</strong> growth and development, a new way<br />

forward is needed. Some <strong>of</strong> the main areas that the new way forward will address<br />

include<br />

<br />

<br />

<br />

<br />

<br />

<br />

<br />

Fixing a clear vision for 2035 and beyond;<br />

Providing holistic and integrated management <strong>of</strong> the sector;<br />

Keeping up with technology;<br />

Involving the private sector in the provision <strong>of</strong> services;<br />

Localising government as much as possible;<br />

Serving the productive sectors as well as possible<br />

Becoming more efficient and effective<br />

Firstly a clear vision is needed. We need to know where we heading, the challenges<br />

to be overcome and, importantly the rewards <strong>of</strong> having overcome them. Next we must<br />

work smarter and together within the transport sector and with client ministries such<br />

as agriculture and mining<br />

The limitations <strong>of</strong> government are becoming starkly clear, there is only so much that<br />

can be done by central and even local government to supply the services that are<br />

needed. For this reason a well regulated private sector can contribute significantly in<br />

the future.<br />

Finally, in planning transport services, those on the ground are best placed to see<br />

what the needs are. Local government has more important role to play in future and<br />

we at the Ministry <strong>of</strong> <strong>Transport</strong> and Communications must work harder to ensure that<br />

these needs are met.<br />

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Botswana <strong>National</strong> <strong>Integrated</strong> <strong>Transport</strong> <strong>Policy</strong><br />

The kinds <strong>of</strong> actions needed to be addressed by my Ministry include:<br />

<br />

<br />

<br />

<br />

<br />

<br />

<br />

<br />

<br />

<br />

Incompleteness <strong>of</strong> structural reforms, including those at railway, road, air and<br />

public transport;<br />

Inadequate system <strong>of</strong> land use and transport planning;<br />

Extremely low level <strong>of</strong> domestic innovation and high-tech component in the<br />

transport sector<br />

Unpr<strong>of</strong>itability <strong>of</strong> passenger transport and the inadequate financing <strong>of</strong> road<br />

maintenance;<br />

Insufficient private investment;<br />

Existence <strong>of</strong> many non-physical barriers to trade that increase the cost <strong>of</strong><br />

goods in our shops<br />

Lack <strong>of</strong> impetus to improve efficiency and reduce transport costs:<br />

Lack <strong>of</strong> understanding if transit traffic is a cost or benefit to the Batswana<br />

Slowness to liberalise and deregulate transport markets<br />

A shortage <strong>of</strong> skills especially in transport management<br />

Besides doing a better job at guiding the sector, we plan to invest in, what are<br />

genuinely life changing projects. Mistakes made now will affect generations to come<br />

so we have to it well.<br />

The Ministry is responsible for transport and communications, and I am sure that in<br />

the not too distant future the synergy that exists between the two will become more<br />

apparent as communications, both substitutes the need for travel as well makes it<br />

more manageable and safe.<br />

This is our first <strong>National</strong> <strong>Integrated</strong> <strong>Transport</strong> <strong>Policy</strong>. It sets out the new paradigm, a<br />

new way forward. Our task will be to be to convert the policies into reality and if we<br />

succeed, Botswana will truly become a world leader in the provision <strong>of</strong> transport<br />

services.<br />

The Hon. Minister <strong>of</strong> <strong>Transport</strong><br />

and Communications <strong>of</strong> Botswana<br />

___ ____________ 200_<br />

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Botswana <strong>National</strong> <strong>Integrated</strong> <strong>Transport</strong> <strong>Policy</strong><br />

Glossary <strong>of</strong> Terms<br />

and abbreviations<br />

used in this <strong>Policy</strong><br />

Adoption - means that process used to convert a private road to a public road.<br />

AAB - Airport Authority <strong>of</strong> Botswana<br />

AMT - Advanced Manufacturing Technology, Technological processes that<br />

supports manufacturing including logistics systems<br />

Axel Load – is the load transmitted through each axle <strong>of</strong> a road or railway vehicle<br />

BR – Botswana Railways<br />

Bus lane - means a main portion <strong>of</strong> the Public Road that is dedicated to use <strong>of</strong> public<br />

transport.<br />

CAA – Civil Aviation Authority <strong>of</strong> Botswana<br />

Cabbotage - <strong>Transport</strong>ation <strong>of</strong> domestic freight by foreign operator<br />

CBD – Central Business District – usually comprising a concentration <strong>of</strong> <strong>of</strong>fices<br />

Combined transport – The same load being transported by different vehicles such<br />

as a container<br />

Construct- means building <strong>of</strong> a public road which may include widening, diverting,<br />

altering, repairing, upgrading and expanding an existing road;<br />

Containers- Standard units <strong>of</strong> carriage measuring either 20 foot or 40 foot; one unit<br />

<strong>of</strong> carriage is called a Twenty Foot Equivalent Unit or TEU, a 40 foot container is<br />

equal to 2 TEUs<br />

Corridor – A long tract <strong>of</strong> land <strong>of</strong>ten traversing more than one country or<br />

administrative area containing one or more transport modes that links a common<br />

origin to a common destination<br />

Cost Insurance Freight CIF - Terms <strong>of</strong> payment for internationally traded goods<br />

Cycle path” means a portion <strong>of</strong> a road which may or may not be exclusive <strong>of</strong> a<br />

carriageway set aside for use solely by persons riding bicycles;<br />

DRTS – Department <strong>of</strong> Road <strong>Transport</strong> and Safety<br />

EDI - Electronic Data Interchange, agreements that enable the legal acceptance<br />

and use <strong>of</strong> electronic documentation<br />

ETF - Electronic Funds Transfer, Systems that permit the electronic transfer <strong>of</strong><br />

money from one account to another<br />

EPOS - Electronic Payment Operating Systems – Systems that support payment<br />

<strong>of</strong> accounts through electronic means.<br />

FDI - Foreign Direct Investment<br />

Footpath means the portion <strong>of</strong> the road dedicated to pedestrians<br />

Freight – Defined as being the movement <strong>of</strong> commodities in bulk unitised or<br />

packaged.<br />

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Botswana <strong>National</strong> <strong>Integrated</strong> <strong>Transport</strong> <strong>Policy</strong><br />

GHGs – Green House Gases – air pollution that raises the ambient temperature <strong>of</strong><br />

the atmosphere<br />

GPS – Geographical Positioning Systems<br />

GVM – Gross Vehicle Mass is the combined weight <strong>of</strong> vehicle and load<br />

Intermodal <strong>Transport</strong>, The same vehicle transported by different means – such as<br />

truck or lorry by train, ship or ferry<br />

International Commercial Terms (INCOTERMS) International commercial terms for<br />

trade.<br />

Internal Rate <strong>of</strong> Return – Defines the return on investment expressed as a<br />

percentage that can be either applied to economic <strong>of</strong> financial criteria<br />

Interoperability – meaning the ability to move from one national network to another<br />

with the minimum physical and non-physical changes<br />

Land - includes a real right in or over any land;<br />

Logistics – The process <strong>of</strong> linking the means <strong>of</strong> production with that <strong>of</strong> consumption<br />

through transport and communications<br />

Mode – One form <strong>of</strong> transport, either road, rail, air, riverine or maritime<br />

Mandated responsibility - means the statutory powers allocated to a particular body<br />

by the state<br />

Minister” Refers to the Minister <strong>of</strong> <strong>Transport</strong> and Communications or his appointed<br />

representative<br />

Multi-modal transport – Freight moved by two or more modes <strong>of</strong> transport<br />

Multi – Modal <strong>Transport</strong> Operator – One operator legally responsible for the entire<br />

freight movement door to door with one contract<br />

Multi- modal contract – the transport document covering the entire freight<br />

movement – also called combined transport document<br />

NDP - <strong>National</strong> Development Plan<br />

NTA - <strong>National</strong> <strong>Transport</strong> Authority<br />

Network – a system consisting <strong>of</strong> interconnected links and nodes that can overall<br />

provide alternative choices for movement from one part <strong>of</strong> it to another<br />

Operational responsibility” means responsibility for the day-to-day tasks <strong>of</strong><br />

maintaining and monitoring the condition <strong>of</strong> a road;<br />

PPP – Public and Private Partnerships, a generic terms that describes the various,<br />

relationships that may exist between <strong>Government</strong> and the Private Sector – normally<br />

used to generate investment and also to supply transport infrastructure and services<br />

PHN - Public Highway Network” means all those public roads which have been<br />

duly established and declared as such by statutory instrument in terms <strong>of</strong> this Act;<br />

“Road” means a path for motorised and non-motorised vehicles including footpaths<br />

and cycle-ways<br />

Road reserve” means the area <strong>of</strong> land designated for the road that exists between<br />

lines demarcated in the public record.<br />

Roads Authority” means a department or body designated as such in terms <strong>of</strong><br />

Section 7 <strong>of</strong> the Act and or its appointed agents;<br />

Road classification” means the process by which the Minister shall confer the<br />

operational status <strong>of</strong> the Public Road Network as being Primary, Secondary, Tertiary<br />

and Access roads.<br />

Road works: means operations needed for maintenance, rehabilitation,<br />

reconstruction and upgrading <strong>of</strong> roads<br />

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Botswana <strong>National</strong> <strong>Integrated</strong> <strong>Transport</strong> <strong>Policy</strong><br />

Point <strong>of</strong> intersection” means the point where the centre line—<br />

(a) <strong>of</strong> a public road meets the centre line <strong>of</strong> any road crossing the public<br />

road; or<br />

(b) <strong>of</strong> any road meets the boundary <strong>of</strong> any public road with which it links<br />

up;<br />

Public road” means a road which the public has the right to use and which is<br />

administered and maintained by a Roads Authority;<br />

Private road” means the road which its use is restricted by and a private owner.<br />

Public utility authority” means anybody, entity or authority whether or not<br />

incorporated, which owns, operates, manages or controls any equipment, line, pole,<br />

pipe or other plant or device -<br />

(a) for the conveyance or transmission <strong>of</strong> any form <strong>of</strong> telecommunication,<br />

including computer, satellite, radio, telegraph, telephone and television.<br />

(b)<br />

(c)<br />

for the production, transmission, distribution or furnishing <strong>of</strong> electrical or<br />

other energy; or<br />

for the provision <strong>of</strong> water or sewerage or water and sewerage services<br />

either directly or indirectly, to or for the public<br />

SADC – Southern African Development Community<br />

Strategic responsibility” means the responsibility for overall planning <strong>of</strong> the Public<br />

Highway Network and setting standards that are appropriate for the demands <strong>of</strong><br />

usage <strong>of</strong> all public roads;<br />

Sustainable Mobility – A concept that says that the movement <strong>of</strong> passengers and<br />

goods must be affordable, financially viable and environmentally neutral<br />

Township” means an area divided into even or plots, whether with or without public<br />

open spaces, and into streets bounded by the plots or open spaces and—<br />

(a)<br />

(b)<br />

established or recognised as a township under any law; or<br />

recognised by a Roads Authority as a township for the purposes <strong>of</strong><br />

this Act, to the extent so recognised;<br />

Transhipment – Changing the size <strong>of</strong> freight units for delivery or consolidation<br />

<strong>Transport</strong>ation – The process whereby passengers or goods are moved<br />

<strong>Transport</strong> – the means by which transportation takes place<br />

Urban area” means any area consisting <strong>of</strong>—<br />

(a)<br />

(b)<br />

a township mentioned in paragraph (a) <strong>of</strong> the definition <strong>of</strong> “township”,<br />

but excluding land in that area—<br />

(i) which is commonage land; or<br />

(ii) which is used or destined to be used mainly for farming or<br />

horticulture or the keeping <strong>of</strong> animals; or<br />

(iii) which consists <strong>of</strong> any other open space which has not been<br />

developed or reserved for public purposes; or<br />

a township mentioned in paragraph (b) <strong>of</strong> that definition which a<br />

Roads Authority, by notice in the Gazette, has declared to be an<br />

urban area for the purposes <strong>of</strong> this Act.<br />

User Charges – Are those sums or payments collected from the users <strong>of</strong> transport<br />

networks, either directly or indirectly – that are retained by the operators <strong>of</strong> those<br />

networks for recovering the costs <strong>of</strong> providing and maintaining the networks<br />

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Botswana <strong>National</strong> <strong>Integrated</strong> <strong>Transport</strong> <strong>Policy</strong><br />

Vehicle tagging– This is system which enables all vehicles to be remotely monitored<br />

using Geographical Positioning Systems; This will allow vehicles to pay directly for<br />

the road space that is consumed and will permit much better control <strong>of</strong> operations.<br />

.<br />

.<br />

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Botswana <strong>National</strong> <strong>Integrated</strong> <strong>Transport</strong> <strong>Policy</strong><br />

Sector Management<br />

Challenges<br />

Understanding exactly how the performance <strong>of</strong> the transport sector can be improved<br />

to provide safe, clean and affordable movement, requires a clear appreciation <strong>of</strong> the<br />

underlining objectives and principles that applies to the entire transport sector, that is<br />

to say road transport, road infrastructure, railways, maritime and river transport and<br />

aviation.<br />

The <strong>National</strong> <strong>Integrated</strong> <strong>Transport</strong> <strong>Policy</strong> “<strong>Transport</strong> - Time for Change” establishes<br />

the long term framework for the management and development <strong>of</strong> the transport<br />

sector. The <strong>Policy</strong> sets out the principle changes that are expected to be made over<br />

the next 25 years or so.<br />

Executive agencies are expected make amendments to concomitant legislation and<br />

proposed reforms within 12 months <strong>of</strong> the signing <strong>of</strong> the Decree <strong>of</strong> the Present <strong>of</strong> this<br />

<strong>Transport</strong> <strong>Policy</strong>. Executive Branches are required to note the realization <strong>of</strong><br />

<strong>Transport</strong> policy and the strategy expected to achieve the following results:<br />

1) Increase <strong>of</strong> quality and accessibility <strong>of</strong> transport services to our settlements;<br />

2) Containment in the level <strong>of</strong> transport consuming GDP – not more than 5%;<br />

3) Increase in the contribution <strong>of</strong> private sector transport by 50%<br />

4) To replace and modernise transport equipment in all modes.<br />

5) Reduction the time <strong>of</strong> freight delivery<br />

6) Reduce the transport component <strong>of</strong> the cost <strong>of</strong> trade by 15%<br />

7) Increase the use <strong>of</strong> new technologies and logistics.<br />

8) Substitute transport demand with communications where possible<br />

9) To double airport capacities, to increase the intensity <strong>of</strong> air traffic.<br />

10) Double the number <strong>of</strong> direct international flights to our principle airports every<br />

ten years.<br />

11) Enhance the value <strong>of</strong> our national transport assets by 5% pa through better<br />

maintenance:<br />

12) To reduce the number <strong>of</strong> road fatalities by 20-25%; and reduce travel risks <strong>of</strong><br />

all kinds transport.<br />

13) To obtain a 30% shift from cars to public transport by 2025 and a 10% shift<br />

from road to rail<br />

14) To reduce harmful emissions into the atmospheric by 20% in 2025 and by<br />

30% by 2036.<br />

15) To increase proportion <strong>of</strong> energy consumed by transport from renewable by<br />

10% for each decade.<br />

Executive agencies are expected to prepare such strategies plans and programmes<br />

that will set out clearly how the above mentioned results will be achieved to provide to<br />

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Botswana <strong>National</strong> <strong>Integrated</strong> <strong>Transport</strong> <strong>Policy</strong><br />

the MoTC detailed information regarding such plans and sufficient information that<br />

will enable the MoTC to monitor their implementation.<br />

The MoTC will make the necessary changes to its internal organisation to implement<br />

the <strong>National</strong> <strong>Integrated</strong> <strong>Transport</strong> <strong>Policy</strong> and will establish a Steering Committee that<br />

will oversee the implementation <strong>of</strong> the <strong>Transport</strong> <strong>Policy</strong> and Working Groups for each<br />

mode <strong>of</strong> transport to coordinate its implementation.<br />

Ultimately, we aim to raise the level <strong>of</strong> service that is provided to all <strong>of</strong> our customers.<br />

Permanent Secretary<br />

Ministry <strong>of</strong> <strong>Transport</strong> and Communications<br />

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Botswana <strong>National</strong> <strong>Integrated</strong> <strong>Transport</strong> <strong>Policy</strong><br />

Contents<br />

PREAMBLE TO THE WHITE PAPER .............................................................................................. III<br />

FOREWORD BY HE PRESIDENT OF THE REPUBLIC OF BOTSWANA ..................................................IX<br />

INTRODUCTION BY HON MINISTER OF TRANSPORT AND COMMUNICATIONS .....................................XI<br />

GLOSSARY OF TERMS AND ABBREVIATIONS USED IN THIS POLICY ................................................ XIII<br />

SECTOR MANAGEMENT CHALLENGES ...................................................................................... XVII<br />

SECTOR MANAGEMENT POLICIES ............................................................................................... 1<br />

Article I. Recognizing that transport provision is a public good; ...................................... 3<br />

Section 1. The value <strong>of</strong> transport to the nation is worth more than the price paid ... 3<br />

Section 2. Improving Governance ......................................................................... 3<br />

Section 3. Holistic Management ............................................................................ 3<br />

Section 4. Synergy through Integration ................................................................. 3<br />

Section 5. Building Confidence ............................................................................. 4<br />

Section 6. Integrating with SADC .......................................................................... 4<br />

Article II. Ensuring that the supply <strong>of</strong> transport is responsive to the needs <strong>of</strong><br />

users 4<br />

Section 7. Demand Responsiveness ..................................................................... 4<br />

Section 8. Balanced approach .............................................................................. 4<br />

Section 9. Public Passenger <strong>Transport</strong> ................................................................. 5<br />

Section 10. Freight <strong>Transport</strong> .............................................................................. 5<br />

Section 11. Managing Demand ........................................................................... 5<br />

Section 12. Sharing responsibility for the management <strong>of</strong> transport; .................... 5<br />

Article III. Better managing the costs <strong>of</strong> transport; ........................................................ 6<br />

Section 13. Sustainable Development ................................................................. 6<br />

Section 14. Better transport planning ................................................................... 6<br />

Section 15. Economic performance <strong>of</strong> <strong>Transport</strong> ................................................. 7<br />

Section 16. Funding and Financing <strong>of</strong> the <strong>Transport</strong> Sector ................................. 7<br />

Section 17. Providing Financial Grants and Subsidies ......................................... 7<br />

Section 18. Improving Financial Management ..................................................... 7<br />

Section 19. Ensuring fair pricing <strong>of</strong> services ........................................................ 7<br />

Section 20. Charging for the use <strong>of</strong> transport infrastructure.................................. 8<br />

Section 21. Taxation in <strong>Transport</strong> ........................................................................ 8<br />

Section 22. Tapping into know how and financial resources................................. 8<br />

Article IV. Improving standards <strong>of</strong> transport services: .................................................. 8<br />

Section 23. <strong>Transport</strong> Network Classification according to user needs ................. 9<br />

Section 24. Maintaining Standards ...................................................................... 9<br />

Section 25. Exercising Care ................................................................................ 9<br />

Section 26. Harmonising Standards .................................................................... 9<br />

Section 27. <strong>Integrated</strong> Operations ....................................................................... 9<br />

Section 28. Walking and Cycling ......................................................................... 9<br />

Section 29. Tackling Congestion ....................................................................... 10<br />

Section 30. Spatial Planning and Development ................................................. 10<br />

Section 31. Electronic Communications ............................................................. 10<br />

Section 32. <strong>Transport</strong> Master-plan..................................................................... 10<br />

Article V. Ensuring social responsibility in the provision <strong>of</strong> transport....................... 11<br />

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Section 33. Improving health and safety ............................................................ 11<br />

Section 34. Promoting Poverty Alleviation ......................................................... 11<br />

Section 35. Climate Change .............................................................................. 11<br />

Section 36. Minimising Environmental Impact .................................................... 11<br />

Section 37. Promoting Energy Efficiency ........................................................... 12<br />

Section 38. Operator Licensing ......................................................................... 12<br />

Section 39. Encouraging Self Regulation ........................................................... 12<br />

Section 40. Carrying Liability ............................................................................. 12<br />

Section 41. Providing Consumer Protection ....................................................... 12<br />

Section 42. <strong>Transport</strong> Authority ......................................................................... 13<br />

Section 43. Providing Enforcement .................................................................... 13<br />

Article VI. Sharing Responsibility .................................................................................. 13<br />

Section 44. Ownership <strong>of</strong> <strong>Transport</strong> Infrastructure ............................................. 13<br />

Section 45. Management <strong>of</strong> <strong>Transport</strong> Systems ................................................ 13<br />

Section 46. Training and education ................................................................... 13<br />

Section 47. Public and Private Participation ....................................................... 14<br />

Section 48. Monopolies ..................................................................................... 14<br />

PASSENGER TRANSPORT POLICY ............................................................................................ 15<br />

Article VII. Providing for all ............................................................................................. 16<br />

Section 49. Attending to social need .................................................................. 16<br />

Section 50. Providing Quality Services .............................................................. 16<br />

Article VIII. Improving accessibility ............................................................................. 18<br />

Section 51. Planning for the community ............................................................. 18<br />

Section 52. Better passenger transport networks ............................................... 18<br />

Section 53. Non-motorised transport ................................................................. 20<br />

Section 54. Motor cycling .................................................................................. 20<br />

Article IX. Ensuring Sustainable Mobility ...................................................................... 21<br />

Section 55. Improving Road Safety ................................................................... 21<br />

Section 56. Safeguarding our environment ........................................................ 22<br />

Section 57. Managing Traffic Better ................................................................... 23<br />

Section 58. Vehicle Ownership .......................................................................... 24<br />

Section 59. Managing <strong>Transport</strong> Demand.......................................................... 24<br />

Section 60. Gaborone Passenger <strong>Transport</strong> Authority ....................................... 26<br />

Section 61. Paying for passenger transport ....................................................... 27<br />

Section 62. Poverty Elimination ......................................................................... 28<br />

Section 63. Embracing New Technology ........................................................... 28<br />

Section 64. Streamlining <strong>Government</strong> <strong>Transport</strong>................................................ 29<br />

Section 65. Advocating fair play ........................................................................ 29<br />

FREIGHT TRANSPORT AND LOGISTICS POLICY ........................................................................... 31<br />

Article X. Developing Quality Services......................................................................... 32<br />

Section 66. Satisfying the growing demand for Freight <strong>Transport</strong> and Logistics<br />

Services 32<br />

Section 67. Raising the standard <strong>of</strong> Freight <strong>Transport</strong> ....................................... 33<br />

Section 68. Moving forward with logistics........................................................... 34<br />

Section 69. Infrastructure and Networks ............................................................ 35<br />

Section 70. Towards self-regulation and increasing responsibility ...................... 36<br />

Article XI. Lowering the Cost ......................................................................................... 38<br />

Section 71. Benefiting All .................................................................................. 38<br />

Section 72. Leveling the playing field ................................................................. 38<br />

Section 73. Stimulating Investment .................................................................... 39<br />

Section 74. Managing better .............................................................................. 40<br />

Article XII. Caring for the future ...................................................................................... 41<br />

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Section 75. Greening <strong>Transport</strong> ......................................................................... 41<br />

Section 76. Empowering Customers .................................................................. 42<br />

Section 77. Saving lives, creating fairness ......................................................... 43<br />

ROADS SUB-SECTOR POLICY .................................................................................................. 45<br />

Article XIII. Improving the way roads are planned ...................................................... 47<br />

Section 78. Meeting the Needs <strong>of</strong> Road Users .................................................. 47<br />

Section 79. Improve provisions for pedestrians, cycling and other forms <strong>of</strong> Non-<br />

Motorised <strong>Transport</strong> ................................................................................................ 48<br />

Section 80. Improving the quality <strong>of</strong> travel in our cities ....................................... 49<br />

Section 81. Making Roads Safer ....................................................................... 50<br />

Section 82. Using land more efficiently .............................................................. 52<br />

Section 83. Integrating the development <strong>of</strong> Roads with other modes <strong>of</strong> <strong>Transport</strong><br />

53<br />

Section 84. Getting the most from Roads .......................................................... 54<br />

Section 85. Stepping up control <strong>of</strong> overloaded vehicles ..................................... 55<br />

Section 86. Getting Involved .............................................................................. 56<br />

Article XIV. Improving the way roads are developed and maintained ........................ 57<br />

Section 87. Designing roads for quality and for value......................................... 57<br />

Section 88. Improving the delivery <strong>of</strong> road works ............................................... 58<br />

Section 89. Becoming smarter at maintenance .................................................. 59<br />

Section 90. Research and Development ............................................................ 61<br />

Section 91. Continuing to improve the quality <strong>of</strong> life ........................................... 61<br />

Article XV. Obtaining better value ............................................................................... 62<br />

Section 92. Ensuring sustainable funding for roads ........................................... 62<br />

Section 93. Improving the management <strong>of</strong> road funds ....................................... 65<br />

Section 94. Introducing private finance .............................................................. 66<br />

Section 95. Improving Economic Performance .................................................. 67<br />

Section 96. Improving Financial management ................................................... 68<br />

Article XVI. Getting the management <strong>of</strong> Road Sub-sector right ................................. 68<br />

Section 97. Integrating Roads ........................................................................... 68<br />

Section 98. Establishing Effective Ownership and Responsibility ....................... 69<br />

Section 99. Changing the paradigm ................................................................... 70<br />

Section 100. Making operations more responsive ................................................ 72<br />

Section 101. Better programming ........................................................................ 73<br />

Section 102. Aiming for excellence ...................................................................... 74<br />

Section 103. Cleaning up the act ......................................................................... 75<br />

RAILWAYS SUB-SECTOR POLICY .............................................................................................. 77<br />

Article XVII. Increasing Market Share............................................................................ 78<br />

Section 104. Defining the business...................................................................... 78<br />

Section 105. Creating competition in rail sector ................................................... 78<br />

Section 106. Leveling the playing field ................................................................. 79<br />

Section 107. Better Rail-freight Services ............................................................. 80<br />

Section 108. Returning to Passenger Services .................................................... 81<br />

Section 109. Movement without penalties (<strong>Transport</strong> Integration) ........................ 83<br />

Article XVIII. Opening Competition ................................................................................ 83<br />

Section 110. Establishing Ownership .................................................................. 83<br />

Section 111. Restructuring Railways ................................................................... 84<br />

Section 112. Removing the restrictions................................................................ 85<br />

Section 113. Regionalisation <strong>of</strong> Railways ............................................................ 86<br />

Section 114. Developing a supporting railway industry ........................................ 87<br />

Section 115. Business Partnerships .................................................................... 87<br />

Article XIX. Modernisation ............................................................................................ 88<br />

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Section 116. Network Development..................................................................... 88<br />

Section 117. Fleet renewal .................................................................................. 89<br />

Section 118. Energy and Electrification ............................................................... 89<br />

Section 119. Information, technology R&D .......................................................... 90<br />

Article XX. Towards Pr<strong>of</strong>itability ................................................................................. 91<br />

Section 120. Cost recovery ................................................................................. 91<br />

Section 121. Investment <strong>Policy</strong>............................................................................ 92<br />

Section 122. Pricing policy to increase revenue ................................................... 92<br />

Section 123. Subsidy <strong>Policy</strong> ................................................................................ 93<br />

Section 124. Improving Asset Management and Procurement ............................. 94<br />

Section 125. Pr<strong>of</strong>iting from Land and Property..................................................... 95<br />

Section 126. Accounts and transparency ............................................................. 95<br />

Article XXI. Changing attitudes .................................................................................... 96<br />

Section 127. Caring for customers ...................................................................... 96<br />

Section 128. Providing safety and security .......................................................... 97<br />

Section 129. Protecting the environment ............................................................. 98<br />

AVIATION POLICY ................................................................................................................... 99<br />

Article XXII. Increasing Market Share.......................................................................... 100<br />

Section 130. Stimulating Passenger Demand .................................................... 100<br />

Section 131. Supporting Tourism and Trade ...................................................... 101<br />

Section 132. Positioning Botswana in the Aviation Network ............................... 102<br />

Section 133. International Connectivity .............................................................. 103<br />

Section 134. <strong>National</strong> Flag Carrier ..................................................................... 105<br />

Section 135. Remote areas outreach ................................................................ 105<br />

Section 136. Better Air cargo Services .............................................................. 106<br />

Article XXIII. Improving Airport Planning and Infrastructure ...................................... 107<br />

Section 137. <strong>Integrated</strong> Planning ....................................................................... 107<br />

Section 138. Planning Gain around Airports ...................................................... 108<br />

Section 139. Airport Infrastructure ..................................................................... 109<br />

Article XXIV. Engaging Contemporary Management ................................................ 110<br />

Section 140. Restructuring Aviation sub-sector.................................................. 110<br />

Section 141. Information sharing ....................................................................... 111<br />

Article XXV. Creating Opportunities ............................................................................ 112<br />

Section 142. Investment promotion ................................................................... 112<br />

Article XXVI. Factoring in Sustainability ................................................................... 112<br />

Section 143. Funding ........................................................................................ 112<br />

Section 144. Safety and Security ....................................................................... 113<br />

RIVER, MARINE & PIPELINE TRANSPORT POLICY ..................................................................... 115<br />

Article XXVII. Augmenting modal choices ................................................................. 116<br />

Section 146. Utilizing alternatives ...................................................................... 116<br />

Section 147. Regulating services ...................................................................... 116<br />

Section 148. Providing Governance .................................................................. 117<br />

Section 149. Equal participation, fair sharing <strong>of</strong> benefits .................................... 118<br />

Section 150. Supporting cross-river trade .......................................................... 118<br />

Section 151. Ferry Services .............................................................................. 118<br />

Section 152. Building the network ..................................................................... 119<br />

Section 153. Funding Riverine <strong>Transport</strong> ........................................................... 120<br />

Article XXVIII. Unlocking Botswana ............................................................................ 120<br />

Section 154. Taking the initiative - investing in Marine transport ........................ 120<br />

Article XXIX. Pipelines ............................................................................................... 121<br />

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Section 155. Pipeline <strong>Transport</strong>-untapped but viable alternative ........................ 121<br />

SETTING OUT OUR HORIZONS................................................................................................. 123<br />

Article XXX. Immediate needs for the short term to 2016 ........................................... 123<br />

Article XXXI. Planning better transport for the medium term to 2025: .................... 123<br />

Article XXXII. Meeting new challenges for the longer term to 2030 .......................... 123<br />

LIFE-CHANGING PROJECTS .................................................................................................... 125<br />

Article XXXIII. Kazungula Road Rail Bridge ................................................................ 126<br />

Article XXXIV. Trans- Kalahari Railway and Port ........................................................ 126<br />

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Index <strong>of</strong> Tables<br />

Table 1 Annual Registration <strong>of</strong> vehicles by type and year ............................................. 24<br />

Table 2 Road / Rail Freight Market Shares ................................................................... 32<br />

Table 3 PHN by road type 2011 ................................................................................... 47<br />

Table 4 Road Accidents and their causes 2000 - 2010 ................................................. 51<br />

Table 5 RFL and rates <strong>of</strong> collection across Africa ......................................................... 64<br />

Table 6 RFL Revenue and Expenditure 2005/11 .......................................................... 65<br />

Table 7 Distribution <strong>of</strong> traffic on the PHN managed by Central and Local <strong>Government</strong> .. 69<br />

Table 8 PHN Division <strong>of</strong> Riparian Responsibility (April 2011) ........................................ 69<br />

Table 9 Road Department Allocation <strong>of</strong> PHN to Regional / Depot April 2011 ................. 71<br />

Table 10 Passenger Traffic – Forecast ....................................................................... 100<br />

Table 11 Aircraft Movements – Forecast .................................................................... 101<br />

Table 12 Frequency <strong>of</strong> International Services - 1990 through 2009 ............................. 103<br />

Table 13 Cargo and Mail handled from year 1999 to 2009 .......................................... 107<br />

Index <strong>of</strong> Figures<br />

Figure 1 Passenger transport chaos not integration ...................................................... 17<br />

Figure 2 Bus Priority Lanes and Bus Rapid Transit Network planned for Gaborone 2012<br />

to 2025 ........................................................................................................................ 19<br />

Figure 3 Cycle Lanes in London ................................................................................... 20<br />

Figure 4 Only for pizza delivery Motorcycles parked in Game City ................................ 20<br />

Figure 5 Devastating Multiple Accidents March 2011 on A1 .......................................... 21<br />

Figure 6 Disabled from the waist, giving her testimony <strong>of</strong> her terrible ordeal to the<br />

Audience at the Opening <strong>of</strong> the Botswana Road Safety Decade June 20 th 2011 ........... 22<br />

Figure 7 Registered Vehicles ....................................................................................... 24<br />

Figure 8 Sprawling City 1970 - 2010 ............................................................................. 26<br />

Figure 9 Petro-chemical deposit in down town Gaborone ............................................. 44<br />

Figure 10 The Public Highway Network ........................................................................ 46<br />

Figure 11 Average daily traffic flow on paved and unpaved roads 2008 ........................ 47<br />

Figure 12 Separating Pedestrians – saves lives ........................................................... 48<br />

Figure 13 Local Artisans Repairing A1.......................................................................... 60<br />

Figure 14 Project Cycle Management ........................................................................... 73<br />

Figure 15 Railway Freight Volumes since 1999, 000’s tons........................................... 78<br />

Figure 16 Railway Freight Prices thebe per net ton km ................................................. 93<br />

Figure 17 SSKI before and after - 2010 ........................................................................ 99<br />

Figure 18 International destinations for passengers departing from SSKI April 2009 ... 104<br />

Figure 19 Fluctuating demand for smaller airports ...................................................... 106<br />

Figure 20 Kazungula Ferry at work ............................................................................ 118<br />

Figure 21 Kazangula Bridge – Artists Impression........................................................ 126<br />

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Sector Management<br />

Policies<br />

Part 1<br />

General policies to improve the management <strong>of</strong> the transport<br />

sector<br />

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Botswana <strong>National</strong> <strong>Integrated</strong> <strong>Transport</strong> <strong>Policy</strong><br />

<strong>Integrated</strong> Organisation <strong>of</strong> the <strong>Transport</strong> Sector<br />

<strong>Government</strong><br />

All Party Standing<br />

Committees on<br />

<strong>Transport</strong><br />

Inter-Ministerial<br />

<strong>Transport</strong> Sector<br />

Reference Group<br />

Ministry <strong>of</strong> <strong>Transport</strong><br />

and Communications<br />

Minister, Assistant<br />

Minister Roads<br />

Assistant Minister<br />

Railways, Aviation,<br />

Rivers Pipleines<br />

<strong>National</strong> Road Safety<br />

Committee<br />

Regional <strong>Transport</strong><br />

Authorities - Greater<br />

Gaborone <strong>Transport</strong><br />

Authority<br />

Executive<br />

<strong>National</strong> <strong>Transport</strong><br />

Authority<br />

<strong>National</strong> Road<br />

Authority Northern,<br />

Southern, Eastern,<br />

Western Sub-Regional<br />

Roads Authorities,<br />

Municiple Road<br />

Authorities,<br />

<strong>National</strong> Railway<br />

Authority, Railway<br />

Regulator, Railway<br />

Inspectorate, Track<br />

Authority<br />

Civil Aviation<br />

Authority,<br />

Directorates <strong>of</strong><br />

Strategic Planning,<br />

Corporate Services,<br />

Flight Safety, Air<br />

Navigation<br />

<strong>National</strong> River<br />

<strong>Transport</strong> Authority,<br />

Chobe / Zambesi River<br />

Authorities<br />

<strong>National</strong> Maritime<br />

Authority, <strong>National</strong><br />

Port Executive , Marine<br />

Operations Executive<br />

- Pipelines Authority<br />

Suppliers<br />

Regional Road Design<br />

& Construction Units,<br />

Road Maintenace<br />

Agencies<br />

Road Passenger and<br />

Freight Operating<br />

Companies<br />

Railway Infrastructure<br />

Agency, Railway Freight<br />

/ Passenger Operating<br />

Companies<br />

Airport Operating<br />

Companies, Ground<br />

Services Companies,<br />

Air Passenger<br />

Operators, Air Cargo<br />

Operators<br />

Waterway Design and<br />

Construction Units &<br />

Maintenace Agencies<br />

Port Operating<br />

Companies<br />

Pipeline Operating<br />

Companies<br />

Users<br />

<strong>National</strong> <strong>Transport</strong><br />

Users Council<br />

Road Users<br />

Consultative Council<br />

-<br />

<strong>National</strong> Frieght<br />

<strong>Transport</strong><br />

Association<br />

<strong>National</strong> Bus Council<br />

Air <strong>Transport</strong> Users<br />

Council<br />

River <strong>Transport</strong><br />

Users Council<br />

<strong>National</strong> Council for<br />

Logistics Service<br />

Providers<br />

Council for Tourist<br />

Operators<br />

Association <strong>of</strong> Travel<br />

Agents<br />

Foreign Trade<br />

Council<br />

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Botswana <strong>National</strong> <strong>Integrated</strong> <strong>Transport</strong> <strong>Policy</strong><br />

Article I. Recognizing that transport provision is a<br />

public good;<br />

Section 1.<br />

The value <strong>of</strong> transport to the nation is worth more than the price<br />

paid<br />

<strong>Transport</strong> is one topic upon which all members <strong>of</strong> society seem to have an opinion and<br />

this is not unexpected because all members <strong>of</strong> society benefit from it one way or<br />

another, but opinions are not always positive. The issue for <strong>Government</strong> is clear, how to<br />

ensure that transport is a public service, available to all, provided safely and responsibly<br />

but at the same time providing good value to the individual and wider benefits to the<br />

community. Whilst there can be many possible options for the management <strong>of</strong> the<br />

various parts <strong>of</strong> the transport sector, it is necessary to establish a fundamental point that<br />

transport is seen as a public good.<br />

<strong>Transport</strong> is a primary service needed for the well being <strong>of</strong> all society, where commercial<br />

requirements need to be reconciled with social need in such as way that the benefits to<br />

society <strong>of</strong> our entire transport system can be maximised.<br />

<strong>Transport</strong> is considered to be public good having economic, commercial, social and<br />

strategic relevance in that it provides for improved quality <strong>of</strong> life, business opportunities,<br />

access to amenities and national security.<br />

Section 2.<br />

Improving Governance<br />

The <strong>Government</strong> determines its role as balancing the needs <strong>of</strong> all sectors <strong>of</strong> society<br />

within the resources available without discrimination, restrictions <strong>of</strong> liberty and<br />

compromising health and asserts that the transport sector that comprises all<br />

infrastructure, equipment and services with respect to road, rail, river, marine, aviation,<br />

pipeline and inter-modal shall be organised by the Ministry responsible for transport and<br />

Communications which shall ensure that the principles <strong>of</strong> good governance are applied<br />

at all times in the execution <strong>of</strong> his duties and responsibilities. In keeping with the<br />

principles <strong>of</strong> good governance it sees the organisation <strong>of</strong> the transport sector to<br />

represent the interests <strong>of</strong> the consumer, the operator and the executive. Overall the<br />

state, shall concern itself with matters pertaining to policy, legislation and strategic<br />

management.<br />

Section 3.<br />

Holistic Management<br />

<strong>Transport</strong> modes are inter-related, interconnected and inseparable so must be managed<br />

under one ro<strong>of</strong>. In pursuance <strong>of</strong> good governance and the need to ensure that the<br />

transport sector is managed holistically the Minister responsible for transport shall be<br />

charged with formulating and implementing national transport policy including<br />

determination <strong>of</strong> sub-sectoral objectives, coordinating the preparation <strong>of</strong> sub-sectoral<br />

strategies, monitoring implementation, evaluating results and amending transport policy<br />

if appropriate.<br />

Section 4.<br />

Synergy through Integration<br />

In pursuance with its overarching policy goal to promote integration and provide an<br />

enabling environment in which synergy may be maximised whilst being mindful <strong>of</strong> the<br />

need to harness and retain the limited skills the Minister responsible for transport will<br />

establish a <strong>National</strong> <strong>Transport</strong> Authority that shall inter alia include <strong>National</strong> Roads<br />

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Botswana <strong>National</strong> <strong>Integrated</strong> <strong>Transport</strong> <strong>Policy</strong><br />

Authority, <strong>National</strong> Road <strong>Transport</strong> Authority, The <strong>National</strong> Rail Authority, The Civil<br />

Aviation Authority, The <strong>National</strong> Riverine Authority, and authorities mandated for<br />

Maritime <strong>Transport</strong> and Pipelines. The <strong>National</strong> <strong>Transport</strong> Authority and its family <strong>of</strong><br />

transport authorities will have responsibility for implementing this <strong>National</strong> <strong>Integrated</strong><br />

<strong>Transport</strong> <strong>Policy</strong> through the statutory instruments that shall comprise but not be limited<br />

to regulation, planning, funding and the promotion <strong>of</strong> multi-modal transport infrastructure<br />

and services.<br />

Section 5.<br />

Building Confidence<br />

The <strong>Government</strong> will create a more robust and open administration that will engender<br />

greater trust and confidence and in pursuance <strong>of</strong> this policy will be putting in place<br />

measures that will create greater transparency in all <strong>of</strong> its activities which for transport<br />

will include the publication <strong>of</strong> accounts <strong>of</strong> all public transport enterprises, open<br />

procurement procedures for contracting works and setting out clearly norms for the<br />

performance <strong>of</strong> normal administrative functions such as issuing licenses and<br />

certifications and the Minister will be expected to make all proposals for the reform <strong>of</strong><br />

the sector within 12 months <strong>of</strong> the signing into Law <strong>of</strong> this policy and periodically report<br />

to Parliament <strong>of</strong> the progress made.<br />

Section 6.<br />

Integrating with SADC<br />

SADC integration provides so many opportunities in general and transport sector<br />

management in particular so this <strong>Government</strong> has no hesitation at all in pursuing a<br />

course that will lead to the eradication <strong>of</strong> non-physical barriers to trade and the<br />

movement <strong>of</strong> our common people.<br />

Article II. Ensuring that the supply <strong>of</strong> transport is<br />

responsive to the needs <strong>of</strong> users<br />

Section 7.<br />

Demand Responsiveness<br />

Generally transport strategies and plans that have been made in the past have been<br />

orientated to the supply <strong>of</strong> transport rather than the needs <strong>of</strong> its users. This partly arises<br />

from a background <strong>of</strong> development and central planning. Consequently the transport<br />

market is a little understood concept and the attitude <strong>of</strong> transport providers needs to<br />

change. Market surveys have been conducted in other countries, but not yet in Botswana<br />

that shows that reliability, information quality, security and price are more important than<br />

speed and that to achieve improvements in these areas, huge investment is not always<br />

needed.<br />

It is clear to this government that the provision <strong>of</strong> transport services including their<br />

specification, delivery and pricing must be driven by demand that is sensitive to the<br />

particular travelling or movement requirements for business or private purposes in urban,<br />

peri-urban, rural communities as well as between cities, provinces and internationally<br />

Section 8.<br />

Balanced approach<br />

The term used for the supply and demand for products and services is generally known<br />

as a market, but the <strong>Government</strong> is aware that transport is not like a market in the<br />

normal sense <strong>of</strong> the term as choices are <strong>of</strong>ten limited, prices are regulated and services<br />

cannot be stored like products.<br />

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Botswana <strong>National</strong> <strong>Integrated</strong> <strong>Transport</strong> <strong>Policy</strong><br />

Improving responsiveness by transport enterprises to the needs <strong>of</strong> passengers and<br />

requirements for freight transport is a central feature <strong>of</strong> this transport policy to provide<br />

wider choice and better value and because <strong>of</strong> this the <strong>Government</strong> intends regulate the<br />

transport market in a different ways. Where markets are in balance, that is to say where<br />

they are financially self sustaining, there is no need for intervention and that<br />

commercialisation <strong>of</strong> the provision <strong>of</strong> transport services is generally considered the<br />

preferred way to provide better value but where markets are not in balance and where<br />

there is social need such as in urban or rural public transport or in the movement <strong>of</strong><br />

strategically vital goods or in the start up <strong>of</strong> new services where the market may not be<br />

proven there may be a case for intervention by the government to support the services.<br />

Section 9.<br />

Public Passenger <strong>Transport</strong><br />

The growth in car ownership across the country has badly impacted on public passenger<br />

transport in many ways. In cities it has created congestion that substantially reduces the<br />

efficiency and increases the operating costs <strong>of</strong> busses, whilst in rural areas it reduces<br />

public transport demand so increasing the costs <strong>of</strong> surviving services. The Minister<br />

responsible for transport will promote strategies that pro-actively favour public transport<br />

where it can be shown that private vehicles are impacting negatively on public transport<br />

operations which may include more aggressive parking controls in cities, dedicated lanes<br />

for public transport and more flexible licensing <strong>of</strong> rural bus services to provide other<br />

services and to become more demand responsive.<br />

Section 10.<br />

Freight <strong>Transport</strong><br />

The government deregulated almost all elements <strong>of</strong> freight transport many years ago<br />

and since that time, freight transport demand has grown rapidly particularly by road. It is<br />

also well known that since the deregulation <strong>of</strong> telephone communications, the market<br />

has grown rapidly and days are gone when there was a waiting list for telephones. The<br />

government continues to believe that freight transport market is most appropriately<br />

served by private enterprise and properly regulated commercial practices but has<br />

become aware that various measures are needed to ensure that the most appropriate<br />

form <strong>of</strong> transport is used. The MoTC will prepare a set <strong>of</strong> recommendations that will<br />

promote the use <strong>of</strong> smarter logistics, intelligent control systems and improved driving<br />

conditions for road hauliers whilst ensuring that the services are operated safely with<br />

less impact on the environment and at the same time the recommendation shall enhance<br />

opportunities for railways and inland waterways to contribute more effectively in freight<br />

transport.<br />

Section 11.<br />

Managing Demand<br />

In the longer term, building more and more capacity to cope with increasing demand for<br />

transport is not a responsible option for both economic and environmental reasons and<br />

other ways to accommodate the demand for transport will be developed. Such<br />

alternative strategies may include promoting staggering working hours, congestion<br />

charging and restrictions <strong>of</strong> use <strong>of</strong> private vehicles in cities and for longer distance travel,<br />

steps will be taken to encourage the most appropriate form <strong>of</strong> transport and by 2030<br />

improvement <strong>of</strong> communications technology is expected to impact on the need for travel<br />

for travel itself. The Minister <strong>of</strong> <strong>Transport</strong> will be expected to prepare longer term<br />

strategies to accommodate increases in transport demand and promote demonstration<br />

projects that determine their feasibility.<br />

Section 12.<br />

Sharing responsibility for the management <strong>of</strong> transport;<br />

The most recent national development plans makes it clear in many places that the role<br />

<strong>of</strong> the <strong>Government</strong> has to change. <strong>Government</strong> used to see its role as influencing the<br />

economy through ownership and control and reigning in the private sector through<br />

financial and quantitative regulations. It is clear that in modern society all entities have a<br />

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Botswana <strong>National</strong> <strong>Integrated</strong> <strong>Transport</strong> <strong>Policy</strong><br />

role to play, whether national government, local government, state enterprises, private<br />

enterprises, trades unions and collective organisations and <strong>of</strong> course private individuals.<br />

Responsibility should be allocated to the most appropriate level in the public domain and<br />

private enterprise to ensure that transport provision is sensitive to the needs <strong>of</strong> its users,<br />

safely operated, accessible to all and sustainably provided. Moreover the process <strong>of</strong><br />

policy making and strategic planning needs to be more open, transparent, inclusive and<br />

participative.<br />

Article III. Better managing the costs <strong>of</strong> transport;<br />

Section 13.<br />

Sustainable Development<br />

<strong>Transport</strong> is a cost to society that facilitates the production and consumption <strong>of</strong> goods<br />

and the movement <strong>of</strong> people for work and leisure. <strong>Transport</strong> is also a means to an end<br />

and not an end itself, though pleasure may be obtained from travel for its own sake. But<br />

overall, transport exists solely to add value to our labour and to the goods that we<br />

produce. If the cost <strong>of</strong> transport is excessive, it will add more to the value <strong>of</strong> labour or<br />

goods than the market is willing to bear. In this is the case the net contribution made by<br />

transport to the economy will be negative. But if the market will pay for the added value<br />

provided by transport and leave a margin for increasing personal consumption, then the<br />

contribution made by transport to the economy will be positive. The <strong>Government</strong><br />

recognises that not all transport makes a positive net contribution to society and<br />

understands that this is not sustainable and in such cases will consider intervention in<br />

terms <strong>of</strong> financial support until such times in the future where the benefits derived from<br />

transport exceed the costs <strong>of</strong> its provision.<br />

The cost <strong>of</strong> transport to society <strong>of</strong> living in large countries with dispersed populations<br />

such as Botswana is relatively greater than in small countries such as Singapore. In<br />

addition, Botswana suffers from being totally land locked. Whatever the size <strong>of</strong> the<br />

country, its social diversity and economic complexity, it remains an ever-present issue <strong>of</strong><br />

all <strong>Government</strong>s as to how to best manage the transport economy and provide better<br />

value to passengers and traders.<br />

One fundamental point is that investment in transport without investment in production is<br />

not sustainable, although it is generally easier to invest in infrastructure than agriculture,<br />

industry and manufacturing. It has been a mistake to believe that investment in roads<br />

and railways alone leads to economic growth – the government knows that this is not the<br />

case. What is clear is that because transport is a common good, its costs must be<br />

recovered in a variety <strong>of</strong> ways, not only directly from the users in terms <strong>of</strong> fares and<br />

tariffs but indirectly from taxes, levies and duties.<br />

Overall, the cost <strong>of</strong> transport provision must be both affordable and corresponding to<br />

economic and social need.<br />

Section 14.<br />

Better transport planning<br />

Understanding that altering transport networks and services is not only long term, but<br />

complex, involving many interests the Minister responsible for transport will require all<br />

sub-sectors to participate in such planning processes as are required and to supply such<br />

information that is needed in order to ensure that balanced decisions can be made and<br />

resources allocated. The Minister responsible for transport shall prepare periodically<br />

such plans and other documents as are considered necessary to ensure the optimum<br />

allocation <strong>of</strong> resources and stimulate investment.<br />

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Section 15.<br />

Botswana <strong>National</strong> <strong>Integrated</strong> <strong>Transport</strong> <strong>Policy</strong><br />

Economic performance <strong>of</strong> <strong>Transport</strong><br />

Appreciating that transport is a cost to society and not a benefit the Minister responsible<br />

for transport shall be held accountable for the performance <strong>of</strong> the sector and be required<br />

to collect process and publish annually transport statistics and other information<br />

appertaining to the performance <strong>of</strong> the sector without compromising commercial integrity<br />

so that the performance <strong>of</strong> the sector and its costs in relation to the overall performance<br />

<strong>of</strong> the economy can be reasonably ascertained.<br />

Section 16.<br />

Funding and Financing <strong>of</strong> the <strong>Transport</strong> Sector<br />

Having asserted ownership by the State <strong>of</strong> the transport infrastructure the Minister<br />

responsible for transport or appointed agents shall be deemed to act on behalf <strong>of</strong> the<br />

State in all matters concerning the development and maintenance <strong>of</strong> the said<br />

infrastructure and is empowered to establish and oversee the administration <strong>of</strong> such<br />

funds and the rules for their applications thereto as well enter into contractual<br />

arrangements and other such agreements on behalf <strong>of</strong> the State as would be needed to<br />

exercise those responsibilities in order to finance actions that are considered to be in the<br />

national interest with respect to the transport infrastructure and in so doing will publish<br />

annually a budget that has been agreed in advance by the Minister responsible for<br />

finance and sufficient details <strong>of</strong> expenditure so that the effective disbursement <strong>of</strong> the<br />

aforementioned funding can be duly ascertained .<br />

Section 17.<br />

Providing Financial Grants and Subsidies<br />

The <strong>Government</strong> maintains that financial and commercial discipline is the best way to<br />

ensure efficiency in the provision <strong>of</strong> goods and services in general and in the supply <strong>of</strong><br />

transport services in particular and requires all such organisations to be financially self<br />

sufficient but it is also aware that there are special cases where normal economic<br />

principles or market conditions do not exist and where intervention is required and will<br />

provide financial support in the form <strong>of</strong> special grants or subsidies where there is an<br />

economic and social argument so to do. The Minister responsible for transport together<br />

with the Minister responsible for economic planning are required to elaborate appropriate<br />

instruments and obtain sufficient information to enable the award <strong>of</strong> grants and approval<br />

<strong>of</strong> subsidies for passenger transport or in some special cases for freight transport where<br />

deemed to be in the national interest.<br />

Section 18.<br />

Improving Financial Management<br />

Increasing the quality <strong>of</strong> transport takes many forms including improving management<br />

and to this end all transport enterprises whether public or private are expected to<br />

maintain accounts in accordance with national procedures and guidelines as a condition<br />

<strong>of</strong> obtaining an license to operate. Where such enterprises propose to be in receipt <strong>of</strong><br />

government financial support <strong>of</strong> any form, additional requirements may be imposed to<br />

ensure that accounting is sufficiently transparent to monitor the funding provided.<br />

Section 19.<br />

Ensuring fair pricing <strong>of</strong> services<br />

The supply and operation <strong>of</strong> transport services is considered to be best in the domain <strong>of</strong><br />

the pertinent enterprise and as such price control and regulation by the State is to be<br />

avoided unless it can be shown by the Minister <strong>of</strong> <strong>Transport</strong> and Communications it is in<br />

the national interest and that the enterprises that are affected have been effectively<br />

consulted. Where transport services are expecting support from the <strong>Government</strong>, pricing<br />

shall be based on sound economic principles which will be set out clearly in guidelines<br />

that will be issued by the Ministry <strong>of</strong> <strong>Transport</strong> and Communications in collaboration with<br />

the Ministry <strong>of</strong> the Economic Planning.<br />

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Section 20.<br />

Botswana <strong>National</strong> <strong>Integrated</strong> <strong>Transport</strong> <strong>Policy</strong><br />

Charging for the use <strong>of</strong> transport infrastructure<br />

<strong>Transport</strong> Infrastructure including motor roads, rail roads, waterways, shipping lanes, air<br />

corridors, airport runways and aprons can be paid for either indirectly through general<br />

taxation or directly through user charges. Whilst recognising that transport infrastructure<br />

is a common good, the <strong>Government</strong> recognises the advantages <strong>of</strong> transport users<br />

paying as directly as possible for the services that are consumed. Mindful that the<br />

ownership <strong>of</strong> all transport infrastructure is vested in the state and appreciating the<br />

importance <strong>of</strong> ensuring that such infrastructure requires a source <strong>of</strong> finance with which to<br />

maintain the asset in serviceable condition the Minister responsible for transport will,<br />

through the <strong>National</strong> <strong>Transport</strong> Authority set out guidelines for state enterprises to<br />

establish systems <strong>of</strong> user charges or fees for the use <strong>of</strong> the transport infrastructure on<br />

the same basis for all transport modes that cover as a minimum the recurrent<br />

expenditure for the management and maintenance <strong>of</strong> the infrastructure leaving the<br />

<strong>Government</strong> to fund indirectly through taxation and other means the cost <strong>of</strong> funding the<br />

provision <strong>of</strong> infrastructure.<br />

Section 21.<br />

Taxation in <strong>Transport</strong><br />

The <strong>Government</strong> understands that taxation may influence the pattern <strong>of</strong> demand and<br />

supply and accordingly directs that where it is considered in the national interest in<br />

general or for the specific interest <strong>of</strong> improving transport sector efficiency the Minister <strong>of</strong><br />

<strong>Transport</strong> and Communications make periodic recommendations to the Minister <strong>of</strong><br />

Finance on maters pertinent to taxation and fiscal policy that will include but not be<br />

limited to transport operator licence fees, levies, import taxes and duties and in so doing<br />

ensure that such taxation does not distort the transport economy in favour <strong>of</strong> one mode<br />

or another.<br />

Section 22.<br />

Tapping into know how and financial resources<br />

The <strong>Government</strong> acknowledges that the involvement <strong>of</strong> private enterprise can in the<br />

provision <strong>of</strong> various transport services can have many advantages in terms <strong>of</strong><br />

commercial sensitivity and management that will better serve the needs <strong>of</strong> the consumer<br />

than government. Notwithstanding the foregoing clauses with respect to ownership by<br />

the State <strong>of</strong> the transport infrastructure the Minister responsible for transport shall<br />

without compromising security or safety enter into such arrangements with qualified legal<br />

entities the temporary transfer <strong>of</strong> custodianship for the purposes <strong>of</strong> maintenance<br />

management and development <strong>of</strong> a part or parts <strong>of</strong> the transport infrastructure that are<br />

deemed to be appropriate and in the interests <strong>of</strong> economic efficiency and shall negotiate<br />

such conditions with the custodial party that best represents the national interest whilst<br />

ensuring that the State is adequately prepared to effectively supervise the arrangements.<br />

Article IV. Improving standards <strong>of</strong> transport services:<br />

There can be no doubt that the transport services in our country have to be improved.<br />

The services have lacked investment for many years and the quality <strong>of</strong> vehicles and<br />

control systems should be modernised. Cooperation with the International Community as<br />

well as SADC brings with it the possibilities <strong>of</strong> introducing new standards <strong>of</strong> transport<br />

management that will enhance the levels <strong>of</strong> service and at the same time ensuring that<br />

they are affordable, safe and clean. What is important is that standards should not be<br />

based on the idealist goals <strong>of</strong> technocrats but the real needs <strong>of</strong> the transport user. This<br />

applies to the international routes and corridors that link neighbouring countries and the<br />

rural road that feeds isolated communities.<br />

Standards <strong>of</strong> transport services shall be improved according to the needs <strong>of</strong> the user but<br />

they must be appropriate and affordable. To this end improving pr<strong>of</strong>essionalism in<br />

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Botswana <strong>National</strong> <strong>Integrated</strong> <strong>Transport</strong> <strong>Policy</strong><br />

transport management and provision will be central to the implementation <strong>of</strong> this<br />

<strong>Transport</strong> <strong>Policy</strong>.<br />

Section 23.<br />

<strong>Transport</strong> Network Classification according to user needs<br />

The <strong>Government</strong> is mindful that the transport network and systems are required to meet<br />

the widely differing needs <strong>of</strong> transport consumers and mandates that the Ministry <strong>of</strong><br />

<strong>Transport</strong> and Communications through the <strong>National</strong> <strong>Transport</strong> Authority maintains and<br />

updates a classification <strong>of</strong> the transport networks for all modes <strong>of</strong> transport that is in<br />

accordance with the demand and the needs <strong>of</strong> the transport user.<br />

Section 24.<br />

Maintaining Standards<br />

Over recent years there has been decline in the level <strong>of</strong> service particular concerning<br />

transport infrastructure on roads, railways and air ports. The highest priority <strong>of</strong> the<br />

<strong>Government</strong> is to ensure that transport assets are maintained to the standard for which<br />

they were constructed. Each <strong>of</strong> the sub-sectors will be required to regularly submit to the<br />

Ministry <strong>of</strong> <strong>Transport</strong> and Communications through the <strong>National</strong> <strong>Transport</strong> Authority<br />

information on the condition <strong>of</strong> relevant transport assets for which they are responsible<br />

and to put in place such plans and programmes as are needed to restore the quality <strong>of</strong><br />

the assets over the next five years.<br />

Section 25.<br />

Exercising Care<br />

All citizens at some period <strong>of</strong> their lives require assistance and have special needs and<br />

to this end the <strong>Government</strong> requires that each mode <strong>of</strong> transport makes adequate<br />

provision in the design <strong>of</strong> equipment and infrastructure or in operational procedures that<br />

minimise the constraints to travel <strong>of</strong> those that are mobility impaired, moreover in the<br />

planning <strong>of</strong> infrastructure account shall be taken <strong>of</strong> the need to ensure accessibility to<br />

basic amenities such as education and healthcare.<br />

Section 26.<br />

Harmonising Standards<br />

The <strong>Government</strong> is signatory to a number <strong>of</strong> international conventions that sets out<br />

desired standards and technical norms for the performance <strong>of</strong> transport and is committed<br />

to implementing these obligations provided that it can be proven that such improvements<br />

will be sustainable and in the general public good.<br />

Section 27.<br />

<strong>Integrated</strong> Operations<br />

Where possible the <strong>Government</strong> requires closer integration between the operations <strong>of</strong><br />

different transport modes such as between railways, road public transport at stations,<br />

ports and railways roads and inland waterways, in the development <strong>of</strong> inter-modal<br />

services and international multimodal transport operations and requires that the Minister<br />

responsible for transport ensures that the opportunities for closer integration are<br />

maximised by creating a positive environment, financial incentives and conducive<br />

planning and legal conditions through the creation <strong>of</strong> a fully integrated planning process.<br />

Section 28.<br />

Walking and Cycling<br />

Walking and cycling are very important components <strong>of</strong> the transport sector which are not<br />

taken as seriously as they should because around 40% <strong>of</strong> all trips made are less than 2<br />

km. The <strong>Government</strong> recognizes the potential for exploiting this non-polluting, healthy<br />

form <strong>of</strong> transport and proposes to that a more pro-active position is adopted nationally<br />

and locally in providing better amenities for walkers and cyclists. Actions Plans for<br />

<strong>Transport</strong> that develop pedestrian and cycling routes that are separated from motorized<br />

transport will be looked upon favorably especially good projects worthy <strong>of</strong> replication<br />

elsewhere.<br />

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Section 29.<br />

Botswana <strong>National</strong> <strong>Integrated</strong> <strong>Transport</strong> <strong>Policy</strong><br />

Tackling Congestion<br />

Traffic congestion affects road users whether public or private as well as the quality <strong>of</strong><br />

life in major cities and has significant economic costs due to less efficient use <strong>of</strong><br />

vehicles. Traffic congestion also adds substantially to the emissions <strong>of</strong> CO2 and other<br />

non-desirable gases. Although solving the problem <strong>of</strong> traffic congestion is complex, the<br />

government is committed to tackling this problem through methods such as demand<br />

management including staggering working hours <strong>of</strong> <strong>of</strong>fice city workers and educational<br />

establishments, traffic management and parking controls. In the longer term, it is clear<br />

the new technology will help to track the use <strong>of</strong> vehicles more precisely and to exercise<br />

more control as is the case already in some large cities in the European Union. The<br />

<strong>Government</strong> expects the Ministry <strong>of</strong> <strong>Transport</strong> and Communications together with other<br />

ministries to issue guidelines that will reduce traffic congestion.<br />

Section 30.<br />

Spatial Planning and Development<br />

Conurbations are becoming increasingly affected by traffic due to congestion, parking<br />

and heavy vehicles affecting the everyday life <strong>of</strong> its citizens and the efficiency <strong>of</strong> public<br />

transport.<br />

The <strong>Government</strong> requires that the Ministry <strong>of</strong> Local <strong>Government</strong> together with the<br />

Ministry <strong>of</strong> <strong>Transport</strong> and Communications introduce a series <strong>of</strong> planning measures that<br />

will necessitate that private and public developments take into consideration the traffic<br />

that developments generate and place the burden <strong>of</strong> responsibility on the developer to<br />

provide and finance solutions to cope with the traffic generated. For the longer term the<br />

<strong>Government</strong> require the periodic preparation <strong>of</strong> <strong>National</strong> <strong>Transport</strong> and Land Use Plans<br />

that will, amongst other issues tackle the issue <strong>of</strong> increasing urbanisation through<br />

relocation, decentralisation and the creation <strong>of</strong> new development areas.<br />

Section 31.<br />

Electronic Communications<br />

Modern age electronic commerce is expected to impact the transport sector in many and<br />

varied ways; to provide advanced information for border controls, to provide navigation<br />

for vehicles on land, sea and in the airways and finally to affect the demand for<br />

transportation as new ways <strong>of</strong> communication reduce the need to travel. The<br />

<strong>Government</strong> expects the Ministry <strong>of</strong> <strong>Transport</strong> and Communications to develop the<br />

synergy that exists between transport and communications and to <strong>of</strong>fer leadership in the<br />

development and assimilation <strong>of</strong> new communications technology by encouraging the<br />

sub-sectors to include new technology into its strategic planning and development<br />

programmes.<br />

Section 32.<br />

<strong>Transport</strong> Master-plan<br />

Both public and private investors see the usefulness <strong>of</strong> plans that enable them to make<br />

long term decisions; the public sector need them to implement developments in a<br />

coordinated way. However, although there is no denying their usefulness, the<br />

<strong>Government</strong> recognises that more important than a single grand plan is a planning<br />

process. The Minister responsible for transport will establish and empower The <strong>National</strong><br />

<strong>Transport</strong> Authority to prepare a 5 year multi-annual plan for the entire sector that is<br />

updated annually and establish concomitant processes and information systems that will<br />

support such plan and obligate the subsectors to provide information needed to ensure<br />

that such plans as are made from time to time are as comprehensive and accurate as<br />

possible.<br />

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Botswana <strong>National</strong> <strong>Integrated</strong> <strong>Transport</strong> <strong>Policy</strong><br />

Article V. Ensuring social responsibility in the<br />

provision <strong>of</strong> transport<br />

<strong>Transport</strong> is not always positive as it can be intrusive, environmentally damaging and<br />

dangerous. Developers both public and private do not pay sufficient attention to the<br />

impact <strong>of</strong> their projects on the immediate area. <strong>Transport</strong> is a major source <strong>of</strong> air<br />

pollution and global warming. Operators <strong>of</strong>ten take risks with overcrowded and<br />

overloaded vehicles. The enforcement agencies are not able to provide sufficient<br />

protection from illegal activities, so exposing citizens to unnecessary risk.<br />

The primary role <strong>of</strong> this <strong>Government</strong> is to ensure the health and safety <strong>of</strong> its citizens and<br />

as such the quality <strong>of</strong> the transport environment will be improved also ensuring that<br />

those with limited mobility and accessibility are better supported<br />

Section 33.<br />

Improving health and safety<br />

Acknowledging that the health safety and well-being <strong>of</strong> citizens are a primary duty <strong>of</strong><br />

<strong>Government</strong> and that conditions must exist in the transport sector which aim at<br />

minimising loss <strong>of</strong> life or injury the Minister responsible for transport shall have the<br />

overall and specific responsibility for the ensuring the safety <strong>of</strong> all modes <strong>of</strong> transport and<br />

shall be empowered to coordinate activities by all other government agencies including<br />

that <strong>of</strong> the Ministry <strong>of</strong> Home Affairs and Ministry <strong>of</strong> Education to make real and significant<br />

improvement to the safety <strong>of</strong> citizens using the transport systems <strong>of</strong> Botswana and to<br />

ensure that safety monitoring is exercised rigorously and without deviation. The Minister<br />

shall further develop and apply such instruments, as are considered necessary to<br />

achieve accident reduction targets through operator licensing, granting technical<br />

approvals for vehicles and equipment, transport operations and in the supply and<br />

maintenance <strong>of</strong> infrastructure.<br />

Section 34.<br />

Promoting Poverty Alleviation<br />

The <strong>Government</strong>s priority is to ensure that its policies are inclusive <strong>of</strong> all members <strong>of</strong><br />

society. Mindful <strong>of</strong> the need to reduce poverty and broaden the employment base The<br />

Minister responsible for transport has discretion to encourage the development and<br />

execution <strong>of</strong> strategies, projects and initiatives that will contribute to poverty alleviation<br />

and the concomitant economic objectives which may concentrate on ensuring all year<br />

round accessibility in rural areas to amenities and in urban areas employment mobility,<br />

moreover, the Minister will have powers to encourage labour intensive services and take<br />

steps to ensure that labour based practises are employed where ever possible.<br />

Section 35.<br />

Climate Change<br />

In compliance with its international obligations and mindful that transport accounts for at<br />

least 30% <strong>of</strong> greenhouse gas emissions, the <strong>Government</strong> is anxious to fully participate in<br />

the international community with respect to combating climate change and to improve<br />

environmental protection and requires that the Minister responsible for transport<br />

cooperates with Minister responsible for environment in monitoring emissions produced<br />

by each <strong>of</strong> the transport sub-sectors and providing such monitoring data as are<br />

considered necessary through its international obligations, furthermore the <strong>Government</strong><br />

expects the Minister to put in place increasing standards <strong>of</strong> environmental management<br />

including controlling vehicle emissions and phasing out leaded fuels.<br />

Section 36.<br />

Minimising Environmental Impact<br />

The <strong>Government</strong> is aware <strong>of</strong> its commitment to improve the quality <strong>of</strong> the immediate<br />

environment for it’s and the many tens <strong>of</strong> thousands that visit the country every year. The<br />

Minister responsible for transport or appointed agents are required to enforce<br />

internationally accepted standards <strong>of</strong> environmental assessment <strong>of</strong> infrastructure<br />

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Botswana <strong>National</strong> <strong>Integrated</strong> <strong>Transport</strong> <strong>Policy</strong><br />

projects and to establish and to implement a programme <strong>of</strong> mitigation <strong>of</strong> environmental<br />

damage and will expect to see such assessments included in any project proposal in<br />

which its involvement is expected either directly or indirectly.<br />

Section 37.<br />

Promoting Energy Efficiency<br />

The government is aware <strong>of</strong> the high proportion <strong>of</strong> energy consumed by the transport<br />

sector and requires that the Minister responsible for transport to cooperate with the<br />

Minister responsible for energy to accurately monitor the energy consumption <strong>of</strong> each <strong>of</strong><br />

the sub-sectors and publish statistics to internationally agreed standards. Furthermore<br />

the <strong>Government</strong> expects that ministries will set targets for each <strong>of</strong> the sub-sectors and<br />

the sector overall that will progressively improve energy efficiency.<br />

Section 38.<br />

Operator Licensing<br />

Recognising that licensing transport operations is an important instrument through which<br />

the State can exercise its policies and influence the quality <strong>of</strong> transport services, the<br />

Minister responsible for transport or appointed agents is empowered to prepare and<br />

issue such licenses for the operations <strong>of</strong> any transport mode to any compliant applicant<br />

without prejudice or inclusion <strong>of</strong> quantitative or financial conditions and moreover<br />

knowing that without sanctions the usefulness <strong>of</strong> licensing is limited, the Minister or<br />

appointed agents has powers to withdraw licenses from non-compliant operators in<br />

accordance with strict procedures that will be advised to the licensee at the time the<br />

license is awarded and as subsequently modified thereafter. Generally and without<br />

prejudice, rather than price and quantity licensing shall focus on the quality <strong>of</strong> operations<br />

including the vehicle, driver, passenger information and performance.<br />

Section 39.<br />

Encouraging Self Regulation<br />

Bearing in mind the commitment by the <strong>Government</strong> to a fair and corrupt free society the<br />

Minister responsible for transport shall create the enabling conditions whereby entities<br />

who are engaged in the business <strong>of</strong> transport assume the responsibility for regulating<br />

their interests within the legal and regulatory strictures <strong>of</strong> such license conditions as have<br />

been conferred by the State on transport entities and ensuring that such an enabling<br />

environment for self regulation by the various parts <strong>of</strong> transport sector is effectively<br />

publicised, implemented and enforced to the benefit <strong>of</strong> the transport consumer.<br />

Section 40.<br />

Carrying Liability<br />

Mindful <strong>of</strong> the need to engender higher standards <strong>of</strong> accountability in both the public and<br />

private sectors in the process <strong>of</strong> deregulation and economic liberalisation The Minister<br />

responsible for transport shall ensure that licensed transport entities <strong>of</strong> all modes<br />

including vehicle operators and infrastructure providers incorporate civil and personal<br />

liability provisions and carry appropriate insurance<br />

Section 41.<br />

Providing Consumer Protection<br />

The <strong>Government</strong> is aware that transport consumers are relatively unprotected by the<br />

normal laws <strong>of</strong> contract and intends to strengthen the rights <strong>of</strong> transport consumers to<br />

include appropriate levels <strong>of</strong> protection and redress in the event that the supplier <strong>of</strong><br />

transport services irrespective <strong>of</strong> ownership is found deficient or negligent and empowers<br />

the Minister responsible for transport to ensure that appropriate provisions are included<br />

in operator licenses and in the frameworks for self regulation for the processing <strong>of</strong><br />

complaints and compensation <strong>of</strong> customers and moreover where damages are incurred<br />

by users <strong>of</strong> transport infrastructure due to the negligence <strong>of</strong> those vested with the<br />

riparian responsibility for the infrastructure compensation will be paid by those culpable<br />

and where liability is proven.<br />

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Section 42.<br />

Botswana <strong>National</strong> <strong>Integrated</strong> <strong>Transport</strong> <strong>Policy</strong><br />

<strong>Transport</strong> Authority<br />

Notwithstanding the policy for self regulation, the <strong>Government</strong> acknowledges the need to<br />

ensure that transport operators remain in compliance with technical standards,<br />

operational safety requirements and license conditions and where infringements occur<br />

and investigation needed or if public enquiries are called appropriate expertise is<br />

available and to this end the Ministry responsible for transport shall establish a <strong>National</strong><br />

<strong>Transport</strong> Authority with appropriate powers for investigation which will operate<br />

apolitically and as independently as possible that will include the necessary skills for<br />

each mode <strong>of</strong> transport.<br />

Section 43.<br />

Providing Enforcement<br />

Effective enforcement <strong>of</strong> traffic laws is essential to providing a safe and secure transport<br />

environment. Inconsistency exists in the way each mode <strong>of</strong> transport is policed that the<br />

<strong>Government</strong> intends to rectify by the establishment <strong>of</strong> the <strong>Transport</strong> Police Commission<br />

whose jurisdiction shall include air, shipping, rail and road transport and by the<br />

harmonisation <strong>of</strong> laws that relate to each transport mode and thereby empowers the<br />

Minister responsible for <strong>Transport</strong> in conjunction with the Minister for Home Affairs to<br />

establish and oversee the policing <strong>of</strong> the transport sector ensuring that it is adequately<br />

resourced and using where possible revenues that are available from each modes <strong>of</strong><br />

transport.<br />

Article VI. Sharing Responsibility<br />

Section 44.<br />

Ownership <strong>of</strong> <strong>Transport</strong> Infrastructure<br />

Noting that transport comprises infrastructure and operations and recognising the<br />

strategic and social importance <strong>of</strong> transport ownership <strong>of</strong> all transport infrastructure shall<br />

be vested with the State including but not limited to adopted roads and supporting traffic<br />

management systems, railways including signalling, maritime, runways and air traffic<br />

control systems and pipelines whereas operational assets such as buildings equipment<br />

and vehicles may be either owned by the State or by the private sector or jointly at the<br />

discretion <strong>of</strong> the Minister responsible for transport.<br />

Section 45.<br />

Management <strong>of</strong> <strong>Transport</strong> Systems<br />

Acknowledging that the transport sector is complex and diverse, the <strong>Government</strong><br />

encourages the direct participation <strong>of</strong> those organisations that are closest to and most<br />

sensitive to the need <strong>of</strong> the transport user provided it does not conflict with the national<br />

interest. In particular the <strong>Government</strong> subscribes to a process <strong>of</strong> devolution <strong>of</strong><br />

responsibility from the state to the subsectors and to regional and local government for<br />

those activities for which they may best suited. The <strong>Government</strong> will retain responsibility<br />

for those components <strong>of</strong> the transport sector that are considered to be <strong>of</strong> strategic<br />

necessity such as international routes and interchanges.<br />

Section 46.<br />

Training and education<br />

Essential to the successful implementation <strong>of</strong> transport policy is a cadre <strong>of</strong> skilled<br />

personnel in both the public and private sectors and to this end the Minister responsible<br />

for transport will encourage the development <strong>of</strong> human resources requiring agencies<br />

operators and contractors to submit to it information on the skill pr<strong>of</strong>iles <strong>of</strong> employees<br />

and places <strong>of</strong> further education to establish and revise curricula to meet the educational<br />

and training needs <strong>of</strong> the transport industry.<br />

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Section 47.<br />

Botswana <strong>National</strong> <strong>Integrated</strong> <strong>Transport</strong> <strong>Policy</strong><br />

Public and Private Participation<br />

The <strong>Government</strong> does not support privatisation as a matter <strong>of</strong> political dogma or to<br />

satisfy the requirements <strong>of</strong> certain stakeholders but will exercise discretion at the<br />

involvement <strong>of</strong> the private sector where it considers being in the interests <strong>of</strong> the country<br />

in general and transport users in particular. Notwithstanding, the foregoing the<br />

<strong>Government</strong> understands that there are many activities in the transport sector that are<br />

best carried out by the private sector and remains committed to encouraging private<br />

sector participation and ensuring that equitable conditions exist to facilitate competition<br />

and to provide best value to the transport user by formulating and exercising appropriate<br />

regulatory and fiscal policy instruments as are considered necessary by the Minister<br />

responsible for transport including the establishment <strong>of</strong> independent regulatory body or<br />

bodies as necessary to monitor and supervise the private sector in its activities.<br />

Section 48.<br />

Monopolies<br />

Recognising that economies <strong>of</strong> scale and rationalisation can lead to certain restrictions in<br />

the choice <strong>of</strong> supply <strong>of</strong> transport services and the negative consequences that such<br />

restrictions can have on the price quality and performance <strong>of</strong> the those services the<br />

Minister is empowered to refer to the appropriate body activities in the transport sector<br />

that are suspected <strong>of</strong> monopolistic and restricted practises and the <strong>Government</strong> will<br />

ensure that such a body will have powers to intervene in any commercial arrangement<br />

and veto any discriminatory or restricted practises where proven that such practices<br />

have taken place.<br />

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Botswana <strong>National</strong> <strong>Integrated</strong> <strong>Transport</strong> <strong>Policy</strong><br />

Passenger <strong>Transport</strong><br />

<strong>Policy</strong><br />

Part 2.1<br />

Affordable safe and convenient<br />

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Botswana <strong>National</strong> <strong>Integrated</strong> <strong>Transport</strong> <strong>Policy</strong><br />

Article VII. Providing for all<br />

Section 49.<br />

Attending to social need<br />

The government recognizes that a transportation system has a significant impact on the<br />

type <strong>of</strong> society that is created and on the quality <strong>of</strong> life. The <strong>Government</strong> strongly<br />

believes in a caring and just society. The MoTC in cooperation with MoLG will promote<br />

development <strong>of</strong> a passenger transportation system that responds to the social needs <strong>of</strong><br />

an independent democratic and free people. In so doing provision must be made for<br />

those in our society that are less advantaged such as pensioners, young persons and<br />

those on low incomes. This will allow everybody to be engaged in community<br />

Objectives <strong>of</strong> the policy are to<br />

1) Increase public transport patronage<br />

2) Reduce use <strong>of</strong> private cars in urban areas<br />

3) Prioritize public transport projects<br />

4) Reduce social exclusion<br />

5) Provide infrastructure for disabled people<br />

6) Support poverty elimination<br />

Some <strong>of</strong> the actions that will be taken to attend to social need include<br />

1) Creation <strong>of</strong> bus priority schemes including Combi taxi and high vehicle<br />

occupancy<br />

2) Parking and other user charges for private cars<br />

3) Consideration <strong>of</strong> ramp gradients in footpaths.<br />

4) Positioning <strong>of</strong> street furniture to reduce obstruction<br />

5) Constructing a network <strong>of</strong> cycle-ways and pedestrian facilities including<br />

walkways, subways, bridges, pedestrian phasing at crossings and ensure the<br />

inclusion in District Development Plans.<br />

6) Providing subsidies to operators for social services and concessionary fares to<br />

elderly and the mobility impaired.<br />

7) Incorporating facilities visually and mobility impaired at traffic controlled<br />

intersections chair bound, Providing easy access to stations and vehicles for<br />

disabled and elderly<br />

8) Providing floor level vehicle access and tactile paving defining the platform edge<br />

and door position for disabled position<br />

Section 50.<br />

Providing Quality Services<br />

Heavy regulation <strong>of</strong> passenger transport including the control <strong>of</strong> fares, in the past, has<br />

led to a low level <strong>of</strong> service provision and potential markets have not been not realised.<br />

This includes top-end high quality executive travel as well as less expensive mass<br />

transport. The <strong>Government</strong> appreciates that Public <strong>Transport</strong> is like any other business<br />

and that their role is to ensure the protection <strong>of</strong> customers through appropriate licensing.<br />

The <strong>Government</strong> also proposes to liberalise the market so that enterprises can provide<br />

the services where they believe demand exists. This requires deregulation <strong>of</strong> transport<br />

systems to permit operators to determine the frequency, schedule, vehicle size and<br />

number <strong>of</strong> seats and fare structure. Moreover, the services provided by <strong>Government</strong><br />

through the Ministry <strong>of</strong> <strong>Transport</strong> and Communications needs to expedited in the most<br />

efficient and cost effective way. In this way the industry is expected to meet the needs <strong>of</strong><br />

the travelling public. Furthermore the government will encourage the small operators to<br />

combine and create larger PT companies to more commercially viable and attract the<br />

investment needed o provide the quality services on demand.<br />

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Botswana <strong>National</strong> <strong>Integrated</strong> <strong>Transport</strong> <strong>Policy</strong><br />

Objectives <strong>of</strong> the policy are set out below:<br />

1) Promote market liberalisation<br />

2) Encourage service diversification to cover all market segments<br />

3) Have fewer larger PT operators<br />

4) Strengthen the Taxi and Combi Associations<br />

5) Provide more effective self regulation<br />

6) Devolve regulatory responsibility for PT to local government<br />

7) Improve service delivery through outsourcing<br />

8) Reduce Public <strong>Transport</strong> drivers’ hours<br />

9) Establish conditions for international passenger transport companies to be<br />

based in Botswana<br />

Figure 1 Passenger transport chaos not integration<br />

Some <strong>of</strong> the activities and initiatives that will be carried out to bring about the<br />

improvements will include:<br />

1) Establish and empower a <strong>National</strong> <strong>Transport</strong> Authority and Authorities for each<br />

sub-sector<br />

2) Changing to quality licensing for buses including a demerit system.<br />

3) And phasing out the permit systems and quantitative controls.<br />

4) Altering regulations to enable bus priority projects to be implemented<br />

5) Reducing the proportion <strong>of</strong> permits issued for small vehicle owner operated PT<br />

companies.<br />

6) Reducing the cost <strong>of</strong> vehicle licences in proportion to the fleet size.<br />

7) Institute more certification centres for commercial drivers<br />

8) Outsourcing <strong>of</strong> vehicle licensing, driver licensing, driver training and licensing,<br />

vehicle examination.<br />

9) Local government providing some <strong>of</strong> the services <strong>of</strong> the regulatory authority<br />

10) Phasing out DRTS local <strong>of</strong>fices as e government comes on stream<br />

11) Certification <strong>of</strong> garages for vehicle maintenance<br />

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Botswana <strong>National</strong> <strong>Integrated</strong> <strong>Transport</strong> <strong>Policy</strong><br />

12) Ensuring timetables and fare structures are published<br />

13) Providing for open access for railway passenger operations<br />

14) Providing for the private ownership <strong>of</strong> interchanges<br />

15) Open Skies for to promote competition<br />

16) Providing for charging operators for using infrastructure<br />

17) Establishing a Passenger <strong>Transport</strong> Regulator in the <strong>National</strong> <strong>Transport</strong><br />

Authority<br />

Article VIII. Improving accessibility<br />

Section 51.<br />

Planning for the community<br />

This government appreciates the need for land use and transport planning to be more<br />

closely integrated.<br />

For urban areas the government will no longer support the sprawling approach to<br />

development because providing transport and other services is much more expensive.<br />

In promoting the holistic approach the government will empower appropriate authorities<br />

to oversee the development process to ensure that balanced decisions will be made for<br />

the good <strong>of</strong> the community as a whole. This will ensure that transport, especially roads,<br />

will be considered together with other sectors such as health, water, education and<br />

communication.<br />

<strong>Policy</strong> Objectives to be achieved include the following:<br />

1) Promote Closer consensus on community needs<br />

2) Optimise the location <strong>of</strong> amenities to the provision <strong>of</strong> services to reduce costs<br />

and travel time.<br />

3) Relocate activities to reduce conflicts (e.g. between heavy trucks and public<br />

transport)<br />

4) Give preference to compact urban development<br />

5) Increase housing densities<br />

6) Closer interdepartmental coordination in the preparation <strong>of</strong> transport plans<br />

projects<br />

Indications <strong>of</strong> the range <strong>of</strong> activities and measures that will be taken to improve planning<br />

include:<br />

1) Promote local participation in the name <strong>of</strong> good governance<br />

2) Formation <strong>of</strong> Regional <strong>Transport</strong> Authorities under the umberella <strong>of</strong> the <strong>National</strong><br />

<strong>Transport</strong> Authority that provides a holistic approach to land use and transport<br />

planning and management.<br />

3) Preparation and implementation <strong>of</strong> land use and transport planning guidelines<br />

4) Preparation <strong>of</strong> local integrated transport and land use plans<br />

5) Building markets or health care facilities that are better connected.<br />

Section 52.<br />

Better passenger transport networks<br />

Passengers incur penalties when travelling that makes their journeys time consuming,<br />

inconvenient unaffordable and uncomfortable. This situation encourages high car<br />

ownership which in turn aggravates the situation. It is a spiral <strong>of</strong> decline that <strong>Government</strong><br />

intends to reverse.<br />

Connectivity needs improving between different modes <strong>of</strong> transport, between Urban and<br />

Rural Communities, as well as Regional and international levels. Standards <strong>of</strong><br />

connectivity need to be established for each mode <strong>of</strong> transport and between different<br />

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Botswana <strong>National</strong> <strong>Integrated</strong> <strong>Transport</strong> <strong>Policy</strong><br />

modes <strong>of</strong> transport that will both meet expectations and, at the same time be<br />

sustainable.<br />

Ensuring that passenger transport networks are complete to avoid waiting time at<br />

interchanges and minimise other penalties shall be at the heart <strong>of</strong> the process <strong>of</strong><br />

integrated transport planning that the <strong>Government</strong> intends to implement through the<br />

Ministry <strong>of</strong> <strong>Transport</strong> and Ministry <strong>of</strong> Local <strong>Government</strong><br />

The primary objectives for providing better transport networks are stated<br />

below.<br />

1) Improve local, national regional and international connectivity.<br />

2) Reduce the waiting time at bus terminals between different<br />

services.<br />

3) Increasing public transport market share <strong>of</strong> passenger transport<br />

4) Improving amenities for tourists and other visitors.<br />

5) Reducing journey to work time<br />

Figure 2 Bus Priority Lanes and Bus Rapid Transit Network planned for Gaborone<br />

2012 to 2025<br />

Some <strong>of</strong> the most important<br />

projects and measure that will be<br />

taken to improve accessibility<br />

include initially implementing bus<br />

priority schemes in the capacity<br />

city and other urban areas<br />

subsequently constructing Bus<br />

Rapid Transit Systems in<br />

Gaborone as demand increases.<br />

1) Promoting Park n Ride<br />

schemes to encourage modal<br />

transfer<br />

2) Constructing new Roads<br />

to fill in missing links<br />

3) Building <strong>Integrated</strong><br />

interchanges<br />

4) Establishing new rail<br />

passenger services and stations<br />

5) Constructing by-passes<br />

around cities and towns.<br />

6) Providing new and<br />

improved domestic airports<br />

7) Improving national airport and Intermodal Interchange<br />

8) Promoting direct regional flights to all SADC capital cities (minimum standard <strong>of</strong><br />

one transfer)<br />

9) Providing real time operational information for all modes <strong>of</strong> transport<br />

10) Improving provisions for waiting passengers<br />

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Section 53.<br />

Non-motorised transport<br />

The most prevalent <strong>of</strong> all modes <strong>of</strong> transport is<br />

walking. Walking can be the preferred mode <strong>of</strong> travel<br />

for distances <strong>of</strong> up to 4 km. cycling can be the<br />

preferred mode <strong>of</strong> transport for distance <strong>of</strong> up to 10<br />

km. But pedestrians and cyclists are vulnerable and<br />

over 30% <strong>of</strong> all road fatalities occur to the category <strong>of</strong><br />

non-motorised transport. The lack <strong>of</strong> safe and secure<br />

networks for pedestrians and cyclists is the main<br />

reason why demand is depressed. Demand for<br />

cycling in flat terrain should be very high, but in<br />

Botswana it is not. In rural areas the use <strong>of</strong> donkey<br />

carts is common, but there are no provisions on road reserve for this form <strong>of</strong> transport<br />

accept rough ground.<br />

Road construction is aimed at the car and not the pedestrian or cyclist consequently<br />

almost all roads lack basic footpaths and safe crossing points. A new position <strong>of</strong><br />

Assistant Minster responsible for roads will be established who shall be responsible for<br />

ensuring that new and rehabilitated roads incorporate adequate provisions for<br />

pedestrians and cyclists.<br />

Objectives for Non-Motorised <strong>Transport</strong> are set out below:<br />

1) Increase the number <strong>of</strong> trips made by walking and cycling.<br />

2) Improve the safety <strong>of</strong> pedestrians and cyclists<br />

3) Increase the modal split in favour <strong>of</strong> walking and cycling<br />

4) Implement pedestrianisation to reduce conflict with cars.<br />

Some <strong>of</strong> the many initiatives that will be taken to improve facilities for pedestrians and<br />

cyclists include<br />

Figure 3 Cycle Lanes in London<br />

1) Planning, designing and constructing networks for<br />

Pedestrians and cyclists<br />

2) Providing footpaths/cycle-ways for all new or<br />

rehabilitated roads<br />

3) Providing ancillary amenities such as benches and<br />

cycle parking<br />

Section 54.<br />

Motor cycling<br />

Though used for transporting pizzas, motorcycling is<br />

strangely unpopular. By 2010 there were<br />

approximately 1000 motor cycles registered or 0.4%<br />

<strong>of</strong> the total fleet. The reason maybe lack <strong>of</strong> status,<br />

but more likely the low popularity is due to the<br />

perceived high risk <strong>of</strong> accidents.<br />

Though not classified as non-motorised transport,<br />

the use <strong>of</strong> motorcycles will also be encouraged<br />

throughout the country and especially in urban areas<br />

as they provide efficient and affordable mobility.<br />

Figure 4 Only for pizza delivery Motorcycles parked in Game City<br />

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Botswana <strong>National</strong> <strong>Integrated</strong> <strong>Transport</strong> <strong>Policy</strong><br />

Article IX. Ensuring Sustainable Mobility<br />

Section 55.<br />

Improving Road Safety<br />

The <strong>Government</strong> is aware <strong>of</strong> the contradiction between roads that are a meant to be a<br />

public good, its vision <strong>of</strong> a safe and secure nation and the high rate <strong>of</strong> road accidents<br />

that affects the whole nation. Botswana has the second worst accident rate in Southern<br />

Africa. The cost to society <strong>of</strong> road accidents includes loss <strong>of</strong> production <strong>of</strong> those killed<br />

and injured, medication and hospital, police and insurance costs, replacement <strong>of</strong><br />

property. But the cost is insignificant compared to the pain, grief and suffering that road<br />

accidents cause. The carnage on the roads <strong>of</strong> Botswana is not sustainable <strong>of</strong> course.<br />

Moreover, the ever-present danger is the main reason why there is little interest in<br />

cycling or motorcycling which is also a cost to society. Finally, investors are put <strong>of</strong>f by the<br />

apparent indifference by government to this situation.<br />

Figure 5 Devastating Multiple Accidents March 2011 on A1<br />

All accidents are avoidable. But much<br />

can be done to minimise the risk <strong>of</strong><br />

accidents occurring. The causes <strong>of</strong><br />

accidents are many, including driver<br />

behaviour, road condition, weather, mix<br />

<strong>of</strong> vehicles, road worthiness and roaming<br />

cattle. There is also a lack <strong>of</strong> an<br />

institutional framework that compounds<br />

the problem and no single entity is being<br />

held ultimately responsible. The situation<br />

is such that the mobility <strong>of</strong> the population<br />

is undermined.<br />

Most accidents occur on Fridays and<br />

Saturday nights mostly due to drunk<br />

driving. The <strong>Government</strong> will institute a zero tolerance to drunk driving<br />

The <strong>Government</strong> will therefore give the highest priority to safety. The Assistant Minster<br />

for Roads will assume the full responsibility for reducing the deaths on our roads. A<br />

multi-sectoral approach will be adopted, formal structures set up that take on board both<br />

government and non-government organizations to develop strategies <strong>of</strong> reducing road<br />

accidents, encompassing engineering, education and enforcement.<br />

The specific objectives <strong>of</strong> the road safety policy are set out below:<br />

1) To raise driving skills.<br />

2) Intensify enforcement <strong>of</strong> traffic regulations<br />

3) Improve road infrastructure conditions through better maintenance<br />

4) Improve road operations restriction <strong>of</strong> driving hours and vehicle quality.<br />

5) Raising quality / reducing age <strong>of</strong> national vehicle fleet<br />

6) Provision for emergency services<br />

7) Improvement <strong>of</strong> the environment within residential areas and along main traffic<br />

routes<br />

8) Achieve a better understanding <strong>of</strong> the causes <strong>of</strong> road accidents<br />

9) Improve accountability for road accidents<br />

The <strong>Government</strong> will embark on an extensive programme based on its road safety<br />

strategy that was adopted in 2010. Some <strong>of</strong> the actions that will be taken are listed below<br />

1) Implement the <strong>National</strong> Road Safety Strategy and<br />

2) Activate and resource the Road Safety Council to oversee its implementation<br />

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Botswana <strong>National</strong> <strong>Integrated</strong> <strong>Transport</strong> <strong>Policy</strong><br />

3) Improve driver training<br />

4) Mandatory periodic road worthiness testing <strong>of</strong> all motorised vehicles over<br />

stipulated age<br />

5) Outsource vehicle inspection and certification<br />

6) The NTA to have an accident investigation unit<br />

7) Carry out driver re-testing every 5 years<br />

8) More and better equipped traffic police<br />

9) Continuous traffic surveys using induction loops and use <strong>of</strong> modern performance<br />

management systems<br />

10) Road Safety audits and accidents investigation<br />

11) Development plans on highway maintenance, renewal and improvement<br />

12) Implement road traffic act and Introducing<br />

demerit point systems<br />

13) Technical Investigations <strong>of</strong> the causes <strong>of</strong> road<br />

accidents<br />

14) Black spots identification and remedial<br />

15) Deploy intelligent <strong>Transport</strong> Systems and provide<br />

better user information with variable message signs<br />

16) Campaigns against speeding and wearing seat<br />

belts and drunken driving<br />

17) Physical traffic calming measures<br />

18) Cycle lanes and tracks<br />

19) Pedestrian walkways and subways<br />

20) Fixed speed cameras<br />

21) Home zones<br />

22) School buses<br />

23) Seats and head restraints (including child)<br />

24) Regulate to limit the hours drivers can spend at<br />

the wheel<br />

Figure 6 Disabled from the waist, giving her testimony <strong>of</strong> her terrible ordeal to the<br />

Audience at the Opening <strong>of</strong> the Botswana Road Safety Decade June 20 th 2011<br />

Section 56.<br />

Safeguarding our environment<br />

Unlimited mobility comes at a cost to society and is no longer sustainable. It is evident by<br />

problems such as congestion local air pollution and global warming, noise, community<br />

severance, visual intrusion, damage to environmentally sensitive sites.<br />

Until recently the cause and effect <strong>of</strong> these environmental problems was not properly<br />

understood and governments did little. Now our understanding <strong>of</strong> these issues have<br />

improved and government is now able to take steps that will ensure that the mobility <strong>of</strong><br />

the citizens is achieved in such a way as to minimise damage to our environment.<br />

Part <strong>of</strong> the strategy will be to contain damage through regulation <strong>of</strong> technical standards<br />

to the construction and use <strong>of</strong> transport systems, another will be to charge transport<br />

users the costs associated with the damage that is caused. The Minister <strong>of</strong> <strong>Transport</strong><br />

and Communications will ensure that the basis for regulating to protect our environment<br />

will be the same for all modes <strong>of</strong> passenger transport. The objectives below set out the<br />

ambition <strong>of</strong> the <strong>Government</strong> to safeguard our environment and that <strong>of</strong> our children and<br />

grandchildren.<br />

1) Equitably apply the principle <strong>of</strong> the polluter pays<br />

2) Reduce local air pollution generated from passenger transport<br />

3) All passenger transport vehicles and aircraft to meet technical standards with<br />

respect to emissions<br />

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Botswana <strong>National</strong> <strong>Integrated</strong> <strong>Transport</strong> <strong>Policy</strong><br />

4) Reduce dependency on imported fuels<br />

5) Passenger transport vehicle licence fees to be based on the engine capacity<br />

and CO2 emissions<br />

6) Increase the proportion <strong>of</strong> low emission vehicles including electric vehicles<br />

7) Electrify railways using locally generated energy<br />

Some <strong>of</strong> the initiatives that will be taken are listed below. It is to emphasised that these<br />

are but a few <strong>of</strong> the actions that will be taken, and, as with all policies in this <strong>White</strong><br />

<strong>Paper</strong>, transport subsector managers will be expected to develop their own programmes<br />

and projects to protect and improve the environment<br />

1) Prepare air quality management action plan<br />

2) Prepare emission standards for PT Vehicles and aircraft equip inspection units<br />

to apply them.<br />

3) Small cars electric cars and hybrid cars to have tax holidays<br />

4) Plan and implement a network <strong>of</strong> electric charging points.<br />

5) Create low emission zones<br />

6) Congestion charging for entry to the city centre.<br />

7) Incentives for scrapping old cars<br />

8) Monitor air quality and provide routine reporting<br />

9) Reduce community severance through better planning<br />

10) Noise attenuation schemes to be implemented in residential areas<br />

Section 57.<br />

Managing Traffic Better<br />

Car ownership has grown at faster than the economy at a rate <strong>of</strong> 9% so that in 2010 the<br />

number <strong>of</strong> registered vehicles exceeded 250,000 <strong>of</strong> which 65% were registered in or<br />

arround Gaborone. Traffic, especialy in urban areas has grown rapidly. Whilst the need<br />

was to build new roads to accommodate increasing traffic now the needs is to provide<br />

better management <strong>of</strong> traffic to ensure that valuable road assets are most effectively<br />

utilised. New traffic management skills are needed as well as technical standards and<br />

appropriate organisational structures. The objectives to be achieved that will drive the<br />

policy are stated as follows:<br />

1) Improve the level <strong>of</strong> service for road users especially in urban areas – that is to<br />

say reduced queuing and travel time.<br />

2) Increase the number <strong>of</strong> qualified traffic engineers<br />

3) Include traffic engineering solutions in District Development Plans and provide<br />

funding<br />

4) Discourage the use <strong>of</strong> the private vehicles in urban areas<br />

5) Restrict private <strong>of</strong>f-street parking in busy urban centres<br />

6) Pay for on-street parking<br />

7) Adopt yellow lining and penalise for illegal on-street parking<br />

Some <strong>of</strong> the many actions that will be taken to improve traffic and travel conditions for<br />

passengers include:<br />

1) Setting up a <strong>Transport</strong> Authority for Greater Gaborone<br />

2) Creation <strong>of</strong> traffic management as a part <strong>of</strong> land use and transport planning<br />

strategy<br />

3) Establish traffic engineering course at the University <strong>of</strong> Botswana<br />

4) Establishing a Centralised Traffic Signal Controls for Gaborone under the<br />

ownership <strong>of</strong> the <strong>Transport</strong> Authority.<br />

5) Issuing guidelines for design <strong>of</strong> traffic management systems<br />

6) Parking controls and limiting the construction <strong>of</strong> new parking facilities<br />

7) Traffic calming<br />

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Botswana <strong>National</strong> <strong>Integrated</strong> <strong>Transport</strong> <strong>Policy</strong><br />

8) Improving signage and lighting<br />

Section 58.<br />

Vehicle Ownership<br />

Figure 7 Registered Vehicles<br />

300,000<br />

250,000<br />

Vehicle ownership has risen very rapidly and<br />

there is gowing debate as to how to react.<br />

Others<br />

Tankers/Horses On the one hand increasing vehicle<br />

200,000<br />

150,000<br />

Trailers<br />

Tractors<br />

ownership has certainly increased mobility<br />

for all social strata including those with low<br />

Motor Cycles<br />

100,000<br />

incomes. The availablity <strong>of</strong> low cost imported<br />

Buses (1)<br />

Trucks vehicles has provided thousands with the<br />

50,000<br />

LDVs means to travel to work, provide services and<br />

0<br />

Passenger cars<br />

reach more lucrative markets. The increase<br />

in vehicles has also gone hand in hand with<br />

the increase in engineered, especially paved<br />

roads, which have been developed assuming high levels <strong>of</strong> traffic growth. While the<br />

increase in vehicles has generated demand it has also ecentuated problems such as<br />

traffic congestion and pollution. The national trade balance may have also been<br />

negatively effected because vehicles, fuel and spare parts are all imported. There is no<br />

doubt that <strong>Government</strong> needs to fully appreciate the effects <strong>of</strong> rapid vehicle ownership<br />

before persuing any specific strategy and requires the Minster responsible for transport<br />

to carry out a full diagnosis <strong>of</strong> the issues within 12 months <strong>of</strong> the adoption <strong>of</strong> the policy.<br />

Overall the <strong>Government</strong> has no interest in influencing the freedom <strong>of</strong> individuals to spend<br />

their income as they want. Moreover, there is no interest in protecting a domestic vehicle<br />

manufacturing or retail industry by imposing heavy penalties on the importation <strong>of</strong><br />

second hand trucks, buses and cars that have made a difference to the lives <strong>of</strong> so many<br />

citizens. However, while private vehicle ownership is accepted without unnecessary<br />

controls, the <strong>Government</strong> reserves the right to exercise control <strong>of</strong> motor vehicles where it<br />

considers it to be in the public interest.<br />

Table 1 Annual Registration <strong>of</strong> vehicles by type and year<br />

Year Passenger LDVs Trucks Buses Motor Tractors Trailers Tankers/ Others Total<br />

cars<br />

(1) Cycles<br />

Horses<br />

1999 42,861 54,799 6,229 4,776 756 3,356 5,828 704 1,199 120,508<br />

2000 48,171 59,313 6,832 5,449 772 2,451 6,248 708 1,326 131,270<br />

2001 52,873 62,765 7,392 6,005 833 2,900 6,554 277 1,377 140,976<br />

2002 59,055 67,947 7,556 6,506 851 2,866 6,950 703 1,478 153,912<br />

2003 64,681 70,923 8,173 7,012 804 2,694 7,710 940 1,565 164,502<br />

2004 73,587 74,455 8,648 8,228 852 2,812 8,183 1,021 1,590 179,376<br />

2005 82,056 74,387 8,992 8,913 772 2,638 8,614 1,121 1,550 189,043<br />

2006 90,877 75,035 9,928 9,103 750 2,536 9,050 1,328 1,527 200,134<br />

2007 103,980 77,659 11,537 9,522 788 2,550 10,152 1,568 1,647 219,403<br />

2008 119,618 82,757 14,104 10,220 968 3,108 11,261 1,805 1,897 245,738<br />

2009 127,294 85,553 14,892 10,764 989 3,083 11,804 1,915 1,967 258,261<br />

2010 134,969 88,349 15,679 11,309 1,010 3,058 12,348 2,025 2,037 270,784<br />

The objectives <strong>of</strong> the policy are<br />

1) to increase the national fleet <strong>of</strong><br />

all vehicles to promote mobility<br />

2) to ensure that vehicle<br />

ownership and use contribute<br />

positively to the economy<br />

% 49.84% 32.63% 5.79% 4.18% 0.37% 1.13% 4.56% 0.75% 0.75% 100.00%<br />

Notes<br />

Source CSO 2008<br />

(1) Buses including combis<br />

The measures that will be taken to implement the policy are<br />

1) Collect and compile annual vehicle registration data<br />

2) Carry out an in depth analysis <strong>of</strong> the impact <strong>of</strong> vehicle ownership on Botswana<br />

3) Determine the criteria for biennial reporting on vehicle ownership<br />

4) Ensure that periodic national census collects data on vehicle use as well as<br />

ownership<br />

Section 59.<br />

Managing <strong>Transport</strong> Demand<br />

<strong>Transport</strong> is a means to an end and not and end in itself. It is no benefit to society to<br />

generate transport demand for the sake <strong>of</strong> it. <strong>Transport</strong> consumes resources that may be<br />

better allocated to other activities. If the physical movement <strong>of</strong> people and goods can be<br />

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Botswana <strong>National</strong> <strong>Integrated</strong> <strong>Transport</strong> <strong>Policy</strong><br />

avoided but the quality life improves, that is the way to go. In fact <strong>Government</strong><br />

appreciates that only by widening the choices available to citizens, can the quality <strong>of</strong> life<br />

improve.<br />

The combination <strong>of</strong> <strong>Transport</strong> with Communications in one Ministry is to provide synergy<br />

between transport and communications and a hotbed to generate ideas that will<br />

demonstrate the leadership that is aspired to in this policy. Few <strong>of</strong> us can doubt that the<br />

future in 2036 will be considerably different from today. Almost certainly, there will be<br />

less need to travel, as communications improves, most business transactions will be on<br />

line, effective video link up will substitute many <strong>of</strong> our ad-hoc social trips, more and more<br />

education will be delivered on-line and shopping will be done using ‘e commerce’. In fact<br />

these changes will be necessary because energy will be very expensive and the<br />

environment will need to be protected from wasteful decisions. The freedoms that are<br />

enjoyed today will be looked at as luxury and waste in future years.<br />

Besides looking into the future, there are very simple s<strong>of</strong>t measures that will taken with<br />

little or no cost which reduce the congestion and improve mobility for all. Staggering<br />

working hours in the public sector away from 07.30 hours and 16.30 hours will reduce<br />

traffic congestion and may avoid the need for expensive alternations to passenger<br />

transport networks and Schools hours will be changed a little to avoid the 07.30 peak.<br />

The Minister <strong>of</strong> <strong>Transport</strong> and Communications will place on the agenda the<br />

development and implementation <strong>of</strong> ways and means to manage the demand for<br />

transport, that will include reducing demand where it is excessive and stimulating<br />

demand where it is not. Such cases do exist especially in rural areas where roads have<br />

been built but are not being used or where rail passenger services may provide a better<br />

solution for middle distance intercity travel than buses. Overall, the weakness <strong>of</strong> many<br />

projects has been the lack <strong>of</strong> interest in the demand that is expected to be generated.<br />

The Minster will assume responsibility for managing transport demand, ensuring that it is<br />

monitored carefully band report to parliament no less than biannually the overall<br />

performance <strong>of</strong> the sector and sub-sector with respect to demand as well supply <strong>of</strong><br />

transport.<br />

The objectives that are to be achieved through this policy include:<br />

1) Monitoring <strong>Transport</strong> Demand<br />

2) Reducing the demand for travel especially in urban areas whist increasing<br />

economic development and growth.<br />

3) Stimulating demand in rural areas through integrated land use planning to show<br />

that roads lead to prosperity for those areas.<br />

4) Optimising the allocation <strong>of</strong> land with respect to the location <strong>of</strong> activities and<br />

means <strong>of</strong> transport<br />

5) Replacing travel using high technology as it becomes more available and<br />

affordable.<br />

6) Vehicle tagging using GPS, linked to metering and provided with routing, road<br />

condition, parking and other information<br />

Some <strong>of</strong> the initiatives that will be taken to better manage transport demand include;<br />

1) Staggering working hours especially <strong>of</strong> the public sector to reduce traffic<br />

congestion at peak times in urban areas;<br />

2) Similarly promoting flexible working hours in the private sector<br />

3) Promoting car sharing, giving priority to cars with 4 or more passengers in Bus<br />

Priority Lanes<br />

4) Planning and implementing a programme <strong>of</strong> establishing video conferencing<br />

infrastructure.<br />

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Botswana <strong>National</strong> <strong>Integrated</strong> <strong>Transport</strong> <strong>Policy</strong><br />

5) Encouraging home based working<br />

6) Implementing E government<br />

7) Promoting E commerce and B2B<br />

8) Using intelligent transport systems that enable transport users to make better<br />

informed decisions.<br />

9) Car tagging, real time metering <strong>of</strong> vehicle, location and time.<br />

10) Ensure that secondary road development is fully integrated into the rural<br />

community and that development opportunities are maximised<br />

11) Ensure that all transport investment projects have clear targets with respect to<br />

demand<br />

Section 60.<br />

Gaborone Passenger <strong>Transport</strong> Authority<br />

Figure 8 Sprawling City 1970 - 2010<br />

The existence <strong>of</strong> multiple institutions acting without<br />

the necessary coordination to address land transport<br />

needs in the Greater Gaborone hinders the<br />

successful implementation <strong>of</strong> coordinated policies to<br />

address the provision <strong>of</strong> enough transport services<br />

to satisfy the population needs. Within 12 months <strong>of</strong><br />

this policy entering into force the Minister<br />

responsible for transport and the Minster responsible<br />

for Local <strong>Government</strong> will have drafted and obtained<br />

parliamentary support for the <strong>Transport</strong> Authority Act<br />

which shall include inter alia the requirements for such a body for Greater Gaborone.<br />

The GTA will assume the full responsibility for transport and land use planning for the<br />

Greater Gaborone Area. It will also be responsible for the Bus Rapid <strong>Transport</strong> system,<br />

for the Greater Gaborone Traffic Signal systems and all traffic management.<br />

Gaborone <strong>Transport</strong> Authority<br />

Main Objective: Create an independent political body to take the lead in policy making and regulation <strong>of</strong><br />

multi-modal land transportation activities <strong>of</strong> the public and private sectors within Greater Gaborone.<br />

Jurisdiction: Greater Gaborone, understood as the conurbation <strong>of</strong> Gaborone, Mogoditshane and Tlokweng<br />

and their neighbouring urban areas within the study area, which include Lobatse, Kanye, Moshupa,<br />

Thamaga, Molepolole and Mochudi<br />

Specific objectives:<br />

Be responsive to citizens’ transport needs<br />

Ensure that land use and transport is fully and effectively integrated<br />

Revise and keep updated the Gaborone <strong>Transport</strong> Development Programme - GTDP<br />

Develop multi-modal transport infrastructure<br />

Regulate to provide quality <strong>of</strong> public transport services<br />

Improve mobility and accessibility <strong>of</strong> citizens<br />

Attenuate environmental impacts associated to transport activities<br />

Activities There will be many initiatives and actions needed to set up and run the GTA some <strong>of</strong> these are:<br />

Determination <strong>of</strong> the legal framework constitution including political representation, mandate and<br />

authority<br />

Organizational structure: initial definition<br />

Providing analysis <strong>of</strong> transport and land use issues<br />

Funding and financial aspects including those for the implementation <strong>of</strong> the GTDP<br />

Resourcing, procedures, IT<br />

Public Relations<br />

Outcomes: The main outcomes form setting up the GTA will be<br />

a plan for acting upon transport issues in Greater Gaborone transport plans,<br />

the power to bring together stakeholders and define priorities<br />

the resources (both pr<strong>of</strong>essional and economic) to implement the plan<br />

<br />

the controls over agents providing transport services<br />

Results: The GTA will enable the City and surrounding LG Areas to<br />

Develop in a way that will reduce transport costs<br />

Attract investment and stimulate growth and jobs<br />

Improve the environment and reduce energy consumption<br />

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Reduce road accidents


Section 61.<br />

Botswana <strong>National</strong> <strong>Integrated</strong> <strong>Transport</strong> <strong>Policy</strong><br />

Paying for passenger transport<br />

As a developing country, it is necessary to recognise the important role that mobility<br />

provides in creating opportunities for improvement <strong>of</strong> our quality <strong>of</strong> life. It links us to jobs,<br />

to places <strong>of</strong> education and health services. It also has helped to promote our way <strong>of</strong> life,<br />

sustain our love affair with cattle and maintaining links to our villages. To this end we<br />

have seen transport networks grow significantly; paved roads leap from less than 100 km<br />

upon independence in 1966 to 8000 km today; railways from nothing to 800 km and,<br />

similarly, airports from almost nothing to one national and 10 provincial airports.<br />

The mobility that has been generated has been an essential factor in the development <strong>of</strong><br />

our country. But, whilst the networks have grown, demand has not grown sufficiently to<br />

make them economically viable and the sustainability <strong>of</strong> all modes <strong>of</strong> transport is under<br />

threat.<br />

But <strong>Government</strong> is no longer in a position to continue to finance development and<br />

maintenance <strong>of</strong> transport networks and must act boldly on three fronts to ensure that our<br />

precious mobility is sustainable in the long term.<br />

1. Increase the size <strong>of</strong> the market through stimulating economic growth, having a more<br />

proactive approach to attracting immigrants that positively contribute to economic<br />

expansion, and generate more foreign direct investment that will create new jobs:<br />

2. Reduce the scale <strong>of</strong> the public transport network through declassification <strong>of</strong> roads,<br />

restructuring and privatising railways, airport and operators<br />

3. Ensure that transport users pay for the use <strong>of</strong> transport networks and services<br />

Some rules will change the way that we have done things in the past but it will be in the<br />

national interest; the objectives that will help in ensuring that patterns <strong>of</strong> mobility are<br />

sustainable include...<br />

1) Increase demand for transport services provided it is contributes positively to the<br />

economy<br />

2) Creating better market conditions for passenger transport services<br />

3) Stimulating investment in passenger transport services<br />

4) Increasing revenue to providers <strong>of</strong> passenger transport networks<br />

5) Tapping into new sources <strong>of</strong> funding that are created as a result <strong>of</strong> the economic<br />

benefits generated by improved connectivity ... known as planning gain.<br />

Measures and projects that will be undertaken to enhance the sustainability <strong>of</strong> passenger<br />

transport will include the following:<br />

1) Primary users <strong>of</strong> transport networks will pay for the level <strong>of</strong> connectivity that they<br />

demand<br />

2) Developers will be made to pay for infrastructure connections that they need, to<br />

make their businesses work.<br />

3) Property owners will pay a tax based on the increase in value <strong>of</strong> their properties<br />

that improvements to the transport networks have provided.<br />

4) <strong>Transport</strong> users will bear a charge equivalent to the full cost <strong>of</strong> providing and<br />

maintaining the services that are required.<br />

5) Botswana Railways will be restructured then merged or privatised to create a<br />

more viable entity<br />

6) Similarly airports will be leased out and Air Botswana privatised.<br />

7) Vehicle taxation will increase and be based engine capacity and CO2 emissions<br />

8) The Road Fund Levy will be increased to recover all maintenance costs,<br />

operations and control <strong>of</strong> roads<br />

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Botswana <strong>National</strong> <strong>Integrated</strong> <strong>Transport</strong> <strong>Policy</strong><br />

9) Vehicle metering will be introduced as and when the technology is available<br />

Section 62.<br />

Poverty Elimination<br />

The <strong>Government</strong> recognize that lack <strong>of</strong> concerted efforts to eradicate poverty will<br />

continue to defeat objectives <strong>of</strong> improving the quality <strong>of</strong> lives <strong>of</strong> Batswana. A large<br />

proportion <strong>of</strong> the population – especially in rural areas are deprived <strong>of</strong> mobility. Mobility<br />

deprivation can be defined either as an inability <strong>of</strong> the transport user to reach a facility or<br />

service because <strong>of</strong> inadequate transport or because access to transport system is<br />

denied due to physical or administrative barriers.<br />

The Ministries <strong>of</strong> <strong>Transport</strong> & Communications, Finance & Development Planning,<br />

Agriculture, Education & Skills Development & Environment will collaborate to achieve<br />

the desired goal <strong>of</strong> providing essential passenger and freight transport services resulting<br />

in economic and mobility opportunities for rural dwellers. The policy will strive to improve<br />

accessibility <strong>of</strong> rural communities to socio – economic facilities such as schools, health<br />

facilities, government <strong>of</strong>fices, markets for farm produce. It will also recognize the mobility<br />

deprivation as an economic disadvantage and mobility as a social right to reduce social<br />

exclusion and balance urban-rural disparities. Objectives to be achieved that will help<br />

reduce poverty, especially in rural areas include:<br />

1) Increase in the number <strong>of</strong> rural PT services.<br />

2) Increase in the route km covered by PT services<br />

3) Increase in demand for rural PT services<br />

To enhance public transport the following measures will be taken:<br />

1) <strong>Transport</strong> Operators sign Passenger <strong>Transport</strong> contracts on a subsidy<br />

minimising basis<br />

2) Establish Rural <strong>Transport</strong> Subsidy Scheme<br />

3) Quality Partnerships between the government and transport service providers.<br />

4) Deployment <strong>of</strong> <strong>Transport</strong> Inspectors<br />

5) Formulate guidelines and implement concessionary fares(applicable to the old<br />

and disabled<br />

6) Ensure that the location <strong>of</strong> markets and social amenities are accessible<br />

Section 63.<br />

Embracing New Technology<br />

These days there is no excuse for lack <strong>of</strong> knowledge, and yet there is resistance to<br />

change in many areas <strong>of</strong> government and transport sector management.<br />

There are no research resources in Botswana in the <strong>Transport</strong> Sector and this is holding<br />

us back. The government vision is that Botswana should be a global leader in the<br />

provision <strong>of</strong> transport services and will make sure that new solutions to our many<br />

transport problems will be provided using new technology. In so doing, the <strong>Government</strong><br />

vision is that technological development, knowledge and skills will be the engine that<br />

drives our future through such initiatives as the transport hub. The <strong>Government</strong> will also<br />

take steps to ensure that transport education, training research and development will be<br />

significantly boosted in Botswana. The key objectives to be achieved in this policy are<br />

stated below:<br />

1) To improve change management in government<br />

2) To increase the application <strong>of</strong> new technology to solve transport problems<br />

3) The ensure that the introduction <strong>of</strong> new technology generates positive economic<br />

benefits<br />

4) Exploit the synergies that exist between transport and communications<br />

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Botswana <strong>National</strong> <strong>Integrated</strong> <strong>Transport</strong> <strong>Policy</strong><br />

5) Pilot high tech demonstration projects such as vehicle metering and intelligent<br />

transport systems<br />

Examples <strong>of</strong> some <strong>of</strong> the many initiatives to be taken include...<br />

1) Training <strong>of</strong> public <strong>of</strong>ficials in change management<br />

2) Establish a <strong>Transport</strong> Research Board within the <strong>National</strong> <strong>Transport</strong> Authority<br />

3) Preparing transport research and development programmes and budgets for<br />

existing institutions<br />

4) Inclusion <strong>of</strong> new technologies in the <strong>National</strong> <strong>Transport</strong> Multi Annual Plan<br />

including.....CTC. ITS, VMS etc.<br />

5) Use <strong>of</strong> vehicle tagging to locate stolen vehicles, track commercial vehicles and<br />

eventually provide metering for using PHN.<br />

Section 64.<br />

Streamlining <strong>Government</strong> <strong>Transport</strong><br />

The Central <strong>Transport</strong> Organisation has provided good service to the public sector for<br />

over 40 years during which time public sector employment has risen to over 130,000.<br />

The current fleet stands at nearly 11,000 vehicles <strong>of</strong> which LDVs and trucks account for<br />

70%. However, the cost to the taxpayer <strong>of</strong> the CTO has grown whilst the level <strong>of</strong> benefit<br />

has declined. In short the current CTO is no longer sustainable.<br />

In keeping with its overarching shift from supplier <strong>of</strong> services to policy making and<br />

strategic management, the <strong>Government</strong> will phase out CTO by 2017.<br />

1. Reduce public sector expenditure<br />

2. Improve the utilisation <strong>of</strong> vehicles used for public sector business<br />

3. Eliminate abuse<br />

4. Increase accountability<br />

The main actions that will be carried out<br />

1. Creation <strong>of</strong> a CTO task force to oversee the change<br />

2. CTO to broken up and assets privatised<br />

3. Develop and standard vehicle leasing contract for use by government <strong>of</strong>fices<br />

4. All <strong>Government</strong> departments to include vehicle leasing in their budgets that will<br />

be procured in accordance with regulations.<br />

5. The modalities for the privatisation will be worked out by the Minister<br />

6. All CTO land will be sold <strong>of</strong>f in the privatisation.<br />

Section 65.<br />

Advocating fair play<br />

Compensation is not always paid to passengers for losses and damages on public<br />

transport. There is no automatic third party liability for private cars. There is no<br />

requirement for Combi operators and others to provide passenger liability insurance. The<br />

MVA fund finances compensation rather than operators directly<br />

Botswana Airways will not provide automatic compensation <strong>of</strong> passengers for delays and<br />

may not provide recompense for loss or damage to property. Railway legislation does<br />

not provide for compensation to passengers<br />

The <strong>Government</strong> is aware that the rights <strong>of</strong> citizens have been neglected over a long<br />

period <strong>of</strong> time. This not only fails to align itself with our vision <strong>of</strong> a fair and just society but<br />

also undermines the confidence <strong>of</strong> potential investors. This <strong>Government</strong> advocates fair<br />

play in all areas <strong>of</strong> economic activity and intends to start with transport sector as it is one<br />

that supports all members <strong>of</strong> our society. <strong>Policy</strong> objectives are stated below:<br />

1) Reduce complaints, mishaps, losses, damages to passengers transport<br />

2) Ensuring that liability rests with those that are culpable<br />

3) Regionalisation <strong>of</strong> compensation rules<br />

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Botswana <strong>National</strong> <strong>Integrated</strong> <strong>Transport</strong> <strong>Policy</strong><br />

Examples <strong>of</strong> the initiatives that will be taken are given below:<br />

1) Automatic minimum levels <strong>of</strong> compensation for loss <strong>of</strong> property, injury, costs<br />

incurred through suboptimal operations for all modes <strong>of</strong> passenger transport<br />

2) Set up the position <strong>of</strong> <strong>Transport</strong> Ombudsman / Tribunal<br />

3) Automatic compensation for accidents cause through poor maintenance <strong>of</strong><br />

infrastructure covering potholes, poor road markings and sighting.<br />

4) Regulate for handling oil spills,<br />

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Botswana <strong>National</strong> <strong>Integrated</strong> <strong>Transport</strong> <strong>Policy</strong><br />

Freight <strong>Transport</strong> and<br />

Logistics <strong>Policy</strong><br />

Part 2.2.<br />

Meeting the needs <strong>of</strong> a changing economy<br />

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Botswana <strong>National</strong> <strong>Integrated</strong> <strong>Transport</strong> <strong>Policy</strong><br />

Article X. Developing Quality Services<br />

Section 66.<br />

Satisfying the growing demand for Freight <strong>Transport</strong> and<br />

Logistics Services<br />

There has been long awareness by <strong>Government</strong> <strong>of</strong> the factors that contribute to the<br />

particular market conditions that make freight transport expensive in Botswana. Firstly<br />

Botswana is import dependent; its domestic manufacturing base is small so opportunities<br />

for creating economies <strong>of</strong> scale in the provision <strong>of</strong> transport services are limited.<br />

Secondly its policy <strong>of</strong> reducing the cost <strong>of</strong> transport in trade through fuel subsidies has<br />

not helped induce efficiencies in the industry. Thirdly being landlocked and 1400 km from<br />

any major port poses additional costs to the economy that depresses investment and<br />

market expansion. Fourth, road transport accounts for a high proportion <strong>of</strong> long distance<br />

freight even though rail is potentially more cost effective over long distances. Fifth,<br />

Botswana does not have a history as a trading nation and experience <strong>of</strong> commerce is<br />

limited. Sixth, in the Global economy information flows are as important as flows <strong>of</strong><br />

cargo, but the quality <strong>of</strong> internet is poor. Seventh, regionalisation and globalisation will<br />

mean opening the doors to Botswana and having a more outward looking attitudes.<br />

Table 2 Road / Rail Freight Market Shares<br />

Market<br />

MT Share<br />

Road I,E,T<br />

9.50 85.59%<br />

Road Domestic 60.75 99.42%<br />

Road Total 70.25 97.29%<br />

Rail I,E,T<br />

1.60 14.41%<br />

Rail Domestic 0.36 0.58%<br />

Rail Total<br />

1.96 2.71%<br />

Total Freight Volume 72.20 100.00%<br />

The overall market for feight is clearly<br />

dominated by Road. The share <strong>of</strong><br />

import, expert and transit ( I,E,T) trade<br />

between Road and Rail is 86% and<br />

14% respectively. Rail should have a<br />

larger share <strong>of</strong> long distance freight.<br />

Contributing more to the domestic<br />

market is problematic owning to the<br />

shorter distances involved and the<br />

need to provide door to door services<br />

The <strong>Government</strong> does not support influencing the market share between road and rail<br />

unless it can be shown to be in the national interest and will phase out quantity<br />

regulations as exercised through the permit system. However, it will require that road<br />

freight transport becomes more aligned to higher operational norms and that the<br />

internalisation <strong>of</strong> external costs.<br />

The <strong>Government</strong> recognises that market conditions are created for an expansion <strong>of</strong><br />

domestic capacity. It recognises too, that conditions need to be created for new<br />

enterprises to flourish.<br />

The Ministries <strong>of</strong> <strong>Transport</strong> and Communications and Trade and Industry will work<br />

together to ensure that opportunities for expansion <strong>of</strong> local industry are fully supported<br />

with the freight and logistics services that are needed. To that end rail and maritime<br />

connectivity will be a priority for the next generation and communications will be<br />

improved to provide a fully integrated and coordinated response to market opportunities.<br />

Foreign freight and transport companies will be provided with incentives to relocate the<br />

centre <strong>of</strong> operations in Botswana provided bringing with it investment and infrastructure<br />

and equipment and new jobs.<br />

There are many objectives that must be achieved in order for this policy to be effectively<br />

implemented and for the country to benefit from improvements in freight transport.<br />

1) Eliminate all non-physical barriers to trade<br />

2) Promote regionalisation and integration.<br />

3) Botswana to become a regional centre <strong>of</strong> freight transport and logistics;<br />

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Botswana <strong>National</strong> <strong>Integrated</strong> <strong>Transport</strong> <strong>Policy</strong><br />

4) Promote a more progressive attitude to immigration and resettlement.<br />

5) Attract the right skills, investment, employment creating opportunities and<br />

demand led economic growth.<br />

6) Give priority for the development <strong>of</strong> manufacturing and added value industries<br />

that will stimulate demand for freight and logistics services.<br />

7) Increase the demand for rail freight and intermodal services.<br />

8) Improve connectivity to the Atlantic Seaboard to provide viable alternative trade<br />

route for the region.<br />

9) Reduce the sensitivity <strong>of</strong> trade to transport cost.<br />

10) Internet and communications to be improved.<br />

11) Encourage the rapid development <strong>of</strong> e-commerce to promote more optimisation<br />

<strong>of</strong> logistics chains and reduce the overall cost <strong>of</strong> transport in trade.<br />

Selections <strong>of</strong> the most important initiatives that will be taken to satisfy the increasing<br />

demand for freight transport are listed below:<br />

1) Provide incentives to companies for location <strong>of</strong> regional logistics and distribution<br />

in Botswana<br />

2) Promote the air cargo hub<br />

3) Establish and international freight and logistics village<br />

4) Align petrol and diesel fuel prices with the Regional Averages<br />

5) Provide targeted support for industry to improve transport services and<br />

especially rail connectivity through private sidings.<br />

6) Promote development <strong>of</strong> intermodal services<br />

7) Develop Trans Kalahari Railway and other significant projects on holistic and<br />

integrated basis, focusing on generating demand through corridor related<br />

development.<br />

8) Negotiate agreements for Botswana Truckers to operate in neighbouring<br />

countries.<br />

9) Promote open access agreements for railway operations and open skies<br />

agreements for air freighters<br />

10) Establish / Strengthen Freight transport consultative groups<br />

11) Extend the optic cable network for high speed internet to satisfy the demand for<br />

quality internet services.<br />

12) Promote e-commerce and other activities that fully exploit information technology<br />

through research information education and international expositions.<br />

13) Promote the use <strong>of</strong> electronic data<br />

Section 67.<br />

Raising the standard <strong>of</strong> Freight <strong>Transport</strong><br />

Botswana sits in a geographic centroid in Southern Africa, has an open door policy to<br />

investment, free movement <strong>of</strong> finance and yet indigenous transport industries are under<br />

developed, have a low regional market share and fail to compete with services provided<br />

by some neighbouring countries.<br />

The Freight transport industry has not attracted the level <strong>of</strong> private investment that it<br />

should have in order to enhance its services. Furthermore, being a large and landlocked<br />

country Botswana is even more dependent than many countries, on the efficiency and<br />

effectiveness <strong>of</strong> both domestic and international freight transport operations.<br />

Similarly there is little understanding <strong>of</strong> the subject <strong>of</strong> logistics, so the scope for adding<br />

value to basic freight services is limited. The Minister <strong>of</strong> <strong>Transport</strong> and Communication<br />

will be responsible for enhancing the quality <strong>of</strong> the freight transport industry by<br />

developing a strategy for improvement in close collaboration with the industry and users<br />

and through employing a range <strong>of</strong> instruments and incentives such as MMT operator<br />

licensing, tax incentives to investors and investment as well investment in transport<br />

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Botswana <strong>National</strong> <strong>Integrated</strong> <strong>Transport</strong> <strong>Policy</strong><br />

infrastructure and communications. The key objectives that will drive the policy to raise<br />

the standard <strong>of</strong> freight transport are given below:<br />

1) Creating conducive market conditions for freight transport industry to flourish<br />

2) Incremental removal <strong>of</strong> all non-physical barriers to trade.<br />

3) Prioritise development <strong>of</strong> indigenous logistics and value added services<br />

4) Improving the efficiency and effectiveness <strong>of</strong> freight transport and logistics<br />

5) Promoting multi-modal transport operations<br />

6) Promote a better understanding <strong>of</strong> logistics<br />

7) Privatise state freight transport enterprises, such as Gabcon.<br />

8) Strengthening the capacity <strong>of</strong> the domestic freight transport and logistics industry<br />

including customer liaison committees<br />

9) Improving the quality <strong>of</strong> information provided to customers<br />

The main initiatives that will be taken to implement the policy are summarised as follows:<br />

1) Establish a freight transport and logistics directorate in the Ministry <strong>of</strong> <strong>Transport</strong><br />

and Communications<br />

2) Establish Multi Modal <strong>Transport</strong> Operator Licensing so that a single operator<br />

carries the full liability for the door to door service.<br />

3) Work with the Freight <strong>Transport</strong> Industry to promote logistics services through<br />

better information conferences etc<br />

4) Providing fiscal and other incentives to diversify the freight and logistics industry<br />

5) Incorporate freight and logistics projects and measures in transport plans.<br />

6) Promote one-stop-shop and similar concepts and provide better market<br />

information to investors<br />

7) Establish high speed internet services<br />

Section 68.<br />

Moving forward with logistics<br />

Logistics is not appreciated, understood or developed in Botswana and the region.<br />

Logistics supply chains are not efficient or effective being influenced by many factors that<br />

reduce the competitiveness <strong>of</strong> Botswana and the region. Strategies that are based on<br />

achieving high flows <strong>of</strong> freight through the country may not be in the national interest.<br />

Logistics being defined as the management <strong>of</strong> processes that link the production <strong>of</strong><br />

goods to their consumption through planning and implementation <strong>of</strong> the flow and storage<br />

<strong>of</strong> goods and related information – is at a low level in the SADC region.<br />

The <strong>Government</strong> recognises that the economy is regionalising and globalising and that<br />

Botswana must identify, establish and exploit its competitive advantage if it is to continue<br />

to grow. The lack <strong>of</strong> logistics industry in the region poses both a threat to economic<br />

growth whilst providing a significant opportunity for Botswana to become a regional<br />

logistics hub.<br />

In doing so the <strong>Government</strong> appreciate that it is not necessarily in the national interest to<br />

simply encourage the diversion <strong>of</strong> freight through the country, especially when the<br />

country derives no benefit from it, but instead to attract those logistics services providers<br />

that, through the medium <strong>of</strong> contemporary information technology, that are able to add<br />

value to freight transport where ever it may occur in the region and globally and generate<br />

economic benefits in Botswana through the exercise <strong>of</strong> logistic management. In doing so<br />

the MoTC will set out, implement and monitor a strategy to improve the regional<br />

positioning <strong>of</strong> Botswana with respect to logistics, that will eradicate all impediments and<br />

bottlenecks in the logistics chain that relates to national and regional economic interests<br />

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Botswana <strong>National</strong> <strong>Integrated</strong> <strong>Transport</strong> <strong>Policy</strong><br />

The main objectives to be achieved in by implementing the policy include...<br />

1) Improve overall understanding <strong>of</strong> logistics<br />

2) Reduce impediments in the logistic chain<br />

3) Encourage logistics service providers and integrators to locates their regional<br />

bases in Botswana<br />

4) Encourage the diversion <strong>of</strong> regional freight through Botswana only if it is in the<br />

national interest.<br />

5) Increase the proportional volume and value <strong>of</strong> B2B transactions taking place in<br />

Botswana<br />

6) To obtain real cost savings, through improving and integrating logistics.<br />

There are a wide range <strong>of</strong> measures and initiatives that will need to be taken in order to<br />

provide conditions for logistics services to flourish.<br />

1) The <strong>Government</strong> will set out to ensure that the science and practice <strong>of</strong> logistics<br />

is covered comprehensively at its places <strong>of</strong> higher education.<br />

2) Ratify and implement international conventions on the application <strong>of</strong> Electronic<br />

Data Interchange, Electronic Funds Transfer and Electronic Payment Operating<br />

Systems.<br />

3) That the principles <strong>of</strong> Advanced Manufacturing Technology will be applied<br />

4) That the International Commercial Terms ( INCOTERMS) benchmarking will be<br />

applied and that logistics standards will be applied<br />

5) That the performance <strong>of</strong> logistics chains will be closely monitored by the Ministry<br />

<strong>of</strong> <strong>Transport</strong> and Communications in cooperation with other ministries<br />

Section 69.<br />

Infrastructure and Networks<br />

Road Railways, Aviation and Marine transport are not planned in an integrated way,<br />

Inter-modality between modes is lacking, Interoperability within networks is under threat<br />

and needs protection, there are bottlenecks at borders, ports and in urban areas, there<br />

remain missing links, river crossings and alternative routes to be developed. Moreover,<br />

harmonised technical standards are not implemented throughout the region, logistics<br />

chains are not efficient, interchanges are not user friendly or efficient and networks need<br />

protection from illegal practises.<br />

Historically Botswana has been the end <strong>of</strong> the line, not a part <strong>of</strong> a regional transport<br />

system that benefits both nation and region alike. But over the last 10 years or so the<br />

country has seen an increasing volume <strong>of</strong> international trade passing through its territory<br />

and the opportunities that arise from this.<br />

Improvements made over the last 40 years have seen the national road network grow<br />

from about 100 km <strong>of</strong> paved roads to over 8,000 km today. The railway network has also<br />

grown little following take-over from <strong>National</strong> Railways <strong>of</strong> Zimbabwe in 1986 but its<br />

market share has reduced considerably from 60% in 1970 to around 10% today.<br />

The current use <strong>of</strong> the transport network is far from optimum and it understood that a<br />

more holistic approach is needed. The Ministry <strong>of</strong> <strong>Transport</strong> will set out its strategy for<br />

improving freight transport in a <strong>National</strong> <strong>Integrated</strong> <strong>Transport</strong> Master-Plan. It shall be<br />

mandatory for all the owners <strong>of</strong> transport networks to contribute information to ensure<br />

that the plan is comprehensive and kept up to date to meet ever changing future needs.<br />

The Master plan will prioritise initially on improving access to rural areas, improving<br />

national and international connectivity through certain key projects. The Plan will also<br />

include the measures needed to improve operations and management. It will also create<br />

more user friendly railway road access points to promote inter-modality. But it is also<br />

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Botswana <strong>National</strong> <strong>Integrated</strong> <strong>Transport</strong> <strong>Policy</strong><br />

recognised that logistics chains also need excellent communications infrastructure and<br />

so high speed internet will be developed over the next 3 to 5 years so that information<br />

flows will be appropriate to 21 st century business which will encourage investment and<br />

create jobs.<br />

The principle objectives that will drive this policy are as follows:<br />

1) To improve the connectivity and access to markets in rural areas to preserve<br />

and enhance rural economy<br />

2) To fill in the missing links in the <strong>National</strong> network<br />

3) To improve international connectivity in the main regional transport corridors<br />

4) Improve access to shipping on the Atlantic<br />

5) Improve efficiency at border crossings,<br />

6) Promoting common SACU / SADC customs data base<br />

7) Promote inter-modality.<br />

8) Create conditions for railways to increase its market share<br />

The main initiatives that will be implemented that will improve freight transport networks<br />

are summarised as follows:<br />

1) Create and keep up-to- date a national freight transport data base to provide<br />

planners and investors with the information that is needed to improve logistics<br />

networks.<br />

2) Establish integrated logistics hubs combining road, rail and air with excellent<br />

communications<br />

3) Complete Kazungula road railway crossing and the missing railway links<br />

provided they are feasible.<br />

4) Construct a new corridor to the Atlantic ensuring railways are fully interoperable<br />

and the investment has a positive economic benefit to the nation.<br />

5) Take a controlling interest in an Atlantic Port and develop interests in shipping.<br />

6) Provide land and incentives to construct an international freight and logistics<br />

villages focusing on international trade – especially export consolidation,<br />

international logistics and other value added services. Provide 5 year tax breaks<br />

for investors.<br />

7) Construct intermodal terminals at key locations to encourage trucks to use rail<br />

for long haul.<br />

8) Convert border crossings to one stops in the short term and incrementally<br />

eliminate border crossings in the longer term towards full regional integration<br />

Section 70.<br />

Towards self-regulation and increasing responsibility<br />

The road freight industry has been provided by the private sector for many years and has<br />

grown rapidly. Railway freight remains government owned, though Botswana Railways is<br />

required to run its business on commercial grounds. Air Cargo is provided by both<br />

private and public enterprises, although there are no dedicated air caro services<br />

operating in Botswana. This mixture <strong>of</strong> modes and ownership has led to differences in<br />

standards.<br />

But the industry itself does little to self regulate, control its operators improve its<br />

standards. Technical standards are too variable, the age <strong>of</strong> road and rail vehicles are too<br />

old modern control systems are slow in being taken up by the industry. Hours <strong>of</strong> driving<br />

are not effectively controlled resulting in serious accidents, whereas the hours <strong>of</strong> train<br />

drivers and pilots are rigorously enforced.<br />

Overloading <strong>of</strong> trucks remains a problem causing enormous damage to road<br />

infrastructure and putting lives at risk. Loading <strong>of</strong> trains and airoplanes is rigorously<br />

applied.<br />

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There is lack <strong>of</strong> road- side services, good information and signage on the road, rail<br />

freight services have yet to make their full contribution and air cargo services have yet ot<br />

take <strong>of</strong>f.<br />

The <strong>Government</strong> recognise that these differences are not in the interests <strong>of</strong> customers<br />

and do not provide a level playing field in which freight transport market can develop.<br />

Overall, the mixed approach to controlling each mode <strong>of</strong> transport separately does not<br />

ensure that transport services are as safe, secure and reliable as they should be. The<br />

cornerstone <strong>of</strong> this transport policy is to integrate its legislation and regulations so that<br />

standards are harmonised and raised across the freight transport industry as a whole, to<br />

make sure that the customer is well protected, and the risks <strong>of</strong> doing business in<br />

Botswana and the wider region are minimised.<br />

The <strong>Government</strong> also recognise that the levels <strong>of</strong> service provided to road users are not<br />

as good as they should be. Truckers have to drive huge distance before they can rest,<br />

signs are poor and on-line information about driving conditions non-existent. The<br />

<strong>Government</strong> will work through its <strong>National</strong> <strong>Transport</strong> Authority to ensure that driving<br />

environment is customer orientated, rest areas are frequently located along the main<br />

roads and well constructed and provide amenities to high standards. Similarly road signs<br />

and customer information must also be improved.<br />

The Minister responsible for transport will set up and chair a Freight <strong>Transport</strong><br />

Association that will oversee and monitor the changes that <strong>Government</strong> intends. These<br />

changes will be driven by the following objectives:<br />

1) The freight transport industry will be self-regulating as far as possible<br />

2) The government will ensure that there is always sufficient protection for the<br />

consumer<br />

3) Regulations will be better enforced by the police and the industry will be made to<br />

control itself through self-regulation.<br />

4) Technical standards will be raised for infrastructure and vehicles to improve<br />

safety reliability and efficiency.<br />

5) Operating standards will be raised, limiting drivers hours to 4 hours between<br />

breaks and 10 hours in one working day; maximum speeds limited to 80 kph<br />

6) Operating conditions will be improved along major routes, road side services will<br />

be constructed every 50 km.<br />

7) The Industry will be required to fully inform the Authorities to provide better<br />

information for planning services.<br />

These objectives will be achieved through implementation <strong>of</strong> the following initiatives<br />

1) A freight transport charter will be prepared that sets out the conditions for the<br />

road freight industry providing the framework for customers, partnership with the<br />

authorities.<br />

2) A Freight <strong>Transport</strong> Association to be set up to improve integration between road<br />

rail and air transport and to harmonise standards.<br />

3) The police will be better trained and equipped to enforce driver and technical<br />

standards.<br />

4) All new road vehicles will be equipped with tachometers by 2016 and all vehicles<br />

by 2020.<br />

5) All road Vehicles will also be fitted with anti speeding and overloading equipment<br />

by 2020<br />

6) New technology that tracks vehicles using geographical positioning systems will<br />

be introduced when it becomes available.<br />

7) New high quality roadside services will be developed along the A1, A2, A3, and<br />

A4 in partnership with the private sector.<br />

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8) Signs and operating information will be improved and traffic information will be<br />

provided on the radio through a dedicated channel<br />

Article XI. Lowering the Cost<br />

Section 71.<br />

Benefiting All<br />

<strong>Transport</strong> costs account for between 30% and 50% <strong>of</strong> the retail price <strong>of</strong> commodities<br />

while trade imbalances increase the overall cost <strong>of</strong> trade. Furthermore, small domestic<br />

market sizes, leads to lack <strong>of</strong> economies <strong>of</strong> scale which contributes to higher freight<br />

transport costs. The economic benefits <strong>of</strong> investments in transport have not always been<br />

realised leading to higher freight costs which mean that transport networks may not be<br />

sustainable at the current levels <strong>of</strong> transport demand.<br />

We all depend on systems <strong>of</strong> freight transport and, through the price we pay for goods in<br />

the shops, we all have to pay for it. It is everybody’s interests to reduce the cost <strong>of</strong><br />

transport where ever possible. <strong>Transport</strong> costs are increasing and so is the price <strong>of</strong><br />

goods in the shops. The <strong>Government</strong> is not always convinced that such high price<br />

increases are always justified. At the same time there is not sufficient demand to ensure<br />

the sustainability <strong>of</strong> the transport network that has been developed over the years.<br />

Understanding <strong>of</strong> the relationship between transport and the economy is crucial to<br />

improving the management <strong>of</strong> the sector. Rail transport is inherently less costly than<br />

road over long distances, yet for various reasons rail has limited volumes <strong>of</strong> general<br />

freight. This is why the <strong>Government</strong> will through the Ministry <strong>of</strong> <strong>Transport</strong><br />

Communications take steps to ensure that freight transport costs are contained in the<br />

short term and reduced in long term.<br />

The main policy objectives that will drive the realisation <strong>of</strong> the policy are as follows:<br />

1) Improve information to decision makers on the cost and performance <strong>of</strong> freight<br />

transport<br />

2) Reduce freight transport costs<br />

3) Increase exports <strong>of</strong> goods to redress the trade imbalance<br />

4) Improve economies <strong>of</strong> scale by encouraging concentration <strong>of</strong> activities at hubs<br />

5) Increasing the size <strong>of</strong> the domestic market though economic growth<br />

6) Increase the overall demand for freight transport services<br />

Most <strong>of</strong> the initiatives that will drive the policy forward will eminent from the private<br />

sector, those that <strong>Government</strong> will take are summarised as follows:<br />

1) The <strong>National</strong> <strong>Transport</strong> Authority to set up indicators <strong>of</strong> transport costs for each<br />

type <strong>of</strong> freight traffic and publish quarterly<br />

2) Support the expansion <strong>of</strong> freight consolidation services for export.<br />

3) Promote Brand Botswana – with respect to Freight <strong>Transport</strong><br />

4) Encourage transport operators to price services at the marginal level –<br />

especially for return loads<br />

5) Permit the operation <strong>of</strong> mixed passenger and freight services.<br />

Section 72.<br />

Leveling the playing field<br />

It has long been recognised that road, rail and air operate under quite different market<br />

conditions which has led to distortions and possibly higher costs. Rail is a self-contained<br />

or closed system which includes vehicles; infrastructure and traffic control under one<br />

management. Enforcement is by special police and safety is highly important. For rail,<br />

prices for freight and passenger transportation are meant to recover all <strong>of</strong> the costs.<br />

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Aviation has different vehicle operators, owners <strong>of</strong> terminals and traffic control agencies.<br />

Enforcement is by international convention to the highest <strong>of</strong> safety and security<br />

standards. Pricing policy for passengers and air cargo is strictly commercial. Road<br />

operations, infrastructure, traffic control are separately owned and controlled, safety and<br />

security is extremely poor and operating standards highly variable. Users do not pay for<br />

the costs <strong>of</strong> providing infrastructure or traffic control.<br />

The <strong>Government</strong> is committed to taking steps to level the playing field between all<br />

modes <strong>of</strong> transport to improve the competitiveness <strong>of</strong> freight transport. Equally the<br />

government policy is that all freight transport shall be commercially self sustaining, and<br />

only under exceptional circumstances will government provide direct financial support.<br />

When the government is satisfied that the market status is equitable for all modes <strong>of</strong><br />

transport it will minimise its intervention in terms <strong>of</strong> price controls and encourage all<br />

freight operators to price its services according to market conditions.<br />

The policy objectives that are needed to create more equitable market conditions are as<br />

follows:<br />

1) Charges for using infrastructure shall be on the same basis for all modes <strong>of</strong><br />

transport.<br />

2) Freight transport by all modes shall be financially self sustaining and will not<br />

normally be eligible for government support.<br />

3) Tariffs / Prices to be determined by market forces.<br />

4) State intervention in pricing freight services is minimised.<br />

5) Freight price control and intervention expedited only in cases <strong>of</strong> emergencies<br />

and national security.<br />

6) Competition will be encouraged, but monopolistic practises, where they are<br />

perceived to exist, will be deterred.<br />

7) Similarly practises <strong>of</strong> price discrimination will be considered an <strong>of</strong>fence and will<br />

be penalised.<br />

Some <strong>of</strong> the initiatives to be taken level the playing field include but are not limited t the<br />

following:<br />

1) Post <strong>of</strong> Freight <strong>Transport</strong> Regulator to be created within the <strong>National</strong> <strong>Transport</strong><br />

Authority to ensure fair competition, receive and take action on complaints,<br />

monitor the functioning <strong>of</strong> the market, take action where monopolistic and<br />

restricted practises are identified.<br />

2) Guidelines for the intervention <strong>of</strong> <strong>Government</strong> in freight transport market and<br />

pricing.<br />

3) Guidelines to the police on the harmonisation <strong>of</strong> standards <strong>of</strong> enforcement<br />

across the freight transport industry<br />

4) Providing the public with better information on transport costs<br />

5) Rules for Cabbotage modified and finally eliminated as SADC regionalisation<br />

advances<br />

Section 73.<br />

Stimulating Investment<br />

Generally foreign direct investment in freight transport is less than would be expected for<br />

a safe and secure developing country with a good credit rating. Legislation is not<br />

sufficiently robust enough to permit public infrastructure to be privately owned and<br />

operated. Conditions need to be improved to attract investment especially removing<br />

barriers and simplifying procedures. Public sector investment in transport has generally<br />

not provided adequate returns due to both lack <strong>of</strong> demand, poor project management<br />

and spiralling costs.<br />

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The public sector has been responsible for almost all investment in freight transport<br />

infrastructure in the past 50 years and has little experience in attracting private<br />

investment for large projects.<br />

<strong>Government</strong> preference is for the private sector to invest wherever the project is<br />

commercially viable, in doing so there is recognition that in a developing economy with a<br />

relatively small domestic market, the government may need to provide financial support.<br />

An essential ingredient is to have good information regarding the domestic market and a<br />

long term perspective <strong>of</strong> the investments that are needed. To this end the Ministry <strong>of</strong><br />

<strong>Transport</strong> shall ensure that freight transport projects and important related measures are<br />

included in a 5 year Multi- Annual Plan.<br />

International projects promise good returns for investors but they are put <strong>of</strong>f because<br />

they are have greater risks. To minimise these risks, the <strong>Government</strong> will work with its<br />

neighbours and in SADC to create good conditions for cross border investment.<br />

Overall the government appreciates that investment in freight transport infrastructure is a<br />

means to an end, intended to leverage far greater private sector investment and create<br />

employment.<br />

Objectives that will be achieved through the implementation <strong>of</strong> this policy include:<br />

1) Increased private investment in freight transport.<br />

2) Ensuring that public investment leverages more private investment<br />

3) Participate in PPP schemes for freight and logistics infrastructure only where<br />

there is a social and economic case to do so.<br />

4) Creating good conditions internationally where business consortia may be<br />

formed to own, invest and operate cross border projects.<br />

5) Providing for state owned enterprises, such as BR, BA and the future Roads<br />

Authority<br />

To directly generate Investment, buy and sell land and other assets and invest in<br />

businesses.<br />

The main actions and measures that are expected include:<br />

1) Ensuring that the 5 year multi-annual plan (MAP) clearly identifies the<br />

investment opportunities.<br />

2) Include terminals and equipment in the MAP<br />

3) Reducing risk for private investment through elimination <strong>of</strong> non-physical barriers<br />

to trade.<br />

4) Participate as business partner with the <strong>Government</strong> <strong>of</strong> Namibia and the private<br />

sector in the development <strong>of</strong> the Trans-Kalahari Railway and Development<br />

Project<br />

5) Prepare international agreements between neighbouring countries that pave the<br />

way for cross border investment<br />

6) Carefully monitor the market and evaluate the results <strong>of</strong> investment projects in<br />

freight transport and logistics.<br />

Section 74.<br />

Managing better<br />

The management <strong>of</strong> transport infrastructure in Botswana is affected by low traffic<br />

densities and revenues, high unit costs. Generally traffic costs are not calculated based<br />

on marginal costs principles. Fleet management suffers with low load factors due to<br />

preponderance <strong>of</strong> one-way consignments. Sector management suffers from a confusion<br />

<strong>of</strong> social and economic objectives, where social obligations to generate jobs conflicts<br />

with providing customers with good value. Arising from the relatively small market size,<br />

Botswana lacks opportunities for making economies <strong>of</strong> scale. The road freight transport<br />

industry suffers from an excess <strong>of</strong> one-man, one-vehicle own-account hauliers; Rail-<br />

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freight services are a monopoly; Air Cargo is underdeveloped and underachieving,<br />

multimodal services hardly exist, Gabcon handles only 2 trains per week.<br />

Management <strong>of</strong> supply chains and the transport elements that are included in them is<br />

becoming more sophisticated. The role <strong>of</strong> management is to minimise economic<br />

distance, tailoring services to customer needs, selecting the right carrier and supervising<br />

the process. Consignees know the increasing costs <strong>of</strong> high inventories held to buffer the<br />

effects <strong>of</strong> unreliable transport and are prepared to pay more for reliability than speed.<br />

Customers, not government, will drive better management <strong>of</strong> the industry.<br />

The <strong>Government</strong> no longer sees itself as the providers <strong>of</strong> services but as strategic<br />

managers in which services are provided by others; no longer the providers <strong>of</strong> jobs but<br />

the creators <strong>of</strong> opportunities for employment, no longer the protectors <strong>of</strong> domestic<br />

markets but advocates <strong>of</strong> a regional common market, and no longer a treasury for<br />

financing projects but facilitators’ <strong>of</strong> private investment. In doing so, <strong>Government</strong> will<br />

create a much stronger partnership with the Freight <strong>Transport</strong> Industry to understand its<br />

needs and support its goals.<br />

Clearly the <strong>Government</strong> role is to interfere as little as possible in the detailed functioning<br />

<strong>of</strong> the supply chain but to create a vibrant market through diversification and<br />

specialisation. Management <strong>of</strong> logistics will improve as the market increases and<br />

customer choice widens. Objectives to be achieved through this policy include:<br />

1) Maximise new opportunities regional transport for domestic road hauliers.<br />

2) De-monopolise Railway <strong>Transport</strong><br />

3) Improve economies <strong>of</strong> scale in air cargo<br />

4) Improve the efficiency and pr<strong>of</strong>itability <strong>of</strong> interchanges.<br />

5) Increase the average fleet size and reduce the age <strong>of</strong> vehicles.<br />

6) Encourage vehicle leasing and lease financing.<br />

7) Increase new employment opportunities in logistics industries<br />

8) Improve management competency through supply <strong>of</strong> information and advice.<br />

Initiatives selected to improve management are summarised as follows:<br />

1) Scrap the permit system for international road haulage.<br />

2) Restructure Botswana Railways separating operations from infrastructure<br />

3) Set up the Air Cargo hub as a free port, with no duties or taxes to pay<br />

4) Outsource management <strong>of</strong> freight interchanges<br />

5) Outsource the management <strong>of</strong> weighbridges<br />

6) Reduce the unit costs <strong>of</strong> vehicle licences according to fleet size<br />

7) Encourage transport managers to apply marginal cost pricing theory especially<br />

with respect to diversification strategy<br />

8) Publish advisory pamphlets to improve transport management.<br />

Article XII. Caring for the future<br />

Section 75.<br />

Greening <strong>Transport</strong><br />

Although efficient freight transport is essential to a healthy economy it cannot be at the<br />

expense <strong>of</strong> the quality <strong>of</strong> life. The role <strong>of</strong> the government is to achieve balance. Through<br />

its ratification <strong>of</strong> a number <strong>of</strong> international conventions concerning the environment its<br />

vision is clear that the quality <strong>of</strong> life, safety and security <strong>of</strong> it citizens is paramount.<br />

Unfortunately decisions made in the past have not been so focused with the result that<br />

for many, the impact <strong>of</strong> freight transportation has not been greater than the benefits<br />

obtained from it. The planning <strong>of</strong> urban freight is non-existent, heavy vehicles cause<br />

considerable damage to roads and street furniture, cause noise dust and pollution. For<br />

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long distances rail is recognised as being less harmful to the environment, though it<br />

share <strong>of</strong> the market is very small.<br />

The <strong>Government</strong>, through the Ministry <strong>of</strong> <strong>Transport</strong> and Communications will take steps<br />

to put each mode <strong>of</strong> transport on an equal footing by ensuring that environmental costs<br />

are recovered through taxes and duties from those that generate them.<br />

In the medium term the higher standards <strong>of</strong> environmental protection and cost recovery<br />

will be harmonised throughout the region. But in the longer term, minimising global<br />

warming is expected to increasingly influence our strategies and optimising logistics<br />

chains to minimise the production <strong>of</strong> GHGs will become paramount. <strong>Policy</strong> objectives are<br />

summarised below:<br />

1) Reduce the relative volume <strong>of</strong> local and GHG emissions from freight transport<br />

2) Encourage the movement <strong>of</strong> regional freight transport only if the people <strong>of</strong><br />

Botswana will benefit from it.<br />

3) Route heavy goods vehicles away from sensitive urban areas and limit<br />

operations to certain times.<br />

4) Concentrate major road haulage activities into fewer areas<br />

5) Reduce the average age <strong>of</strong> the fleet <strong>of</strong> goods vehicles.<br />

6) Raise the standards <strong>of</strong> vehicle testing including emission standards.<br />

7) Transit traffic should only be encouraged provided it pays fully for the costs that<br />

are generated<br />

8) Encourage long distance movement <strong>of</strong> freight to be by rail.<br />

9) Reduce the high proportion <strong>of</strong> empty back haul movements.<br />

10) Internalise the external costs <strong>of</strong> environmental damage through application <strong>of</strong><br />

road user charges.<br />

Some <strong>of</strong> the projects and measures needed to implement the policy are listed below.<br />

The <strong>Government</strong> expected the private sector to contribute significantly to ‘greening’ the<br />

industry.<br />

1) Review pending decisions and development plans on the locations <strong>of</strong> heavy<br />

vehicle generating activities with respect to routing and its environmental impact.<br />

2) Ensure that land use and transport plans locate concentrations <strong>of</strong> HGV activity<br />

away from sensitive urban areas and provide for an adequate network lorry<br />

routing<br />

3) Change technical standards and promote the Green Lorry; urban public service<br />

vehicles to become electric in the future.<br />

4) Align vehicle taxes to engine size and emission levels<br />

5) Align the penalties for overloading to the damage caused<br />

6) Relocate freight interchanges away from city centres – establish a new freight<br />

village for Gaborone New freight developments such as TKR must satisfy the<br />

requirements <strong>of</strong> strategic environmental assessments (SEA) – whether private or public.<br />

7) Developers <strong>of</strong> freight generating activities must pay for the cost <strong>of</strong> all connecting<br />

transport infrastructure<br />

Section 76.<br />

Empowering Customers<br />

Customers assume too many risks in the movement <strong>of</strong> their goods. Compensating<br />

freight transport customers from damage, loss and delay is problematic. Customers<br />

invariably have to take action themselves to obtain redress. Conditions <strong>of</strong> carriage <strong>of</strong><br />

goods are not regionalised and there is no independent body that take up cases.<br />

Expeditors, integrators, logistics services providers may not assume legal liability and<br />

multimodal service providers do not assume door to door liability as they must. Cost<br />

Insurance Freight CIF is higher than they should be due partly to higher insurance.<br />

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There is general agreement that the Freight <strong>Transport</strong> industry can do more to improve<br />

the relations with customers and in particular with providing and upholding guarantees <strong>of</strong><br />

performance. Delays and damage to goods may cost the customer dearly and it is<br />

understood that each customer has his own requirements and will insure against losses,<br />

but equally it is clear that it is <strong>of</strong>ten difficult for customers to receive basic compensation<br />

for losses incurred while good are in transit. The <strong>Government</strong> will ensure that that this<br />

situation is addressed and will empower a freight transport regulator within the <strong>National</strong><br />

<strong>Transport</strong> Authority to ensure that the basic rights <strong>of</strong> customers are upheld and<br />

compensation is provided.<br />

The <strong>Government</strong> also appreciates that common conditions <strong>of</strong> the carriage <strong>of</strong> goods<br />

does not exist in SADC and that the lack <strong>of</strong> such common conditions is barrier to trade<br />

and impediment to economic development. This includes regulations with respect to<br />

compensation and redress. The <strong>Government</strong> will ensure that progress is made to<br />

harmonise regulations as a part <strong>of</strong> the process <strong>of</strong> regionalisation.<br />

The <strong>Government</strong> is also aware that Costs Insurance Freight (CIF) is higher than it should<br />

be due to the perceived risks <strong>of</strong> freight transport in the Region. The level <strong>of</strong> CIF is good<br />

indicator <strong>of</strong> the effectiveness <strong>of</strong> freight transport policy. The main objectives <strong>of</strong> the policy<br />

are as follows:<br />

1) Provide automatic compensation to customers <strong>of</strong> losses, damage caused to<br />

goods or delays in transit from those with whom the contract for transport has<br />

been made.<br />

2) Provide for door to door liability by multi modal operators<br />

3) Reduce CIF costs insurance freight<br />

To implement the policy the <strong>Government</strong> will...<br />

1) Prepare common conditions for the carriage <strong>of</strong> good to be applied to all freight<br />

transport services – irrespective <strong>of</strong> mode<br />

2) Ensure that transport companies carry appropriate insurance and that funds will<br />

be available to provide compensation<br />

3) Provide for independent powers <strong>of</strong> adjudication in matters <strong>of</strong> compensation by<br />

the <strong>National</strong> <strong>Transport</strong> Authority<br />

4) Work with the industry to provide a customer’s charter that sets out their rights<br />

and obligations.<br />

5) Establish and support a <strong>National</strong> Freight <strong>Transport</strong> Association to provide<br />

comprehensive self-regulation <strong>of</strong> the industry<br />

6) Set up Multi-Modal operator licensing<br />

7) Monitor CIF<br />

Section 77.<br />

Saving lives, creating fairness<br />

The pr<strong>of</strong>itability <strong>of</strong> the road freight industry seems to be based on institutionalised unsafe<br />

practises, including excessive driving hours, overloading and speeding. Vehicles are<br />

aging, not properly maintained and inadequately certified by authorised testing centres.<br />

Furthermore the roads infrastructure is deteriorating and in an increasingly dangerous<br />

condition.<br />

Enforcement across the entire spectrum <strong>of</strong> road transport is lacking. By contrast other<br />

modes <strong>of</strong> transport are much safer and the lack <strong>of</strong> attention to safety in road transport is<br />

in stark contrast to the other modes <strong>of</strong> transport. The government appreciates that this<br />

not only presents an unfair advantage to road transport, it does so at a cost to the<br />

community at large.<br />

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Botswana <strong>National</strong> <strong>Integrated</strong> <strong>Transport</strong> <strong>Policy</strong><br />

The Minister responsible for transport will be charged with the task <strong>of</strong> ensuring that high<br />

safety standards <strong>of</strong> safety are applied to all modes <strong>of</strong> transport. The Minister will be<br />

expected to advise parliament <strong>of</strong> the progress made in improving the safety in freight<br />

transport and in achieving the following objectives.<br />

1) Reduction in the average age <strong>of</strong> freight vehicles<br />

2) Reduction in driver hours and effectively enforce<br />

3) Improvement in response times to repair defects in infrastructure<br />

4) Elimination <strong>of</strong> competitive advantage gained through unsafe practices<br />

Actions that will be taken to implement the policy include the following:<br />

1) Improved levels <strong>of</strong> policing <strong>of</strong> technical and operating standards, heavier fines.<br />

2) Improved levels <strong>of</strong> inspection for vehicle testing centres<br />

3) Tachometers fitted to new freight vehicles<br />

4) New breaking and antiskid technology, and speed limiters to be standard<br />

equipment in commercial vehicles<br />

5) Fleet renewal through quality licensing system<br />

6) Enforce the RTA with respect to illegal passenger transportation.<br />

7) Ensure all transport organisations have safety <strong>of</strong>fice and safety strategy and<br />

safety plan before awarding licences<br />

8) Similarly infrastructure providers such as Road Authority, Railways Track<br />

Authority and Airports Authority.<br />

Figure 9 Petro-chemical deposit in down town Gaborone<br />

Scores <strong>of</strong> tankers line-up every day in the city centre to collect petrol and diesel for distribution<br />

throughout the area. With increasing traffic, the probability <strong>of</strong> a major accident rises occurring. It is<br />

a disaster waiting to happen. With enhancing property values there is mounting pressure on this<br />

and similar land to be more appropriately developed. Long term and better land use planning will<br />

reduce conflict and make better use <strong>of</strong> scare land resources.<br />

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Roads Sub-Sector<br />

<strong>Policy</strong><br />

Part 3.1.<br />

Raising standards, sharing the cost<br />

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Botswana <strong>National</strong> <strong>Integrated</strong> <strong>Transport</strong> <strong>Policy</strong><br />

Figure 10 The Public Highway Network<br />

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Botswana <strong>National</strong> <strong>Integrated</strong> <strong>Transport</strong> <strong>Policy</strong><br />

Article XIII. Improving the way roads are planned<br />

Section 78.<br />

Meeting the Needs <strong>of</strong> Road Users<br />

Generally experience has shown that the correlation between economic and social<br />

well being and the development <strong>of</strong> roads is not self- evident. The economy has grown<br />

driven by the production <strong>of</strong> diamonds, which is not so dependent on road transport.<br />

On the other hand agricultural contribution to GDP has fallen from 42% in 1966 to just<br />

1.9% in 2009 despite the increase in rural roads. Furthermore, improving access may<br />

have contributed more to urbanisation than improving the rural economy.<br />

Figure 11 Average daily traffic flow on paved and unpaved roads 2008<br />

Undoubtedly the road network has<br />

contributed significantly to the quality <strong>of</strong><br />

life <strong>of</strong> most citizens, as evidenced by<br />

improvement in all development indictors.<br />

But 94% <strong>of</strong> the PHN has less than 500<br />

vehicles per day which is indicative that<br />

the contribution <strong>of</strong> the PHN to social and<br />

economic development is less than might<br />

have been expected.<br />

The Public Highway Network, that<br />

comprises roads that are adopted by the<br />

State as defined in the Public Roads Act,<br />

comprises Trunk Roads, Secondary<br />

Roads, Tertiary Roads and Access Roads. The total length <strong>of</strong> the PHN is 20,208 km.<br />

Table 3 PHN by road type 2011<br />

Road Type All Roads Road <strong>Transport</strong> Development shall be in<br />

km % accordance with the economic and social<br />

Paved roads 7,892 39% objectives determined by government as<br />

Unpaved roads<br />

Sub-total<br />

source IBRM S 07/2011<br />

12,316<br />

20,208<br />

61%<br />

100%<br />

published in programmes from time to time. Such<br />

need will be as a result <strong>of</strong> public consultation and<br />

studies that will be carried out from time to time. In<br />

particular development will be focused on improving international connectivity, rural<br />

accessibility and national mobility. Whilst the government will focus on the poor,<br />

women and vulnerable groups, increasing the variety and quality <strong>of</strong> rural and urban<br />

transport will be at the heart <strong>of</strong> the policy.<br />

Overall roads will be expected to continue to service the development <strong>of</strong> key<br />

economic sectors such as Mining, Agriculture and Tourism. To this end the Minister<br />

responsible for transport will ensure that needs assessments are carried out and that<br />

transport planning processes are effectively integrated and coordinated.<br />

The Ministry <strong>of</strong> <strong>Transport</strong> and Communications through the <strong>National</strong> <strong>Transport</strong><br />

Authority shall coordinate preparation <strong>of</strong> <strong>National</strong> <strong>Transport</strong> Plans and will ensure that<br />

the users are better informed to enable their contribution to become more valuable<br />

and road planning to become more effective.<br />

The policy objectives that will drive implementation are stated as follows;<br />

1) Ensure that the needs <strong>of</strong> all road users are considered in planning roads<br />

2) Reduce the time spent waiting and travelling using road transport.<br />

3) Ensure that all road projects demonstrably will reduce poverty<br />

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4) Integrate the construction <strong>of</strong> roads with land use changes and concomitant<br />

development<br />

5) Increase in the variety, frequency and use <strong>of</strong> all forms <strong>of</strong> road transport.<br />

6) Increase the number <strong>of</strong> rural communities with year round access to public<br />

road transport.<br />

7) Increased use <strong>of</strong> public transport<br />

To implement the policy actions will be taken on several fronts, improved<br />

understanding <strong>of</strong> the needs, better programming, more targeted projects and greater<br />

emphasis on evaluation, as indicated in the list below:<br />

1) Carry out a review and provide socio-economic evaluation <strong>of</strong> the roads<br />

development in Botswana<br />

2) Carry out biennial road user surveys by mode type and availability, journey<br />

time and waiting time for work and non-work trips – rural and urban<br />

3) Collect traffic data and monitor the use, demand and performance <strong>of</strong> the road<br />

4) Introduce performance indicators (PI) for travel time, waiting time and other<br />

mobility factors and report to parliament<br />

5) Ensure accessibility mobility and poverty alleviation assessments are<br />

included in all road projects.<br />

6) Contribute <strong>National</strong> <strong>Transport</strong> Planning Data Base ( GIS)<br />

7) Contribute to the preparation <strong>of</strong> a 5 year Multi-Annual <strong>National</strong> <strong>Transport</strong><br />

Plan updated annually.<br />

8) Prepare and Implement the following Road Programmes<br />

• Strategic and Trunk Roads development programme<br />

• Bridge construction and repair<br />

• Accident Prone Areas elimination programme<br />

• Urban roads and traffic management improvement programmes<br />

• Access and tertiary roads or social roads programme<br />

• Roadside amenities programme<br />

9) Evaluate projects and programmes with respect to their objective<br />

Section 79.<br />

Improve provisions for pedestrians, cycling and other forms <strong>of</strong><br />

Non-Motorised <strong>Transport</strong><br />

Walking is the dominant form <strong>of</strong> transport in any society. In Botswana provisions for<br />

pedestrians are poor. Over 30% <strong>of</strong> all road fatalities are to pedestrians. Cycling is<br />

almost non-existent although it is affordable and healthy. The reasons are apparent, it<br />

is too dangerous to cycle and provisions are very limited. Non-motorised transport,<br />

including pedestrian movement shall be encouraged. The Ministers responsible for<br />

Local <strong>Government</strong> and <strong>Transport</strong> shall work together in the development <strong>of</strong> NMT<br />

infrastructure where sufficient potential<br />

demand is judged to exist, including<br />

establishing design standards for and<br />

provision <strong>of</strong> separate cycle-ways, tracks<br />

and footpaths as well as safe crossing<br />

places with motorised traffic. In<br />

developing facilities’ for NMT, provision<br />

shall be made for maintenance,<br />

particularly for footpaths.<br />

Figure 12 Separating Pedestrians – saves lives<br />

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The principle policy objectives to be achieved are:<br />

1) Increase demand for NMT and make cycling a dominant mode in Cities<br />

2) Allocate resources and funding to the development <strong>of</strong> NMT<br />

3) Reduced the travel time <strong>of</strong> motorised transport<br />

4) Increase in length <strong>of</strong> dedicated NMT infrastructure. (Footpaths, Cycle-ways)<br />

especially in urban and peri-urban areas<br />

5) Reduce conflict between motorised and NMT<br />

6) Reduce congestion and improve the environment through greater use <strong>of</strong><br />

NMT<br />

The road map to achieving better provisions for pedestrians and cyclists are set out<br />

below:<br />

1) Establish NMT development task force to coordinate the preparation and<br />

implementation <strong>of</strong> a programme for the development <strong>of</strong> NMT<br />

2) Establish design standards and methodologies and coordinate the planning<br />

process for NMT development<br />

3) Include provision for NMT in highway upgrading projects<br />

4) Repair / establish footpaths in built up areas<br />

5) Ensure good standards <strong>of</strong> footpaths where new development occurs<br />

6) Maintain footpaths<br />

7) Build cycle-ways<br />

8) Build more foot bridges<br />

9) Repair and extend street lighting<br />

10) Promote and publicise improvements<br />

Section 80.<br />

Improving the quality <strong>of</strong> travel in our cities<br />

Chronic traffic congestion is costly, unhealthy, a waste <strong>of</strong> resources that deters<br />

investors; the <strong>Government</strong> recognise that the problem occurs mainly in the morning<br />

between 7 and 8 am and in the afternoon between 4.30 and 6 pm.<br />

As the main employer, <strong>Government</strong> also understands that the cause <strong>of</strong> the problem is<br />

partly that the working hours <strong>of</strong> most employees is the same. To obtain a quick<br />

remedy at the lowest cost, the <strong>Government</strong> will institute staggered working hours and<br />

flexible working hours in order to spread the load on the transport network. The Office<br />

<strong>of</strong> the President will appoint a special inter-ministerial task force to implement<br />

Staggered Working Hours in the capital city and would encourage local government<br />

to do the same where is feels justifiable.<br />

The Minister responsible for Local <strong>Government</strong> in coordination with Minister <strong>of</strong><br />

responsible for transport and the Police will also more closely together to rapidly<br />

reduce traffic congestion in the main cities and improve the quality <strong>of</strong> the travelling<br />

environment.<br />

The <strong>Government</strong> will set out its intentions with the respect to the Capital City through<br />

a <strong>Transport</strong> Improvement Plan for the years 2011 to 2036. The <strong>Government</strong> will also<br />

create a new <strong>Transport</strong> Authority to implement the Plan. In addition the <strong>Government</strong><br />

will invest in modern traffic management systems and make sure that capacity exists<br />

to sustain them. Other measures to be taken include restricting the use <strong>of</strong> private<br />

vehicles in CBDs, limiting commercial, <strong>of</strong>fice and <strong>of</strong>f-street parking to improve<br />

patronage <strong>of</strong> public transport and pricing parking according to demand. The<br />

objectives to be achieved by this policy are set out below:<br />

1) Plan urban development that promotes bi-directional flows<br />

2) Improve the flow <strong>of</strong> traffic in towns<br />

3) Improve journey times<br />

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4) Reduce the operating costs <strong>of</strong> vehicles<br />

5) Improve the attractiveness <strong>of</strong> towns to businesses<br />

6) Better overall parking control<br />

7) Limit the supply <strong>of</strong> <strong>of</strong>f street parking<br />

8) Improve the efficiency <strong>of</strong> public transport<br />

9) Improve the quality <strong>of</strong> traffic management<br />

10) Devolve traffic management responsibility to local government<br />

11) Improve the effectiveness <strong>of</strong> traffic signals<br />

12) Provide and enforce no entry blocking <strong>of</strong> signalised intersections<br />

13) Improve response time to break downs incidents<br />

14) Provide better travel information to travellers<br />

An indication <strong>of</strong> the actions that will be taken to achieve our objectives and improve<br />

the travelling environment on our urban roads are summarised below:<br />

1) Provide more trained traffic management specialists<br />

2) Introduce demand management techniques such as staggered and flexible<br />

working hours; peak/<strong>of</strong>f peak differential pricing. Congestion Tax.<br />

3) Provide for pedestrian precincts especially in CBD areas<br />

4) Restrict entry <strong>of</strong> cars and providing parking at the periphery <strong>of</strong> the CBD<br />

5) Establish punitive tariffs for on-street parking<br />

6) Minimize and control <strong>of</strong>f-street parking<br />

7) Establish guidelines for <strong>of</strong>f-street parking<br />

8) Better integrate property development with urban road provision<br />

9) Ban heavy commercial vehicles from the CBD and restrict delivery heavy<br />

commercial vehicles to non-working hours, and provide for trans-shipment<br />

10) Design infrastructure to accommodate large mass transit buses for public<br />

transport<br />

11) Design roads to accommodate public transport priority lanes<br />

12) Design Bus Rapid Transit Systems on high demand corridors<br />

13) Carry out biannual monitoring <strong>of</strong> traffic flows in cities.<br />

14) Channelize traffic at intersections and provide road markings and signs<br />

15) Repair and provide traffic lights where the traffic at busy intersections and<br />

establish a traffic control hub using the latest control technology<br />

Section 81.<br />

Making Roads Safer<br />

Road accidents rates are the second worst in SADC with 500 fatalities and over<br />

20,000 accidents reported annually and there are around 65 crashed per 1000<br />

registered vehicles which means that there is 6% probability <strong>of</strong> every driver crashing<br />

each year. More accidents occur on Fridays and Saturdays than other days and<br />

pedestrians account for 30% <strong>of</strong> fatalities.<br />

The cost to the Botswana economy can be placed at P1.3 billion or 1% <strong>of</strong> GDP due to<br />

loss <strong>of</strong> production due to fatalities and injuries, loss <strong>of</strong> production <strong>of</strong> those in<br />

supporting roles; costs <strong>of</strong> policing and administration; costs <strong>of</strong> medication; costs <strong>of</strong><br />

damage to vehicles and property and insurance costs. Besides these direct costs<br />

there are opportunity costs because cycling or even motorcycling is considered too<br />

dangerous, both <strong>of</strong> which are understood as providing more cost effective transport.<br />

In addition the <strong>Government</strong> suspects that high road accident rates are a disincentive<br />

for investors; loss <strong>of</strong> investment due to poor image. The <strong>Government</strong> will take steps<br />

to ensure that the full costs <strong>of</strong> road accidents are internalised in the charges levied to<br />

road users.<br />

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Table 4 Road Accidents and their causes 2000 - 2010<br />

Cause 2000 2001 2002 2003 2004 2005 2006 2007 2008 2009 2010<br />

Driver Fatigued 66 63 65 70 68 48 36 63 66 60 83<br />

Under influence <strong>of</strong> drugs<br />

and drink 205 373 465 497 380 361 319 293 172 423 492<br />

Unlicensed Driver 596 784 940 1075 936 989 580 555 384 629 590<br />

Careless Driver 10424 10572 11476 11501 12314 12422 12342 12367 18229 14849 13763<br />

Pedestrian Error 749 767 739 691 705 562 490 483 392 517 522<br />

Passenger Error 100 114 106 95 79 66 52 62 52 109 93<br />

Animals domestic/w ild 2687 3055 3477 3080 2457 2392 2205 2817 526 2454 2595<br />

Obstructions 234 139 69 43 31 18 34 46 22 118 174<br />

Vehicle Defects 677 643 571 592 541 498 489 467 456 541 482<br />

Road Surface Condition 348 303 262 211 254 154 232 188 117 247 139<br />

Weather Condition 348 304 432 468 360 312 256 146 37 48 30<br />

Use <strong>of</strong> mobile telephones 0 0 0 0 0 0 0 0 2 5 7<br />

Other causes 121 8 8 6 11 0 0 0 0 6 8<br />

Total recorded 16555 17125 18610 18329 18136 17822 17035 17487 20455 20006 18978<br />

The operation <strong>of</strong> the <strong>National</strong> Road Safety Committee has been protracted and<br />

because <strong>of</strong> the complexity and multiplicity <strong>of</strong> the issues, overall responsibility for road<br />

safety has proven difficult to allocate. The <strong>Government</strong> will ensure the <strong>National</strong> Road<br />

Safety Committee is re-energised and its work and programmes effectively funded<br />

from road user charges.<br />

Accidents are seen to occur in particular sections, in fact 40% <strong>of</strong> fatalities and 30% <strong>of</strong><br />

all crashes occur on just 10% <strong>of</strong> the paved portion <strong>of</strong> the PHN. Such sections – as<br />

identified by the Police – are known as accident prone areas or APAs. Because<br />

accident rates o\n APAs are on average 30 times greater than elsewhere this<br />

indicates that there is a systemic problem with the design or layout which better<br />

design can address.. Road projects are not safety audited and existing roads are not<br />

safety assessed; so the <strong>Government</strong> will mandate that the <strong>National</strong> Roads Authority<br />

is responsible for ensuring that the PHN is safely developed and for setting and<br />

achieving targets for reducing accidents over the coming years.<br />

Construction practises are also unsafe when in the proximity <strong>of</strong> operational roads,<br />

and there is no liability for accidents assumed by the contractor. Overall focus on<br />

road safety is lacking in road infrastructure management.<br />

In short, the loss <strong>of</strong> life, injury and damage to property on the roads is unacceptable<br />

which is why the Botswana has become a signatory to many conventions on road<br />

safety including the UN Decade for Road Safety in June 2011.<br />

In keeping with its principles <strong>of</strong> creating a safe and secure society, the <strong>Government</strong> is<br />

determined to put an end to this needless loss <strong>of</strong> life. The <strong>Government</strong> appreciates<br />

that a determined effort will be necessary from many parties, but understands that<br />

overall leadership is missing. The Minister responsible for transport shall assume the<br />

overall responsibility for improving road safety and take what-ever steps are<br />

necessary to rapidly reduce road accidents.<br />

Accordingly the Minister will prepare and implement an overall strategy that will lead<br />

to a reduction in the fatality rate <strong>of</strong> 30% by 2020 and 1 % per annum thereafter. The<br />

Minster will report to Parliament at least 6 monthly on the progress made. The key<br />

objectives to be achieved for road safety are:<br />

1) Internalise the costs <strong>of</strong> road accidents into the road user charge to recover<br />

the costs <strong>of</strong> around P1.3 billion to the economy<br />

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2) Improve the overall leadership and management <strong>of</strong> road safety<br />

3) Reverse the trend in accidents and achieve an annual reduction both <strong>of</strong> the<br />

rate <strong>of</strong> accidents and in absolute terms.<br />

4) Reduce conflict between road users <strong>of</strong> different categories through better<br />

design<br />

5) Internalise the cost <strong>of</strong> accidents in road user charges.<br />

6) All new designs and road upgrading to be independently safety audited by<br />

2015<br />

7) Improve road maintenance standards<br />

Some <strong>of</strong> the vital steps that will be taken by those agencies that are mandated to<br />

provide and maintain the public highway network that will reduce the accident rate<br />

and make our roads safer are summarised below:<br />

1) The RFL will contribute sufficient to the Motor Vehicle Accident Fund to fully<br />

internalise the costs <strong>of</strong> road accidents. This will mean adding about 1 pula<br />

per litre to fuel levy needed for maintenance and operations.<br />

2) Reconvene, energise and adequately resource the <strong>National</strong> Road Safety<br />

Committee to oversee safety matters<br />

3) Prepare and implement a programme to gradually eliminate accident prone<br />

areas.<br />

4) Implement various road safety campaigns in the Media<br />

5) Make provisions for legal liability for the condition <strong>of</strong> road infrastructure.<br />

6) Train personnel working in road safety related programmes<br />

7) Carry out a Road safety audit along major corridors, and in urban areas<br />

8) Ensure that the Road Accident Data Base (MAAP) is maintained and<br />

available to those responsible for roads<br />

9) The <strong>National</strong> Road Safety Committee to report monthly to the Minister on<br />

road accidents and publish road safety statistics<br />

10) Empower the Minister to institute a public and independent enquiry following<br />

particularly serious road accidents<br />

Section 82.<br />

Using land more efficiently<br />

Poor physical planning coupled with ineffective transport planning and lack <strong>of</strong><br />

enforcement <strong>of</strong> land use plans have lead to higher demand for road transport. Suboptimal<br />

application <strong>of</strong> the Lands Act regarding the road reserve and /or non-provision<br />

<strong>of</strong> land for future route development especially in urban areas has lead to high<br />

compensation costs for improving, upgrading and new road projects. Furthermore the<br />

use <strong>of</strong> the road reserve for utilities and services other than for roads - requires better<br />

controls. Importantly, sprawling urban development has increased the cost <strong>of</strong><br />

providing roads and road transport which has to be paid for by the tax payer.<br />

<strong>Transport</strong> is considered to be a cost to society not a benefit that should be reflected in<br />

the preparation and execution <strong>of</strong> transport and land use plans. The Minister<br />

responsible for <strong>Transport</strong> will have powers <strong>of</strong> veto over any land use and<br />

development plan that fails to optimise transport provision and together with Ministers<br />

for Lands and Local <strong>Government</strong> establish and implement ways and means <strong>of</strong><br />

ensuring that land use and transport planning are properly integrated.<br />

The <strong>Government</strong> appreciates the problems <strong>of</strong> urban sprawl and the cost to the<br />

taxpayer <strong>of</strong> an every expanding network <strong>of</strong> urban roads and public transport routes<br />

and will veto any land use plans submitted by District Councils that expands the<br />

urban envelope without first demonstrating alternatives solutions have been<br />

exhausted Additional powers are to be vested in the Minister responsible for<br />

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<strong>Transport</strong> to safeguard land from development that has been identified as will be<br />

needed for future transport infrastructure.<br />

Provisions in the Public Roads Act will be introduced that will enable the <strong>National</strong><br />

Roads Authority to more effectively manage and exploit the road reserve, including<br />

deriving income from its use. Furthermore legislation will be introduced that will link<br />

the improvement <strong>of</strong> access to the gain in property value <strong>of</strong> those areas which benefit<br />

from improved access and by so doing enable income to be generated from that gain<br />

in value so that the concept <strong>of</strong> taxing planning gain is effectively applied. That being<br />

the case, maximising land values through improvements in accessibility may also be<br />

taken in consideration when computing the feasibility <strong>of</strong> road investments.<br />

Objectives that will drive this policy forward are listed below:<br />

1) Ensuring that land use planning aims to reduces sprawling urban<br />

development and the length <strong>of</strong> the road network<br />

2) Preserving adequate land for future development <strong>of</strong> roads<br />

3) Increasing the utility <strong>of</strong> the road reserve<br />

Some the measures that will be taken that will improve the use <strong>of</strong> land that is<br />

associated with the PHN include:<br />

1) Strengthening enforcement <strong>of</strong> land use plans and eliminate unplanned<br />

development outside the city limits<br />

2) Conducting an audit <strong>of</strong> existing and future route reserves and prepare their<br />

titling<br />

3) Set up public consultation processes to acquire land for upgrading <strong>of</strong> existing<br />

and new transport routes<br />

4) Controlling development activities within the road reserves.<br />

5) Charging market prices for way leaves for utilities<br />

6) Improving the efficiency and effectiveness <strong>of</strong> compulsory purchase legislation<br />

to secure land within the urban envelope.<br />

7) Establishing then applying guidelines for the preparation <strong>of</strong> integrated land<br />

use and transport plans.<br />

8) Ensuring that Local District and <strong>National</strong> Planning is fully integrated with the<br />

provision <strong>of</strong> Roads<br />

Section 83.<br />

Integrating the development <strong>of</strong> Roads with other modes <strong>of</strong><br />

<strong>Transport</strong><br />

Too much freight is transported by Road. The balance with rail is not correct. Long<br />

distance trucking though Botswana will no longer be encouraged unless it is the<br />

<strong>National</strong> Interest. Moreover although road and rail compete for the same traffic within<br />

a corridor, invariably account is not taken <strong>of</strong> this when road or rail prepare their<br />

individual development projects for funding, each claiming a disproportionate market<br />

share. Clearly the <strong>Government</strong> requires that transport demand is allocated to<br />

transport infrastructure on a strictly economic basis when planning transport<br />

infrastructure.<br />

The movement <strong>of</strong> heavy goods vehicles in urbanised areas causes congestion,<br />

pollution and disruption, such movements include hazardous materials such as<br />

petroleum. Part <strong>of</strong> the problem is that the location <strong>of</strong> activities that generate the<br />

movement <strong>of</strong> heavy goods vehicles is either evaded land use planning, or has been<br />

overtaken by events. Through relocation and more proActive planning, environmental<br />

and safety issues associated with heavy trucking will be gradually resolved. The<br />

<strong>Government</strong> recognise the need to insulate the public from the negative impacts <strong>of</strong><br />

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heavy goods vehicle movement and will institute a network <strong>of</strong> routes in and around<br />

urban areas that can be used for heavy goods vehicles at any time <strong>of</strong> the day and will<br />

limit the operation <strong>of</strong> heavy good vehicles on non-designated section to certain times<br />

<strong>of</strong> the day. .<br />

The <strong>Government</strong> have also noted that developers <strong>of</strong> businesses that generate<br />

significant transport demand such as warehousing, shopping centres and <strong>of</strong>fices do<br />

not contribute sufficiently to the development <strong>of</strong> supporting infrastructure, so leaving<br />

the tax payer to pick up the bill. In future developers will be required to submit a traffic<br />

impact assessment as a part <strong>of</strong> the planning application that clearly shows the<br />

volume and type <strong>of</strong> traffic generated and assigns that traffic to the adjacent network.<br />

Following which the developer will be expected to pay fully for any modifications<br />

needed to the PHN to support the development.<br />

Overall, it is in the interests <strong>of</strong> economy to ensure that freight is transported by the<br />

most optimal means. When planning for roads account needs to be taken <strong>of</strong> the<br />

preference that heavy long distance trucking shall be transported by Rail. The<br />

Minister responsible for transport shall establish conditions where multi-modal and<br />

inter-modal transport technology can flourish and establish a network <strong>of</strong> interchanges<br />

where transfer between the two modes is efficient and affordable, the principle<br />

objectives being:<br />

1) Increase demand for rail hauled container movement<br />

2) Promote the best interests <strong>of</strong> each mode<br />

3) Increase use <strong>of</strong> inter-modal transport technology<br />

4) Restrict the movement <strong>of</strong> heavy vehicles in cities<br />

5) Require developers to pay for modifications to the PHN needed for the<br />

development<br />

Some <strong>of</strong> the iterative that will be taken to obtain better modal balance are<br />

summarised below:<br />

1) Earmarking and reserving land for road / rail interfaces close to towns<br />

2) Establish guidelines for design <strong>of</strong> road rail interchanges<br />

3) Map out infrastructure for road rail interchanges<br />

4) Ensure existence <strong>of</strong> parallel communications infrastructure<br />

5) Use PPP models for implementation<br />

6) Prepare a transhipment plan for the capital City<br />

7) Plan and implement network <strong>of</strong> routes for heavy goods vehicles especially in<br />

and around urban areas<br />

8) Prepare and implement plans to toll transit freight traffic in partnership with<br />

the private sector such as oil companies.<br />

9) Plan and construct bypasses<br />

10) Ensure that studies include both road and rail modes where potential<br />

competition may exist<br />

Section 84.<br />

Getting the most from Roads<br />

Roads are a vital and valuable resource and it is very important that we get the most<br />

out <strong>of</strong> them. It cannot be acceptable that rural roads are developed then hardly used.<br />

The <strong>Government</strong> appreciates very clearly the difficulties that will be encountered in<br />

funding the maintenance <strong>of</strong> low trafficked roads in the years to come. Usually such<br />

roads are intended to stimulate local development but <strong>of</strong>ten this has not proven to<br />

have been the case and demand remains low many years after opening.<br />

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Botswana <strong>National</strong> <strong>Integrated</strong> <strong>Transport</strong> <strong>Policy</strong><br />

There is also an increasing awareness <strong>of</strong> the influence <strong>of</strong> the process <strong>of</strong> procuring<br />

road works where those entities charged with the responsibility for the preparation <strong>of</strong><br />

projects, such as carrying out feasibility studies, are the same as those entities that<br />

prepare designs and supervise the works where clearly there is a conflict <strong>of</strong> interest.<br />

The Assistant Minister responsible for roads will ensure that feasibility studies and<br />

general advice on the viability <strong>of</strong> roads is separated from those services required to<br />

design develop and construct roads.<br />

It is incumbent on the Minster responsible for transport to ensure that society obtains<br />

maximum benefit from its national road asset. This can be done by making sure that<br />

road provision is seen as a part <strong>of</strong> an overall development package that may also<br />

include provisions for the development <strong>of</strong> road-side amenities, commercial centres<br />

such as markets, distribution points and warehousing and civic amenities. For this to<br />

become reality, the Minister responsible for transport shall work together with<br />

Minsters responsible for lands and also for local government to ensure that plans for<br />

roads are considered holistically in order to maximise their benefits.<br />

1) Increase the transport demand particularly for secondary and tertiary roads.<br />

2) Integrate rural road planning with the development <strong>of</strong> local amenities,<br />

markets and business so that the value <strong>of</strong> the road asset is maximised.<br />

3) Ensure feasibility studies are objective.<br />

Actions to be taken by the Ministry <strong>of</strong> <strong>Transport</strong> and Communications will include but<br />

not be limited to the following:<br />

1) Evaluate all road projects 2 to 3 years after completion to determine the<br />

extent to which they are achieving the desired objectives.<br />

2) Routinely monitoring transport demand over the entire PHN<br />

3) Review and modify the criteria for access and tertiary road development<br />

4) Apply integrated planning principles,<br />

5) Allocate land for development adjacent to roads that are required to catalyse<br />

such local development<br />

6) Engage different advisers for the preparation <strong>of</strong> projects from implementation<br />

Section 85.<br />

Stepping up control <strong>of</strong> overloaded vehicles<br />

Current axle load control measures are not working effectively and costs are also<br />

incurred due to non-physical barriers to trade that encourage truck operators to<br />

overload. In many instances, the level <strong>of</strong> service provided at weighbridge sites can be<br />

improved, and computerisation is needed to make sure that the details <strong>of</strong> <strong>of</strong>fenders<br />

are retained centrally for quick reference anywhere by the Police and border control<br />

agencies. In some instances the infrastructure is poorly maintained equipment and<br />

inadequate parking areas. Some <strong>of</strong> the reasons for overloading include<br />

i. Low truck utilization levels that encourage overloading for recovery <strong>of</strong> fixed<br />

costs.<br />

ii. Private sector not sufficiently engaged to encourage self regulation<br />

iii. Current penalties are too low to act as a deterrent<br />

The overloading <strong>of</strong> road vehicles is both dangerous to other road users and<br />

damaging to the infrastructure. The maximum gross vehicle load <strong>of</strong> 58 tons and axle<br />

load limit <strong>of</strong> 10.5 tons will be enforced, moreover any vehicle whose load exceeds<br />

that for which the vehicle was certified will be impounded and <strong>of</strong>fenders penalised.<br />

The level <strong>of</strong> fines shall be in proportion to the amount <strong>of</strong> overload. Moreover the<br />

operator licenses for persistent <strong>of</strong>fenders will be revoked if the licence holder is<br />

domestic. Where hauliers are not domestic the infringement will be reported via to the<br />

country in which the operator is registered. The transport industry shall be<br />

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Botswana <strong>National</strong> <strong>Integrated</strong> <strong>Transport</strong> <strong>Policy</strong><br />

encouraged to regulate its own activities in this regard and shall submit proposals to<br />

the Minister <strong>of</strong> <strong>Transport</strong> and Communications within 12 months <strong>of</strong> the adoption <strong>of</strong><br />

this policy to set out how the industry will regulate itself.<br />

Furthermore, for economic and environmental reasons further increase in the Gross<br />

Vehicle Mass GVM will be considered critically and a decision made based on the<br />

local costs and benefits. The objectives that will underpin the policy are set out below:<br />

1) Reduce damage to pavement and structures and improve operational safety<br />

2) Ensure penalties cover costs<br />

3) Eradicate road accidents that are due to overloading<br />

And the actions that will be taken to implement the policy include:<br />

1) Improvement to the operational environment at weighbridges<br />

2) Computerisation <strong>of</strong> public weigh bridges<br />

3) Improve public weighbridges and the process <strong>of</strong> load certification.<br />

4) Mount random police checks to catch <strong>of</strong>fenders<br />

5) Link overloading <strong>of</strong>fences to insurance premium costs and transport<br />

operating license renewal;<br />

6) Review Road Traffic Act to incorporate new regulatory mechanisms<br />

7) Remove non-physical barriers currently constraining efficiency in the<br />

transport sector<br />

8) Consider the costs and benefits to Botswana <strong>of</strong> SADC proposals to increase<br />

GVM<br />

9) Place the responsibility for regulating and control <strong>of</strong> overloaded vehicles with<br />

the statutory road authority<br />

10) Centralise Management Information Systems<br />

11) Provide monthly reports<br />

12) Align penalties to damage and black list persistent <strong>of</strong>fenders<br />

13) Share penalty income with the enforcement agencies and ensure the costs<br />

are fully covered<br />

14) Insure the PHN against overloading damage and pass cost onto hauliers<br />

Section 86.<br />

Getting Involved<br />

Currently the Road User pays for roads but has no say in their provision – except<br />

indirectly through the ballot box at time <strong>of</strong> the election. Moreover, there is very little<br />

attention given to public relations despite their huge importance to society. Users are<br />

not well educated as to their rights with respect to roads.<br />

Communications with the travelling public through any media is poor – such as travel<br />

news. Unfortunately complaints are not handled efficiently and effectively and the<br />

public is reluctant to make them. Roads Personnel are not trained to deal with the<br />

public and would rather not do so. <strong>Government</strong> also appreciates that the expectation<br />

<strong>of</strong> consumer <strong>of</strong> public services have risen in general over the years and the standards<br />

demanded by the road user are no exception to this. In this context customer<br />

satisfaction surveys carried out by the Office <strong>of</strong> the President for all government<br />

services, place roads services in lowest decile.<br />

As the user will be expected to pay more directly for roads, engagement will become<br />

more vital. To this end the Minister responsible for transport will establish<br />

mechanisms as deemed appropriate to directly link the consumer with the supplier <strong>of</strong><br />

road services including the establishment <strong>of</strong> a Road User Consultative Council.<br />

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Botswana <strong>National</strong> <strong>Integrated</strong> <strong>Transport</strong> <strong>Policy</strong><br />

A new paradigm is required. The Minister <strong>of</strong> <strong>Transport</strong> and Communications shall<br />

take such steps as are necessary to ensure that providers <strong>of</strong> Roads are fully aware <strong>of</strong><br />

their obligations as suppliers <strong>of</strong> services in terms <strong>of</strong> value and <strong>of</strong> quality. Moreover,<br />

processes will be established to engage opinion <strong>of</strong> the road user in the provision and<br />

management <strong>of</strong> roads and importantly roads users are aware <strong>of</strong> their rights as<br />

consumers.<br />

1) Improve public relations<br />

2) Provide more for effective public participation;<br />

3) Increase road user or customer satisfaction<br />

4) Ensure those involved in providing roads more pr<strong>of</strong>icient in customer<br />

relations<br />

5) Improve the rights <strong>of</strong> the user<br />

6) Provide for more effective communications<br />

7) Ensure a more effective complaints processes<br />

8) Make sure that road planning is a fully participatory process<br />

Concerted action will be taken to improve public awareness <strong>of</strong> the benefits <strong>of</strong> road<br />

and to involve both users and non-users <strong>of</strong> roads in decision taking - some <strong>of</strong> these<br />

actions are included below:<br />

1) Consult users through local communities, civic associations and nongovernment<br />

organizations during the planning stages.<br />

2) Set up the Road User Consultative Council<br />

3) Allocate a reasonable budget for public relations and ensure that its<br />

effectiveness is evaluated.<br />

4) Educate users so that they are aware <strong>of</strong> their rights<br />

5) Civil liability and minimum third part cover to be mandatory for all vehicle<br />

owners.<br />

6) Ensure that those that are involved in the provision <strong>of</strong> Roads are more exposed<br />

to their customers and better trained to handle customer relations.<br />

7) Ensure adequate provisions in the Public Roads Act for legal liability to be<br />

carried by the Roads Authority or its appointed agents.<br />

8) Prepare and implement a communication strategy<br />

9) Publish an annual report on Roads<br />

10) Improve and maintain information flows through web and other media<br />

11) Monitor the improvement in the level <strong>of</strong> customer satisfaction for the delivery <strong>of</strong><br />

road services<br />

Article XIV. Improving the way roads are<br />

developed and maintained<br />

Section 87.<br />

Designing roads for quality and for value<br />

Road infrastructure development has been driven by a mixture <strong>of</strong> development<br />

aspirations and political expediency and there is also a perception that some projects<br />

may have been motivated to benefit individuals rather than for the public good. The<br />

result is a misaligned and unsustainable PHN. The current Roads Department is<br />

mostly an implementing agency mandated is to build the roads that have been listed<br />

in a national development plan. Whilst an implementing agency or agencies will<br />

always be needed, the future roads strategy will be prepared by the <strong>National</strong> Roads<br />

Authority. The development plan for roads will be integrated with those for rail,<br />

aviation, waterways and marine transport by the <strong>National</strong> <strong>Transport</strong> Authority and<br />

included in the <strong>National</strong> <strong>Transport</strong> Masterplan ..<br />

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Botswana <strong>National</strong> <strong>Integrated</strong> <strong>Transport</strong> <strong>Policy</strong><br />

Road design requires balancing technical, social, economic and environmental<br />

aspects. The Minister responsible for transport shall, through the Assistant Minister<br />

for Roads ensure that design standards are developed and properly applied in order<br />

to correspond to the level and mix <strong>of</strong> services required especially taking into account<br />

safety and environment requirements as well as driver comfort and convenience.<br />

Furthermore the <strong>Government</strong> perceive that roads deteriorate faster than expected, in<br />

spite <strong>of</strong> the relatively low traffic flows and understand that the causes may be due to<br />

suboptimal choice <strong>of</strong> materials and construction methods. Assistant Minister<br />

responsible for roads will ensure that the Roads Authority will assume responsibility<br />

for the entire PHN and will apply principles <strong>of</strong> whole-life costing to the design <strong>of</strong> roads<br />

and risk minimisation in procuring road construction. In this way the road user will be<br />

guaranteed better value.<br />

The policy objectives that will drive progress are as follows<br />

1) To increase the value <strong>of</strong> projects to road users<br />

2) Make roads more user friendly with more rest areas and better signing.<br />

3) Factor in improved safety and other operational standards<br />

4) <strong>National</strong> Road Authority is responsible for the preparation <strong>of</strong> road<br />

programmes<br />

Key measure that will be implemented to provide better value to road users are<br />

summarised below<br />

1) The Roads Authority to be responsible for the strategic management <strong>of</strong> the<br />

PHN.<br />

2) The Roads Authority will ensure that adequate time and resources are<br />

allocated to preparation <strong>of</strong> programmes and projects.<br />

3) Establish an independent Roads Technical Committee to oversee the<br />

revision <strong>of</strong> standards.<br />

4) Commission independent re-engineering <strong>of</strong> large projects where the technical<br />

committee considers better value can be obtained from the solution<br />

proposed.<br />

5) Contribute to the formulation Technical Standards for design and operation <strong>of</strong><br />

international routes.<br />

6) Carry out mandatory technical audits for each road project to establish<br />

compliance with standards especially with safety requirements.<br />

7) Carry out mandatory evaluation <strong>of</strong> projects 3 to 5 years after completion<br />

8) Prepare and update a design manual to include value engineering.<br />

9) Register with International Roads Federation and other similar bodies<br />

10) Collaborate with research organisations to develop technical standards<br />

11) Raise pr<strong>of</strong>essionalism and make national registration mandatory for all<br />

practising engineers<br />

12) Monitor the costs <strong>of</strong> road provision<br />

Section 88.<br />

Improving the delivery <strong>of</strong> road works<br />

The average cost <strong>of</strong> constructing 1 km <strong>of</strong> paved road has risen from Pula 110.000 in<br />

1980, through P180, 000 per km in 1990 and P360, 000 per km in 2000 but to P 3<br />

million per km in 2010. The annual increase in the cost <strong>of</strong> roads for the first 30 years<br />

<strong>of</strong> development was around 7%, but the cost <strong>of</strong> roads has increased almost 10 times<br />

over the last decade. This is one <strong>of</strong> the reasons why 70% <strong>of</strong> projects programmed for<br />

completion between 2004 and 2009 had to be carried over to the next five year plan.<br />

Completing projects on time and within budget has become a rarity. The procurement<br />

process, whilst reducing corruption, has contributed to delay and substantially higher<br />

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Botswana <strong>National</strong> <strong>Integrated</strong> <strong>Transport</strong> <strong>Policy</strong><br />

costs. It is a rarity for projects to be re-tendered even if the lowest tender is much<br />

higher than the permissible budget. Despite possible market distortions created by<br />

the unprecedented demand for construction in the region due to the holding the World<br />

Cup in 2010, the <strong>Government</strong> remains very concerned over the rapid escalation <strong>of</strong><br />

the cost <strong>of</strong> road projects and has little confidence that the current arrangements for<br />

the implementation <strong>of</strong> PHN programmes will provide good value in the future<br />

As a part <strong>of</strong> its overarching policy to improve the delivery <strong>of</strong> its services whilst<br />

stimulating the private sector, the <strong>Government</strong> will incrementally outsource<br />

implementation <strong>of</strong> road development and maintenance. The Assistant Minster for<br />

Roads shall exercise discretion to select the best possible arrangements for the<br />

execution <strong>of</strong> road works including where appropriate the participation <strong>of</strong> the private<br />

sector in programme and project management and the application <strong>of</strong> output based<br />

performance methods. In pursuance <strong>of</strong> the said policy public works functions will be<br />

expected to be restructured and procurement and contract management outsourced<br />

to the private sector where it is expected performance based contracts will apply. The<br />

objectives below clearly set out the aims <strong>of</strong> this policy.<br />

1) Reduce the cost <strong>of</strong> road construction and maintenance<br />

2) Inculcate a culture in the Roads Authority <strong>of</strong> providing value<br />

3) Use new procurement and contracting methods to reduce lead time and cost.<br />

4) Outsource contract management to improve the delivery <strong>of</strong> road works<br />

5) Minimise the use <strong>of</strong> retrospective financing <strong>of</strong> road programmes by<br />

government<br />

6) Ensure road works are conducted safely<br />

7) Promote night time works to minimise impact on road users<br />

Actions that will be taken to improve the delivery <strong>of</strong> road works include but may not<br />

be limited to the following:<br />

1) Develop more flexible procurement procedures for different works;<br />

2) Prohibit the re-engagement <strong>of</strong> consultants that carried out feasibility studies<br />

from design and implementation activities;<br />

3) Re-engineer large projects to reduce costs;<br />

4) Streamline reporting systems;<br />

5) Compile and publish road construction and maintenance cost indices;<br />

6) Future <strong>National</strong> Roads Authority to have full powers to procure road works<br />

without recourse to PPADB;<br />

7) PPADB to have powers <strong>of</strong> audit <strong>of</strong> procurement procedures;<br />

8) Develop contract management skills in all road agencies through training and<br />

mentoring;<br />

9) Make pr<strong>of</strong>essional engineer registration compulsory by 2018<br />

10) Make contractors liable for poor safety, inadequate signing and diversion<br />

management;<br />

11) Outsource implementation <strong>of</strong> selected programmes;<br />

12) Engage performance based contracts for appropriate types <strong>of</strong> works;<br />

13) The Road Authority will provide the necessary oversight to the delivery <strong>of</strong><br />

road programmes and projects;<br />

Section 89.<br />

Becoming smarter at maintenance<br />

The development <strong>of</strong> roads has been unprecedented in the history <strong>of</strong> Botswana.<br />

Currently the Public Highway Network <strong>of</strong> some 20,000km is mostly complete.<br />

Attention must now be paid to the maintenance <strong>of</strong> this valuable national asset.<br />

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Botswana <strong>National</strong> <strong>Integrated</strong> <strong>Transport</strong> <strong>Policy</strong><br />

Road Conditon has deteriorated over time, especially when discounting the impact <strong>of</strong><br />

new roads on the overall condition <strong>of</strong> the PHN. The proportion <strong>of</strong> roads in poor<br />

condition have reached 10% <strong>of</strong> the PHN, a point that observers say is critical.<br />

However, routine maintenance is postponed and is considered to be avoidable by<br />

decision makers. The whole-life cost <strong>of</strong> roads is not considered. There are high<br />

maintenance demands on gravel roads due to shortage <strong>of</strong> materials, traffic, and<br />

climate and terrain factors. Overlapping responsibilities for road management;<br />

contemporary road management systems are not being used and asset management<br />

or maintenance strategies are lacking. The value <strong>of</strong> public assets is defined as being<br />

the current discounted replacement cost, which for the PHN is P23.5 billion. This<br />

value deteriorates year by year in proportion to its condition and the cost <strong>of</strong><br />

restoration work. The PHN is deteriorating and asset value is being lost at a rate <strong>of</strong><br />

between Pula P5oo million to 1 billion per year.<br />

Figure 13 Local Artisans Repairing A1<br />

The Minister responsible for roads must<br />

ensure that all roads in maintainable<br />

condition shall receive routine<br />

maintenance, and those not in<br />

maintainable condition that are deemed to<br />

satisfy appropriate economic and social<br />

criteria shall be restored to the standards<br />

for which they were intended and properly<br />

maintained thereafter. But where road<br />

maintenance fails to satisfy normal socioeconomic<br />

criteria, the Assistant Minister<br />

responsible for roads will permit service<br />

standards to be lowered in order to sustain<br />

the road as right <strong>of</strong> way.<br />

The Roads Authority shall have overall responsibility for the management <strong>of</strong> the PHN<br />

asset. It shall ensure that accurate records are kept <strong>of</strong> the condition <strong>of</strong> the entire PHN<br />

and will report annually on its condition. The maintenance policy objectives that will<br />

drive the strategy include the following:<br />

1) Establish road condition targets that relate to economic capacity and need<br />

2) To allocate more resources to maintenance and proportionally less to the<br />

development <strong>of</strong> infrastructure<br />

3) Generally apply a preventative maintenance strategy<br />

4) To improve the quality <strong>of</strong> roads through more timely interventions<br />

5) To reduce the overall cost <strong>of</strong> road maintenance<br />

6) To reduce vehicle operating costs<br />

7) To adopt procedures <strong>of</strong> whole life costing<br />

8) <strong>Government</strong> to finance road maintenance for roads where the road user<br />

charges generated are significantly less than the costs <strong>of</strong> maintaining roads<br />

9) To use modern pavement management systems<br />

10) Improve the structure and organisation <strong>of</strong> road maintenance services<br />

11) Outsource the mainstream maintenance programme<br />

12) Improve road asset management and values<br />

The measures that will be taken to become smarter at maintenance include, but are<br />

not restricted to the listed actions below:<br />

1) Prepare a maintenance strategy that will achieve the desired road condition<br />

and safety targets;<br />

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2) Prepare 5 year multi annual maintenance plans.<br />

3) Put in place performance monitoring systems<br />

4) Set up an asset data base and management procedure<br />

5) Carry out road condition inventory every two years<br />

6) Extend road management systems over the entire network<br />

7) Increase spending on road maintenance.<br />

8) All roads to have on-going routine maintenance<br />

9) Carry out backlog periodic maintenance according to socio-economic<br />

priorities<br />

10) Adopt different maintenance standards depending on traffic levels.<br />

11) Adopt a maintenance strategy based on sustainability and affordability criteria<br />

12) Categorise roads according to sustainable standards<br />

13) Pave critical gravel road sections, only if fully justified on economic grounds<br />

14) Outsource maintenance on performance based contracts.<br />

15) Introduce the concept and practise <strong>of</strong> asset management valuation<br />

Section 90.<br />

Research and Development<br />

Roads in Botswana are also not benefiting as much as they should from research and<br />

new ideas and most seriously they do not last as long as they should due to suboptimal<br />

workmanship and materials.<br />

Following advice from the Roads Authority, the Assistant Minister responsible for<br />

roads shall have overall responsibility for a research and development programme.<br />

The objectives below summarise the <strong>Government</strong>’s position:<br />

1) Increase the life <strong>of</strong> roads through better supervision, materials and<br />

construction methods;<br />

2) Improve the safety <strong>of</strong> roads through adoption <strong>of</strong> new techniques;<br />

3) Improve value from road projects by adopting the principles <strong>of</strong> project cycle<br />

management and value engineering.<br />

4) To increase the technical capacity <strong>of</strong> road agencies, increase self-sufficiency,<br />

reduce dependency.<br />

5) Ensure that solutions are technically, economically and operationally<br />

appropriate<br />

6) To ensure that potential benefits from new ideas, methods and materials are<br />

realised.<br />

7) Maximising value <strong>of</strong> the road asset<br />

Some actions to be taken to advance research and development are listed as follows:<br />

1) Provide training in design and pavement technology<br />

2) Expand the role <strong>of</strong> the Road Training Centre so that it may carry out studies,<br />

research and development activities.<br />

3) Set up and management a research programme<br />

4) Establish links with overseas and other road research organisations<br />

5) Trial new materials and techniques<br />

6) Ensure that specifications are continually updated using the Roads Technical<br />

Standards Committee<br />

7) Promote recycling <strong>of</strong> pavement materials<br />

8) Instigate a suggestion and reward scheme.<br />

Section 91.<br />

Continuing to improve the quality <strong>of</strong> life<br />

The Strategic Environmental Assessment (SEA) <strong>of</strong> roads is confined mostly to issues<br />

<strong>of</strong> road construction and is neither wide enough nor strategic in nature. There is<br />

increasing awareness <strong>of</strong> the negative impacts <strong>of</strong> traffic, especially in towns. Road<br />

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Botswana <strong>National</strong> <strong>Integrated</strong> <strong>Transport</strong> <strong>Policy</strong><br />

transport is a major emitter <strong>of</strong> green house gases. Road transport is also a major<br />

consumer <strong>of</strong> non-renewable sources <strong>of</strong> energy and most significantly roads consume<br />

large qualities <strong>of</strong> gravel and there is lack <strong>of</strong> approve sites where this can be obtained.<br />

The Development <strong>of</strong> Roads has benefited Batswana through improved accessibility<br />

and mobility and has made a significant contribution to the improving the quality <strong>of</strong><br />

life. And yet roads have also had negative impacts through ill-managed changes in<br />

land use patterns, social fragmentation, rapid urbanisation as well as vehicular<br />

generated pollution that significantly contribute to Global Warming.<br />

All roads must comply with good environmental standards; negative impacts on the<br />

community should be ameliorated and long term effects on land use and natural<br />

resources better understood. The Minister responsible for roads shall put in place and<br />

apply good practices for environmental protection whilst carefully monitoring and<br />

reducing the level <strong>of</strong> green house gas emissions.<br />

The Minster for responsible for transport shall together with the Minister responsible<br />

for the environment strive to reduce the negative impacts that transport has on the<br />

environment in a holistic, coordinated and equitable way. The following policy<br />

objectives will drive the measures that will be taken:<br />

1) Ensure that strategic environmental assessments are really strategic<br />

2) Ensure that Road Development is fully integrated into land use planning<br />

including assessment <strong>of</strong> the long term effects on demographic patterns and<br />

natural resources<br />

3) Minimise the impact <strong>of</strong> roads on the environment setting and enforcing<br />

targets for noise and air pollution, visual.<br />

4) Monitor and aim to reduce the emission <strong>of</strong> green house gasses.<br />

5) Ensure that road transport policy and energy policy are integrated<br />

Measures to be taken that will improve the environment include:<br />

1) Protect soils water and natural resources from transport impacts<br />

2) Protect wildlife and habitat from transport impacts<br />

3) Insulate settlements from the negative impacts <strong>of</strong> transport whilst maximising<br />

the advantages.<br />

4) Establish, review and implement guidelines for EIA and audit procedures.<br />

5) Carry out a comprehensive analysis <strong>of</strong> the social, economic and<br />

environmental impact <strong>of</strong> road development in Botswana over the past 50<br />

years to learn lessons for the future<br />

6) Prepare a long term strategy - 50 years - for the development <strong>of</strong> roads in<br />

Botswana taking into national and international environmental commitments<br />

and factors<br />

7) Carry out mandatory evaluations every 5 years to evaluated the<br />

implementation <strong>of</strong> the roads sub-sector policy and strategy;<br />

8) Establish a <strong>National</strong> Strategic Road-Stone Reserve and also pre-approved<br />

sites where gravel can be quarried<br />

Article XV. Obtaining better value<br />

Section 92.<br />

Ensuring sustainable funding for roads<br />

Since the Road Fund Levy or RFL was established in 2001, the funding raised has<br />

not been sufficient to cover routine and periodic maintenance <strong>of</strong> the Public Highway<br />

Network. The reason for this is that maintenance has been funded from the<br />

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<strong>Government</strong> recurrent budget and the budget for maintenance has been much less<br />

than it should have been. Alternative ways <strong>of</strong> raising funds have been looked into.<br />

Physical tolling has been considered several times but the conclusion is that it is not<br />

cost effective because a disproportionately large amount <strong>of</strong> the funds raised will be<br />

used for the administration and operation <strong>of</strong> the tolling process, due mostly to low<br />

traffic levels. Despite this, the <strong>Government</strong> will require that procedures and systems<br />

for tolling will be kept under close review by the Minister responsible for transport.<br />

The <strong>Government</strong> would encourage developing partnerships with, for example, oil<br />

companies that may construct and operate toll plazas in exchange for land and other<br />

rights to construct filling stations and roadside services on the main strategically<br />

important network.<br />

The <strong>Government</strong> is also aware <strong>of</strong> rapid changes in technology that will, in the near<br />

future, permit the metering <strong>of</strong> vehicles using geographic positioning technology and<br />

require that the Minister responsible for transport and communications carefully<br />

monitor progress in this important development.<br />

In addition to the maintenance <strong>of</strong> the PHN, safety, environmental control, traffic<br />

management and enforcement will also require funding directly from user charges.<br />

This policy applies a key principle <strong>of</strong> the <strong>National</strong> <strong>Transport</strong> <strong>Policy</strong> that will enable<br />

road rail and air to contribute to the transport sector on similar terms.<br />

<strong>Government</strong> has less funding for maintenance, upgrading and new construction than<br />

in the past, and the signs are that this trend will continue. The <strong>Government</strong> recognise<br />

the challenges ahead in sustaining the PHN.<br />

The <strong>Government</strong> intend to change the way that roads are funded by shifting the<br />

burden from the general taxpayer to that <strong>of</strong> the road user. This would align it to other<br />

modes <strong>of</strong> transport such as air and rail. Funding for the maintenance and operation <strong>of</strong><br />

roads will be raised from Road User Charges such as the RFL and license fees and<br />

funding from government recurrent budgets will, with certain exceptions, be phased<br />

out.<br />

Currently the RFL charged in Botswana is the lowest in Africa as can be seen in the<br />

table below. The <strong>Government</strong> will progressively increase the RFL from 10 Thebe per<br />

litre to at least 125 Thebe per litre by 2016 that will be spent on maintenance - similar<br />

to Namibia. In addition there will be a further levy <strong>of</strong> around 1 Pula per litre to cover<br />

the costs <strong>of</strong> road accidents that will go into the Motor Vehicle Accident Fund.<br />

Thereafter, decisions to increase in the RFL will be based on recommendations to the<br />

<strong>National</strong> <strong>Transport</strong> Authorityfrom the Board <strong>of</strong> Directors <strong>of</strong> the <strong>National</strong> Road<br />

Authority based on carefully prepared and systematic analysis, successful<br />

implementation <strong>of</strong> its programmes and plans, demonstrable improvement in the<br />

performance and endorsement from the road user, through its representative body -<br />

the Road User Consultative Council.<br />

The principal that the user pays as directly as possible for the services received shall<br />

be applied equitably throughout the transport sector. However, it is not possible to<br />

apply this principle absolutely because 80% <strong>of</strong> the finance collected through the RFL<br />

comes from only 15% <strong>of</strong> the PHN. The A1, A2, A3, A12 and A33 together with urban<br />

roads in Greater Gaborone and other major cities provide for most <strong>of</strong> the road<br />

transport demand. Moreover the <strong>Government</strong> aims to minimise the prevalence <strong>of</strong><br />

cross subsidy in economy in general, as it is seen to be to an inefficient way <strong>of</strong><br />

promoting growth and development.<br />

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Table 5 RFL and rates <strong>of</strong> collection across Africa<br />

% <strong>of</strong> RFL<br />

Road fund Levy<br />

Country in RUC Petrol Diesel Information<br />

cents US cents US Date Source<br />

Namibia 75.0% 18 18 2009 1<br />

Chad 61.0% 15 8 2006 2<br />

Mozambique 87.5% 14 10 2009 1<br />

Kenya 100.0% 11 11 2006 2<br />

CAR 90.0% 10 10 2006 2<br />

Ethiopia 99.5% 8.3 6.5 2006 2<br />

Benin 51.5% 8 6 2006 2<br />

Cameroon 93.5% 8 10 2006 2<br />

Cote d’Ivoire 100.0% 8 2 2006 2<br />

Tanzania 75.0% 8 8 2006 1<br />

Malawi 90.0% 7 9 2006 2<br />

Togo 100.0% 7 7 2006 2<br />

Ghana 88.0% 6 6 2006 2<br />

Niger 93.0% 6 6 2006 2<br />

Zambia 95.0% 5 4.5 2006 2<br />

Burundi 60.0% 4 4 2006 2<br />

Lesotho to 67.0% 4 5 2006 2<br />

Rwanda 68.5% 4 4 2006 2<br />

Madagascar 100.0% 3 3 2006 2<br />

Mali 75.0% 3 3 2006 2<br />

Zimbabwe 98.0% 3 3 2006 2<br />

Botswana 65.0% 1.5 1.5 2010<br />

Source:<br />

ARMFRA meeting SADC focal Group Workshop, 16/16.09.2009, Lilongwe<br />

World Bank presentation to Uganda MPs 14.12.2007<br />

Recognising that many secondary, tertiary and access roads will not generate<br />

sufficient user charges to pay for their maintenance, recurrent funding will continue to<br />

be used. However, the open ended arrangement <strong>of</strong> the past will be replaced by a<br />

businesslike one. The <strong>Government</strong> proposes to enter into a special agreement with<br />

the Road Authority to provide cost effective maintenance <strong>of</strong> socially necessary roads.<br />

An important feature <strong>of</strong> this arrangement will be that the Road Authority will be<br />

required to account for the both the income and expenditure <strong>of</strong> the PHN for each road<br />

section. In doing so the <strong>Government</strong> will top up the funding needed to sustain such<br />

roads in a serviceable condition, where it is proven that income is less than the<br />

expenditure needed. Moreover, the Minister responsible for roads will be required to<br />

ensure that the Road Authority implements a strategy <strong>of</strong> minimising the top-up over<br />

time, through smarter maintenance practices.<br />

Road transport infrastructure is considered a strategic asset and the <strong>Government</strong> will<br />

continue to fund development and capital works indirectly from general taxation.<br />

There is one overall objective that will drive the policy:<br />

Ensure that in the long term there is sufficient finance available for providing,<br />

maintaining and operating the Public Highway Network in serviceable condition<br />

Some <strong>of</strong> measures that will be taken to ensure that the objective will be achieved are<br />

summarised below:<br />

1) Reclassify roads to align with traffic levels and available budget<br />

2) The RFL to cover routine maintenance on all roads<br />

3) The RFL to cover periodic maintenance on strategically important roads<br />

4) The RFL also to cover traffic management on all roads<br />

5) The RFL may also cover traffic policing on all roads<br />

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6) The RFL will contribute to the Motor Vehicle Accident Fund sufficient to fully<br />

internalise the costs <strong>of</strong> road accidents.<br />

7) Recurrent budget to be used by special agreement on socially necessary<br />

roads where the RFL is not sufficient<br />

8) General taxation, s<strong>of</strong>t loans, will be used for reconstruction and new<br />

construction <strong>of</strong> roads<br />

9) PPP is also to be used where commercially viable.<br />

10) Other sources <strong>of</strong> funding to be exploited including rentals for the use <strong>of</strong> road<br />

reserves, advertising, way leaves and value added services.<br />

11) Charges will paid by users <strong>of</strong> the road reserve including statutory utilities<br />

12) Commercial organisations will pay for access to the PHN<br />

13) Utilities will be charged per metre per year for way leaves, the cost <strong>of</strong><br />

repositioning if needed.<br />

14) Ensure that road management is more commercially orientated.<br />

15) Review and re-classify roads to align service standards with traffic levels and<br />

affordability.<br />

16) Increase the road user charges to cover maintenance expenditure for the<br />

entire PHN in time.<br />

17) Develop and implement a business strategy for roads<br />

18) Roads management to become commercially smarter<br />

19) Sources <strong>of</strong> revenue open to the Road Authority to be broadened.<br />

Section 93.<br />

Improving the management <strong>of</strong> road funds<br />

Road fund management should be strengthened and accounts published so that the<br />

users can see what their money has been spent on.<br />

Table 6 RFL Revenue and Expenditure 2005/11<br />

YEAR<br />

73801 73802<br />

Revenue Expenditure Balance<br />

Brought<br />

f orw ard 9,805,103 9,805,103<br />

2005/2006 3,026,815 10,022,875 -6,996,060 -231% 2,809,043<br />

2006/2007 28,994,584 15,068 28,979,516 100% 31,788,559<br />

2007/2008 6,265,160 0 6,265,160 100% 38,053,719<br />

2008/2009 44,736,780 29,667,551 15,069,229 34% 53,122,948<br />

2009/2010 81,214,976 70,314,050 10,900,926 13% 64,023,874<br />

2010/2011 97,176,624 97,055,207 121,416 0% 64,145,290<br />

2011/2012<br />

1st Qr 21,394,479.69 29,783,564.00 -8,389,084 -39% 55,756,206<br />

Source: Road Department – July 2011<br />

% over<br />

/under<br />

spent<br />

Accumulated<br />

Balance<br />

Curently funding is not broken down by<br />

use, this means that there is too much<br />

flexibility and scope for slack<br />

management. It also means that there<br />

are no specifically targeted funds so that<br />

their application is ad hoc. Funds may<br />

not be used optimally as they are driven<br />

by the need to spend rather need to<br />

provide value.<br />

Special road funds will replace the national budget as a way <strong>of</strong> funding roads. The<br />

<strong>National</strong> <strong>Transport</strong> Authority will set up harmonized and integrated mechanisms for<br />

funding the sector and the subsectors. Consequently the NTA will also provide<br />

oversight to establishment <strong>of</strong> a road fund or funds and their procedures ensuring that<br />

funding for roads is allocated on the same basis as funding river, railways and<br />

aviation.<br />

The main objectives <strong>of</strong> the funding policy will be<br />

1) Improve the performance <strong>of</strong> road management.<br />

2) Improve transparency in the application <strong>of</strong> funds<br />

3) Align programmes with funding<br />

4) Provide independent oversight to road fund management<br />

Measures and actions to be taken to ensure that roads funding is sufficient, properly<br />

spent and providing maximum value include the following:<br />

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1) Ensure that the <strong>National</strong> Roads Authority that is mandated to manage the<br />

Roads Fund<br />

2) Establish funding framework including particular aims and objectives for each<br />

fund as indicated...<br />

o Strategic Road Fund<br />

o Primary Road Fund<br />

o Secondary Road Fund<br />

o Tertiary and Access Road Fund<br />

o Urban Road Maintenance Fund<br />

o Traffic Management and Control Fund<br />

o NMT infrastructure fund<br />

o Non Classified Road Fund<br />

o Accident Prone Areas Elimination Fund<br />

o Emergency Relief Fund<br />

3) Manage funds to provide maximum return.<br />

Section 94.<br />

Introducing private finance<br />

Private sector finance is untapped, concessioning untried and collaborative<br />

partnerships untested.<br />

Other types <strong>of</strong> PPP have not been explored in roads, moreover, properties<br />

developers and businesses by and large do not directly finance the roads that they<br />

require and the concept <strong>of</strong> planning gain is not tested. Risk sharing in PPP requires to<br />

be better understood<br />

Road provision needs to be much more businesslike. The Minister <strong>of</strong> <strong>Transport</strong><br />

through his appointed agents shall encourage public/private partnerships financing<br />

initiatives for particular categories <strong>of</strong> roads such as International corridors and ensure<br />

that enterprises that benefit from directly from roads share the cost <strong>of</strong> their<br />

construction and maintenance. The <strong>Government</strong> will take steps to also fund roads by<br />

tapping into the planning gain brought about those roads.<br />

Furthermore the Minister <strong>of</strong> <strong>Transport</strong> with Ministers <strong>of</strong> Housing and Lands and<br />

Finance and Economic Planning will ensure that regulations are introduced that<br />

require developers to pay directly for the infrastructure that they need. The <strong>Policy</strong><br />

objectives that will drive private finance initiatives forward are<br />

1) To strengthen relations with Banks and permit the Road Authority to borrow<br />

directly, using land and other assets as collateral and to enter into PPP<br />

agreements<br />

2) To encourage greater participation in roads financing from the private sector<br />

3) To tax planning gain where property values increase as a result <strong>of</strong><br />

improvements in road infrastructure.<br />

4) Ensure property developers pay for the road infrastructure that they need<br />

5) Ensure risks are always fully understood by public sector<br />

Specific measures that will be taken to introduce private finance to funding the PHN<br />

include<br />

1) Modify regulations enabling devolutions <strong>of</strong> pertinent statutory powers<br />

permitting PPFI to more readily take place<br />

2) Property developers and businesses to finance more directly the roads that<br />

are needed<br />

3) Critically review performance <strong>of</strong> PP and PPFI<br />

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4) Identify set up and implement PPP pilot projects in roads<br />

5) Revise the town and country planning legislation to permit the taxation <strong>of</strong><br />

planning gain<br />

6) And tax the planning gain on the proposed Kazungula Bridge and other major<br />

projects which generate significant accessibility improvements<br />

The Kazungula Road and Rail Bridge has an estimate cost <strong>of</strong> 1.3 billion Pula<br />

Traffic levels are relatively low and toll revenue, once capitalised, will account for<br />

about 20% <strong>of</strong> the funding needed. Land values within 50 km radius <strong>of</strong> the Bridge are<br />

quite low without the bridge but with the bridge will increase considerably. This added<br />

value can be taxed to provide some <strong>of</strong> the additional funding needed.<br />

.<br />

Section 95.<br />

Improving Economic Performance<br />

The need for expenditure on roads is much greater than the available budget. Road<br />

investment has not always provided good value, road programmes are not assessed<br />

for value and projects are not subjected to feasibility analysis. Furthermore, the cost<br />

<strong>of</strong> projects has escalated, there is no data base <strong>of</strong> unit costs and there are no road<br />

price indices. Public information regarding roads programmes is limited<br />

The <strong>Government</strong> is very concerned that road construction costs have escalated in<br />

recent years and, in consequence the economic benefit <strong>of</strong> roads to the nation has<br />

been undermined. It also appreciates that the Public Road Network must be<br />

affordable in order for it to be sustainable and that this increasingly in question. In<br />

short the government is dismayed <strong>of</strong> the lack <strong>of</strong> interest in road economics by the<br />

agencies responsible for roads.<br />

The <strong>Government</strong> will no longer tolerate this situation and will not invest in roads that<br />

cannot show a positive economic benefit to the country. To reverse this unacceptable<br />

situation the Assistant Minister responsible for Roads or appointed agents shall put in<br />

place programme based management that will ensure that customers obtain good<br />

value.<br />

The Assistant Minister will also be proactive in driving down the cost <strong>of</strong> construction,<br />

will have the right to decline all tenders and retender, postpone the implementation <strong>of</strong><br />

projects, publish construction price indicators and take whatever steps are needed to<br />

protect the public from institutionalised price rigging by the construction industry.<br />

Pricing, Above all the Assistant Minister will need to show that resources allocated<br />

the road sub-sector management and economic development is completely aligned.<br />

The principle objectives to improving the road sub-sector economic performance are<br />

set out as follows:<br />

1) Improve programme management to obtain better value<br />

2) Improve economic performance <strong>of</strong> programmes<br />

3) improve information to customers on the performance <strong>of</strong> each programme<br />

4) Ensure all road investments are economically and financially feasible<br />

5) Be pro-active in reducing the unit cost <strong>of</strong> road construction<br />

Measures to be taken that will achieve the policy objectives are summarised below.<br />

The Minster <strong>of</strong> Roads will add to these measures following a review <strong>of</strong> the economic<br />

value <strong>of</strong> the PHN to the Nation.<br />

1) Development Plans to define the maintainable road network.<br />

2) In accordance with the aims and objectives establish criteria for prioritizing<br />

financing roads programmes<br />

3) Publish a list <strong>of</strong> roads for which funding will be made available.<br />

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4) Set up programme based management – appoint a single manger<br />

responsible for each programme.<br />

5) Initiate a full enquiry into the cost <strong>of</strong> road construction<br />

6) Keep records <strong>of</strong> all road construction cost data and compile and publish<br />

quarterly road construction cost indices<br />

7) Monitor and evaluate programmes published in an annual report.<br />

8) Apply HDM IV, RED or other similar evaluation systems consistently for all<br />

PHN investments.<br />

Section 96.<br />

Improving Financial management<br />

Various agencies responsible for funding or executing road works have failed to<br />

publish accounts. There is little financial accountability. It would not be straight<br />

forward for the Minister <strong>of</strong> <strong>Transport</strong> to say exactly how much has been spent on the<br />

entire PHN and also how much needs to spent at the present time.<br />

There is a lack <strong>of</strong> cost consciousness and good financial management... The<br />

<strong>Government</strong> has zero tolerance to the lack <strong>of</strong> transparency, and accountability in the<br />

provision <strong>of</strong> roads needs attention. Road users that pay for road have right to know<br />

how their money is spent. The Assistant Minster responsible for Roads will be<br />

responsible for accurate reporting on the allocation <strong>of</strong> funding to roads and will<br />

ensure that the agency responsible will publish accounts.<br />

The main objectives are that...<br />

1) All agencies responsible for funding and executing roads to prepare audited<br />

accounts.<br />

2) Minimise use <strong>of</strong> retrospective finance<br />

3) Maximise efficiency <strong>of</strong> RFL and other revenue collection<br />

4) Increase the asset value <strong>of</strong> the PHN<br />

5) Improve transparency and accountability<br />

To achieve this...<br />

1) Accountability to become embedded into the road management culture.<br />

2) Pr<strong>of</strong>essional and technical personnel to become financially literate.<br />

3) Mandatory annual audits <strong>of</strong> accounts<br />

4) Publication <strong>of</strong> accounts<br />

5) Establish road construction cost indices<br />

6) Improve budgeting and planning<br />

7) Financial Management training to be provided to senior management<br />

8) The <strong>National</strong> Road Authority to be business minded entity and to have at its<br />

head a CEO with business management or accounting qualifications<br />

Article XVI. Getting the management <strong>of</strong> Road<br />

Sub-sector right<br />

Section 97.<br />

Integrating Roads<br />

Strategic management <strong>of</strong> the Roads Sector overall is lacking, demarcation <strong>of</strong><br />

responsibilities between road provision (The Department <strong>of</strong> Roads) and operations<br />

(The Department <strong>of</strong> Road <strong>Transport</strong> and Safety) are too segregated and there is<br />

practically no synergy with other economic sectors and local government<br />

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Roads are vital, responsible for over 90% <strong>of</strong> all movement and yet there is no overall<br />

strategic management <strong>of</strong> the roads sub-sector. Nobody can say exactly what<br />

contribution is made by roads to the economy or if expenditure on roads provides<br />

good value. The <strong>Government</strong> will establish a new line Ministry for Roads and Road<br />

<strong>Transport</strong> under the Ministry <strong>of</strong> <strong>Transport</strong> and Communications so that our roads<br />

policy will be fully informed and will address the needs <strong>of</strong> all road users whether<br />

pedestrians or road haulage operators. The purpose <strong>of</strong> road sub-sector management<br />

will be:<br />

1) Improving and sustaining roads policy and strategy<br />

2) Integrating road provision with economic development<br />

3) Obtaining synergy between road provision and operations<br />

The <strong>Government</strong> will take the following actions immediately upon the passing <strong>of</strong> this<br />

<strong>Policy</strong><br />

1) A New Assistant Minster for Roads will oversee the restructuring <strong>of</strong> the roads<br />

subsector<br />

2) Prepare and amend legislation<br />

Section 98.<br />

Establishing Effective Ownership and Responsibility<br />

Legislation needs to clearly designate ownership <strong>of</strong> all roads as there is no single<br />

authority is responsible for the PHN; the roads gazetteer does not exist/is not up-todate,<br />

<strong>Government</strong> has been adopting roads into the PHN without considering the<br />

consequences on the national treasury. Some roads need de-classifying due to lack<br />

<strong>of</strong> traffic. In addition land and property issues are not resolved in a timely way and the<br />

road reserve is a largely untapped source <strong>of</strong> revenue.<br />

Central <strong>Government</strong> via the Ministry <strong>of</strong> <strong>Transport</strong> and Communcations Roads<br />

Department is responsible for 93% <strong>of</strong> the PHN leaving Local <strong>Government</strong> with just<br />

7% as can be seen in Table 8 PHN Division <strong>of</strong> Riparian Responsibility (April 2011).<br />

However, when consider the use <strong>of</strong> the PHN there is a different picture where local<br />

government maintained roads account for 39% <strong>of</strong> traffic and MoTC roads 61%. This<br />

is an important consideration when allocating funding, so that both traffic and length<br />

is taken into account.<br />

Table 7 Distribution <strong>of</strong> traffic on the PHN managed by Central and Local <strong>Government</strong><br />

Road Type<br />

Local <strong>Government</strong><br />

Central <strong>Government</strong><br />

The <strong>Government</strong> is not in a position to provide strategic management <strong>of</strong> the entire<br />

PHN, because <strong>of</strong> fragmented management and variable responsibilities. The road<br />

user is oblivious to the fine tuning <strong>of</strong> road management and simply demands common<br />

standards throughout.<br />

Table 8 PHN Division <strong>of</strong> Riparian Responsibility (April 2011)<br />

Road Type Local <strong>Government</strong> Central <strong>Government</strong><br />

All Roads<br />

Vehicle km % Vehicle km % km<br />

Paved roads 2,195,886 37% 2,396,219 40% 4,592,105<br />

Unpaved roads 96,401 2% 1,264,260 21% 1,360,660<br />

Sub-total 2,292,287 39% 3,660,479 61% 5,952,765<br />

All Roads<br />

km % km % km<br />

Paved roads 1,046 13% 6,846 87% 7,892<br />

Unpaved roads 275 2% 12,041 98% 12,316<br />

Sub-total 1,321 7% 18,887 93% 20,208<br />

This being the case a <strong>National</strong> Road Authority will be established by the Minister<br />

responsible for transport and the Minster responsible for Local <strong>Government</strong> that will<br />

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have the oversight for the entire PHN. The Assistant Minister responsible for roads<br />

will ensure that the Roads Authority will be vested with appropriate powers to<br />

financially and technically regulate roads and manage the valuable assets including<br />

land to the best interests <strong>of</strong> the Nation; The Ministry will maintain and publish a<br />

gazette <strong>of</strong> roads within their current status, classification and riparian ownership.<br />

1) The Public Highway Network, as all transport infrastructure shall be owned<br />

by the Sate<br />

2) Roads to be classified according to needs and traffic levels<br />

3) Ownership responsibilities may be delegated to another agency or<br />

outsourced to the private sector under licence to the Roads Authority for<br />

limited periods <strong>of</strong> up to 25 years<br />

4) A single unitary authority shall be responsible for all roads<br />

5) <strong>Government</strong> to be comprehensively aware <strong>of</strong> the condition and performance<br />

<strong>of</strong> the entire PHN<br />

6) Road Authority to be able to purchase land and compensate property owners<br />

7) Road Authority to be able to raise revenue from road reserve to help finance<br />

roads maintenance<br />

The main initiatives that will be carried out to define ownership and improve the<br />

management <strong>of</strong> the roads sub-sector include:<br />

1) Centralise the strategic management <strong>of</strong> the PHN<br />

2) Transfer the management responsibility for all road assets to the proposed<br />

strategic authority;<br />

3) Ensure that the proposed Authority has sufficient powers to financially and<br />

technically regulate roads<br />

4) Ensure that the governing body <strong>of</strong> the PHN is representative <strong>of</strong> all interests<br />

through a Board <strong>of</strong> Directors.<br />

5) The Public Roads Act will be updated to define statutory ownership and<br />

responsibility for all roads,<br />

6) The Act will define a classification for all public roads by functional hierarchy<br />

and user and social needs<br />

7) A new Roads Authority Act will set out remit for the <strong>National</strong> Roads Authority,<br />

which will be commonly known as the Botswana Roads Corporation to<br />

distinguish it from <strong>Government</strong>.<br />

8) The Road Authority will purchase land and compensate property owners<br />

9) A NRA Act will set out remit for the NRA and also other roads agencies<br />

through whom maintenance and construction will be carried out<br />

Section 99.<br />

Changing the paradigm<br />

<strong>Policy</strong>, legislation, strategic planning, programming, design, procurement, works<br />

execution are currently being carried out within the MoTC under one Department for<br />

main roads and similar combined functions are carried out by Ministry <strong>of</strong> Local<br />

<strong>Government</strong> for some urban roads.<br />

Within the Roads Department maintenance is carried out through 7 Regions and 23<br />

Depots There is no separation <strong>of</strong> ‘political’ and ‘administrative’, or <strong>of</strong> ‘client’ and<br />

‘supplier’ functions – as necessary to facilitate good governance. Approximately<br />

1,800 persons are employed by the Roads Department to look after 18,000 km <strong>of</strong><br />

roads. In addition almost all construction and most <strong>of</strong> the maintenance is carried out<br />

by private companies. However, little is known about the relative efficiency <strong>of</strong> the<br />

current arrangements since performance information <strong>of</strong> the various bodies<br />

responsible for road administration and management is not published for public<br />

scrutiny.<br />

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Botswana <strong>National</strong> <strong>Integrated</strong> <strong>Transport</strong> <strong>Policy</strong><br />

Indigenous road industries and services in Botswana are substantially<br />

underdeveloped and opportunities for expansion in both home and neighbouring<br />

markets are limited. The reason for this lies mostly with the way the roads supply<br />

market is structured. The construction industry needs to position itself to take<br />

advantage <strong>of</strong> future regional and international opportunities.<br />

Table 9 Road Department Allocation <strong>of</strong> PHN to Regional / Depot April 2011<br />

Region<br />

Depot<br />

Network<br />

Paved Gravel Track/Earth<br />

Depot<br />

Total<br />

Letlhakeng 159.25 116 289 564.25<br />

Mochudi 188.37 422.55 123 733.92<br />

Molepolole 407.4 352.05 533.6 1293.05<br />

South East Ramotswa 153.76 0 0 153.76 2744.98<br />

Total 908.78 890.6 945.6<br />

Goodhope 299.54 379.79 372 1051.33<br />

Kanye 195.26 422.09 300 917.35<br />

Southern Mabutsane 233.83 298.5 123 655.33 2624.01<br />

Total 728.63 1100.38 795<br />

Hukuntsi 42 857.38 197 1096.38<br />

Kang 217.31 51 53 321.31<br />

South West Tsabong 213.45 1074.64 205 1493.09 2910.78<br />

Total 472.76 1983.02 455<br />

Gumare 221.95 309 275 805.95<br />

Kasane 310.49 34 93.33 437.82<br />

Maun 484.49 279.45 0 763.94<br />

North West Shakawe 156.23 391 213 760.23 2767.94<br />

Total 1173.16 1013.45 581.33<br />

Ghanzi 494.81 409 234 1137.81<br />

West Charleshill 164.27 389.18 89 642.45 1780.26<br />

Total 659.08 798.18 323<br />

Lethlakane 447.94 0 0 447.94<br />

Masunga 487.39 841.57 471.1 1800.06<br />

North East Nata 478.1 75.5 0 553.6 2801.6<br />

Total 1413.43 917.07 471.1<br />

Bobonong 325.66 365.07 149 839.73<br />

Lerala/Machaneng 249.98 126.36 13 389.34<br />

Region<br />

Total<br />

Mahalapye 488.53 562.21 110 1160.74<br />

Central Palapye 426.33 215.2 226 867.53 3257.34<br />

Total 1490.5 1268.84 498<br />

Grand Total 6846.34 7971.54 4069.03<br />

The policy switch from<br />

development to maintenance<br />

is expected to create<br />

thousands more new local<br />

jobs because more labour is<br />

needed for maintenance that<br />

new construction and that<br />

maintenance works are<br />

more aligned to local<br />

capacities.<br />

The road sub-sector will be<br />

administered and managed<br />

in a manner that encourages<br />

good governance, including<br />

the separation <strong>of</strong><br />

administrative from political<br />

functions, the separation <strong>of</strong><br />

supplier from client functions<br />

within organizations, and the<br />

establishment <strong>of</strong> user<br />

reprehensive body, the<br />

publication <strong>of</strong> performance<br />

indicators and the results <strong>of</strong><br />

technical and financial audits<br />

Most significantly the newly structured road sub-sector will create many thousands <strong>of</strong><br />

jobs especially in maintenance.<br />

The Assistant Minister responsible for roads will lead the changes that the sub-sector<br />

needs to become a world class leader in the provision <strong>of</strong> safe affordable, efficient and<br />

effective roads and with the following objectives in mind....<br />

1) To diversify and expand the road sub-sector market<br />

2) Promote exports <strong>of</strong> road related services<br />

3) Generate new jobs especially in road maintenance<br />

4) To develop the market for roads construction industries<br />

5) To develop the market for ancillary services needed by the Roads Sub-sector<br />

The Assistant Minister responsible for roads will appoint a change management team<br />

to provide oversight to implement this <strong>Policy</strong> and the reforms <strong>of</strong> the road subsector.<br />

The initiatives that will be driven will include:<br />

1) Set up and empower the <strong>National</strong> Roads Authority to regulate the sub-sector,<br />

provide technical standards, plan and fund development and maintenance.<br />

2) Establish a Road User Consultative Council that will represent road users.<br />

3) Separate client and supplier functions throughout the sub-sector.<br />

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Botswana <strong>National</strong> <strong>Integrated</strong> <strong>Transport</strong> <strong>Policy</strong><br />

4) The indigenous consulting and construction market will be strengthened<br />

5) A mimimum proportion <strong>of</strong> work will be done by indigenous companies<br />

6) District Roads Depots will be improved and then privatised<br />

7) Other supplier functions will either outsourced or privatised<br />

8) Outsourcing supplier functions /services to the private sector where such<br />

services have a commercial value<br />

9) All agencies in receipt <strong>of</strong> public funding either directly or indirectly will have<br />

technical and financial audits<br />

10) The <strong>National</strong> Roads Authority will develop performance indicators for road<br />

provision and management and impose these as a pre-condition <strong>of</strong> doing<br />

business<br />

11) Suppliers <strong>of</strong> roads services will need to be quality assured before being<br />

awarded contracts with the <strong>National</strong> Roads Authority<br />

Section 100.<br />

Making operations more responsive<br />

Road agencies generally do not have clearly defined corporate goals and objectives,<br />

response time and quality to customer queries is poor, knowledge <strong>of</strong> contracting and<br />

other processes is lacking and payment to suppliers is very slow which only adds<br />

considerably to the final costs <strong>of</strong> the transactions. The <strong>Government</strong> cannot pretend<br />

any longer to be businesslike and the private sector lacks maturity and is not always<br />

responsible. The <strong>Government</strong> will no longer tolerate this.<br />

The <strong>Government</strong> fully supports the development <strong>of</strong> the private construction industry<br />

and envisages an expansion <strong>of</strong> the capacity <strong>of</strong> the industry to undertake all work and<br />

to be able to fairly compete with regional and international companies to undertake<br />

work nationally, in SADC and beyond. In so doing the <strong>Government</strong> will be vigorous is<br />

supporting the SADC policy <strong>of</strong> an unrestricted market and will do all that it can to<br />

ensure that <strong>National</strong> Companies can fully develop. The principle objectives <strong>of</strong> the<br />

<strong>Policy</strong> are as follows:<br />

1) Improve the responsiveness <strong>of</strong> roads organisations to customers and<br />

suppliers<br />

2) Improve business capacity and relationships<br />

3) Commercialise public sector road construction activities<br />

4) Better regulate the private sector<br />

5) Promote expansion <strong>of</strong> the indigenous road construction industry<br />

6) To support regionalisation <strong>of</strong> construction markets<br />

The main actions to be taken include:<br />

1) Road organizations will be commercialized and performance standards<br />

aligned to other parts <strong>of</strong> the transport sector and to normal business<br />

practices.<br />

2) Public and Business Relations will be significantly improved<br />

3) The construction industry will become self –regulating<br />

4) The <strong>Government</strong> will enforce a merit system in the arrangements for<br />

procurement <strong>of</strong> works<br />

5) Force account operations will be converted to fully commercialised entities<br />

with concomitant practises.<br />

6) The SADC open market policy will be implemented in Botswana and<br />

enforced in neighbouring countries<br />

7) Business processes will be reviewed and modified<br />

8) New management information systems will be in place and operating such as<br />

IBRMS (<strong>Integrated</strong> Botswana Road Management System).<br />

9) Management will adopt new practises and be results driven.<br />

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Botswana <strong>National</strong> <strong>Integrated</strong> <strong>Transport</strong> <strong>Policy</strong><br />

10) Road Depots will be modernised and improved and business practises<br />

commercialised<br />

11) The procurement <strong>of</strong> all public sector construction projects throughout SADC<br />

will be opened up to all SADC registered companies by 2016<br />

12) A Construction Industry Council will be set up and given powers <strong>of</strong><br />

registration and deregistration <strong>of</strong> contracting a consulting members due to<br />

mal-practice.<br />

13) Only registered members will be called to tender for public works from 2015<br />

Section 101.<br />

Better programming<br />

Programmes for road works are not generally prepared by road agencies but driven<br />

by the <strong>National</strong> Development Plan. There has been poor coherence to the<br />

implementation <strong>of</strong> these plans for the last 10 years. There is little external or internal<br />

pressure to produce realistic programmes and to deliver projects against them<br />

The procurement process is too cumbersome and lengthy. Inefficiency is systemic in<br />

the delivery <strong>of</strong> programmes. Programme reporting is not clear, as are the goals and<br />

results expected from each programme.<br />

The <strong>Government</strong> is acutely aware <strong>of</strong> the problems <strong>of</strong> its current procedures based on<br />

the <strong>National</strong> Development Plan (NDP) and appreciates that only a minority <strong>of</strong><br />

programmes are completed as originally planned. The <strong>Government</strong> will finance road<br />

development programmes that have been properly prepared according to<br />

international best practise and are convinced that the arrangements for the delivery <strong>of</strong><br />

the programmes will be efficient and effective.<br />

The Assistant Minister for Roads will put in place appropriate monitoring and<br />

evaluation procedures that will improve the effectiveness <strong>of</strong> the <strong>Government</strong>’s Road<br />

Development Strategy. The strategy will be aligned to the following objectives:<br />

1) Road programmes are to become more effective in achieving the results<br />

expected<br />

2) Programme implementation is to be better managed<br />

From 2016 the NDP will road development programmes and budgets will no<br />

longer be published in the traditional way but replaced by new procedures<br />

based on programmes that have been set up by the pertinent road agencies<br />

and agreed by stakeholders. The new procedures will include:<br />

Figure 14 Project Cycle Management<br />

1) Road agencies shall prepare<br />

annual prioritized work programmes<br />

against agreed criteria<br />

2) Such programmes will be included<br />

in the <strong>National</strong> <strong>Transport</strong> 5 year Multi<br />

Annual Plan<br />

3) Roads Programmes will be<br />

managed by programme managers who<br />

shall be responsible for their performance.<br />

4) Programme development shall be<br />

in accordance with a systematic<br />

procedure called project cycle<br />

management procedure that connects the<br />

outcomes clearly with the objectives <strong>of</strong> the<br />

project.<br />

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Botswana <strong>National</strong> <strong>Integrated</strong> <strong>Transport</strong> <strong>Policy</strong><br />

5) Programme implementation shall be outsourced to the private sector<br />

Section 102.<br />

Aiming for excellence<br />

Staff in the public sector is poorly motivated because they are under-paid, badly<br />

managed, poorly trained, lacking in incentives for good performance, and have poor<br />

physical working conditions.<br />

Many public sector road organizations are over-staffed, with their costs absorbing so<br />

much <strong>of</strong> the available budget that there is little left for undertaking required works<br />

Over 8,000 persons are employed in the Road Sub-sector, almost 2000 work for the<br />

Road Department, 1000 for Local <strong>Government</strong> and 5000 work for consulting and<br />

contracting companies that are enaged in road construction and maintenance.<br />

The number <strong>of</strong> persons employed in the road sub-sector is expected to rise to over<br />

10,000 as funding is switched from the development <strong>of</strong> roads to their maintenance.<br />

<strong>Government</strong> recognizes that much needs to be done to improve the calibre <strong>of</strong><br />

pr<strong>of</strong>essional technical and artisan labour. The <strong>Government</strong> is also aware that<br />

productivity, especially in the public sector is low.<br />

There is an unacceptable truth that public sector performance and reward systems<br />

are failing due to sub-optimal implementation.<br />

The <strong>Government</strong> is also aware that foreign companies may tend to employ nationals<br />

from the country <strong>of</strong> origin. In one instance, in a project employing 350 persons, only<br />

25 were from Botswana. Apart from denying opportunity where is exists to countless<br />

persons, it also means that tax pulas are not retained in the domestic economy.<br />

The Assistant Minster responsible for Roads will make it his top priority to ensure that<br />

the level <strong>of</strong> skills in the road sub-sector improves for both public and private entities.<br />

The objectives to be achieved by the <strong>Policy</strong> are:<br />

1) To build up domestic capacity in road management, construction and<br />

maintenance.<br />

2) To align skills in the road sub-sector to international standards<br />

3) Make payment and reward procedures really work<br />

4) Improve labour productivity<br />

5) Increase capacity and competence overall<br />

6) Maximise the use <strong>of</strong> local skills in outsourced work<br />

7) Botswana registered companies to obtain work in other countries<br />

To achieve these objectives various measures shall be undertaken including the<br />

following:<br />

1) Private and public sector shall work together to improve the capacity <strong>of</strong> the<br />

road providing services.<br />

2) Post qualification training programmes will be set up that provide all round<br />

experience.<br />

3) In-house training programmes shall become accredited internationally.<br />

4) Study tours shall be strictly controlled to ensure that the expense is fully<br />

justified.<br />

5) Performance reviews will be implemented with greater accuracy<br />

6) Human Resource Development functions shall be strengthened to effectively<br />

manage the process <strong>of</strong> capacity enhancement.<br />

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Botswana <strong>National</strong> <strong>Integrated</strong> <strong>Transport</strong> <strong>Policy</strong><br />

7) Annual training needs assessment to be mandatory for all pr<strong>of</strong>essional<br />

personnel<br />

8) The Road Industry Training Fund to be enhanced<br />

9) A training programme to be set up and pro–actively coordinated by qualified<br />

HRD specialists<br />

10) Contracts awarded to foreign companies shall stipulate the proportion <strong>of</strong> and<br />

requirements for employing local personnel.<br />

Section 103.<br />

Cleaning up the act<br />

The public works sector has acquired a reputation for having a culture <strong>of</strong> corrupt<br />

practices and patronage<br />

The <strong>Government</strong> has a policy <strong>of</strong> zero tolerance to corruption. It is aware that it comes<br />

in many forms and is not always easy to notice.<br />

The road sub-sector will be administered and managed in an environment<br />

characterized by transparency and accountability with its objective being that<br />

corruption will not be tolerated and instances <strong>of</strong> corruption will be publicised. Measure<br />

to be taken include...<br />

1) The <strong>Government</strong>’s existing anti-corruption strategy will be applied vigorously<br />

to the road sub-sector at all levels;<br />

2) The Minster for roads will independently audited projects without notice.<br />

3) The Minster for roads will strengthen the anti-corruption capacity<br />

4) Will have powers to audit projects without notice.<br />

5) Will publish corruption statistics for roads projects<br />

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Botswana <strong>National</strong> <strong>Integrated</strong> <strong>Transport</strong> <strong>Policy</strong><br />

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Railways Sub-Sector<br />

<strong>Policy</strong><br />

Part 3.2<br />

Modernising to provide better services<br />

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Botswana <strong>National</strong> <strong>Integrated</strong> <strong>Transport</strong> <strong>Policy</strong><br />

Article XVII. Increasing Market Share<br />

Section 104.<br />

Defining the business<br />

The historical development <strong>of</strong> Southern Africa and that <strong>of</strong> its Cape Gauge Railway<br />

network went hand in hand. Yet today railways are hardly associated with economic<br />

development at all and railway investments are only seen in terms <strong>of</strong> transport <strong>of</strong><br />

goods. In fact railways essentially serve the mining and energy sectors and are<br />

practically dislocated from the rest <strong>of</strong> the economy. The status quo <strong>of</strong> railways needs<br />

to re-defined from merely the transporter <strong>of</strong> minerals for export and oil imports, to,<br />

once again a generator <strong>of</strong> investment and employment.<br />

Figure 15 Railway Freight Volumes since 1999, 000’s tons<br />

3000<br />

2500<br />

2000<br />

1500<br />

Transit<br />

Freight volumes have declined slightly in<br />

an increasing market. Import volumes are<br />

about double export volumes so many<br />

railway wagons will return empty so<br />

1000<br />

Domestic<br />

adding to the cost. Transit traffic rerouted<br />

via Zimbabwe in<br />

Exports<br />

2005.<br />

500<br />

0<br />

Imports<br />

The <strong>Government</strong> will take steps to<br />

ensure that the economic role <strong>of</strong> the<br />

railways is fully restored. In redefining the<br />

role <strong>of</strong> railways the <strong>Government</strong> foresee that the railways market is fully liberalised,<br />

that railway marketing aggressively exploits their potential. To diversify their service<br />

to exploit opportunities, BR will be restructured. Railways own <strong>of</strong> nonoperational land,<br />

some <strong>of</strong> which is valuable. A property subsidiary company will be created to exploit its<br />

potential to fuel the regeneration <strong>of</strong> a new age for railways.<br />

<strong>Policy</strong> objectives that will help to redefine the business <strong>of</strong> the railways are set out<br />

below:<br />

1) Railways will contribute more directly to economic development.<br />

2) Marketing railway services will improve and become more prominent<br />

3) The market share <strong>of</strong> non-bulk freight traffic will increase<br />

4) Railways to diversify to provide multi-modal services<br />

5) Passenger services both domestic and international will be provided<br />

6) Land and property business will be used to support both railways and<br />

national development<br />

7) Modern marketing techniques will be employed more aggressively<br />

Measures to implement the policy include...<br />

1) Identification <strong>of</strong> core and noncore businesses<br />

2) Integration <strong>of</strong> railways development into land use and transport planning.<br />

3) Reinstatement <strong>of</strong> railways passenger services<br />

4) Use <strong>of</strong> planning gain and property development to help fund new passenger<br />

services<br />

5) Carrying out market research, preparation <strong>of</strong> a marketing plan, and<br />

participation in the business community.<br />

Section 105.<br />

Creating competition in rail sector<br />

This <strong>Government</strong> is beginning to realize that rail transport options are not available<br />

partly because <strong>of</strong> the size <strong>of</strong> the network but partly because <strong>of</strong> institutional and legal<br />

barriers restrain the market... In short, the Rail Sub-sector in Botswana is dominated<br />

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Botswana <strong>National</strong> <strong>Integrated</strong> <strong>Transport</strong> <strong>Policy</strong><br />

by a monopoly. The <strong>Government</strong> intends to break down this monopoly and inculcate<br />

competition into the rail system whenever possible. The Minister responsible for<br />

transport will establish the post <strong>of</strong> Assistant Minister for Railways, Aviation and<br />

Riverine <strong>Transport</strong> who oversee the reform <strong>of</strong> the rail sub-sectors. Reform will include<br />

the establishment <strong>of</strong> a <strong>National</strong> Railway Authority that will be responsible for<br />

regulation, technical standards, planning and funding. At the operating level<br />

Botswana Railways will be split into a number <strong>of</strong> separate companies to supply<br />

infrastructure, property management, and freight and passengers services in the<br />

future and also by outsourcing supporting services wherever better value can be<br />

provided in the private sector. The interests <strong>of</strong> users <strong>of</strong> railway services will be<br />

represented on Railway Users Consultative Council.<br />

The key objectives for market liberalisation will be to...<br />

1) Separate the responsibility for railway services into an executive, operational<br />

and users<br />

2) Increase the market share <strong>of</strong> rail. (Reduce road market share)<br />

3) Lower the costs <strong>of</strong> the provision <strong>of</strong> railway services<br />

4) Move towards a harmonised railway market for SADC<br />

5) Open up the national and international markets ( Generated Traffic)<br />

6) Ensure that there is a high level safety for the railway network with<br />

adherence to international standards<br />

7) Enhance and improve the quality <strong>of</strong> rail passenger services and user’s rights<br />

for international services<br />

8) Ensure interoperability on high speed and conventional railway networks<br />

To achieve these objectives the Minister <strong>of</strong> <strong>Transport</strong> and Communications will set<br />

out implement the following measures<br />

1) Separate the natural monopoly <strong>of</strong> infrastructure provision from the operation<br />

<strong>of</strong> train services<br />

2) Separate management <strong>of</strong> infrastructure and services<br />

3) Outsource infrastructure maintenance and renewal work<br />

4) Create a number <strong>of</strong> independent railway freight operating companies that<br />

initially specialises in the mining, agriculture and general goods markets<br />

5) A railways passenger transport subsidiary company<br />

6) A tariff structure and other conditions for railway access charges<br />

7) Rolling stock leasing company<br />

8) The <strong>of</strong>fice <strong>of</strong> the Rail regulator<br />

A steel wheel on a steel rail is an inherently efficient mode <strong>of</strong> transport due to the<br />

minimal friction between rail and track. On the other hand road vehicles depend on<br />

friction between wheel and track. Because <strong>of</strong> this rail uses far less energy in<br />

transportation than road which also means less pollution. Unit road maintenance<br />

costs are far greater per vehicle km than unit track maintenance costs.<br />

Section 106.<br />

Leveling the playing field<br />

The <strong>Government</strong> is aware <strong>of</strong> the wide range <strong>of</strong> obligations for railways that do not<br />

exist for road transport and that this provides road transport with an unfair advantage.<br />

These include provision and maintenance <strong>of</strong> its own infrastructure, fleet <strong>of</strong> vehicles<br />

and traffic control systems. Railway train crews have to operate vehicles strictly<br />

according to operating rules and cannot work more hours than stipulated. Railways<br />

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Botswana <strong>National</strong> <strong>Integrated</strong> <strong>Transport</strong> <strong>Policy</strong><br />

also have to recover all <strong>of</strong> their costs, be commercially viable and keep a balance<br />

sheet.<br />

Road on the other hand is an open system, where infrastructure and operations are<br />

different entities, there is practically no direct contact with the customer, costs are not<br />

recovered directly and through comprehensively regulated, experiences relatively low<br />

levels <strong>of</strong> compliance and poor safety. Road Freight and Passenger services enjoy<br />

freedoms not available to rail or any other transport.<br />

The <strong>Government</strong> is committed to restoring the competitive position <strong>of</strong> railways relative<br />

to road transport by tightening up its management <strong>of</strong> road transport sub-sector but at<br />

the same time freeing up the railway sub-sector. In this way, railways are expected to<br />

increase their market share, especially in longer distance freight and passenger<br />

traffic. The Assistant Minister responsible for railways will drive the policy objectives<br />

to provide more equitable market conditions which will:<br />

1) Create more balanced market conditions<br />

2) Increase the share <strong>of</strong> railway freight traffic<br />

3) Create more conducive conditions for railway passenger transport<br />

4) Reduce government intervention and remove tariff controls<br />

5) Increase through railway operations<br />

6) Internalise external costs <strong>of</strong> road transport<br />

7) Ensure full compliance with road regulations<br />

Some <strong>of</strong> the measures that will be carried out to implement this policy include:<br />

1) More effective enforcement <strong>of</strong> the road traffic act including shortening driving<br />

hours<br />

2) Imposing speed limits where road conditions are sub-standard<br />

3) Ensuring that all <strong>of</strong> the costs <strong>of</strong> road transport are internalised – such<br />

infrastructure provision, congestion and environmental costs<br />

4) Set up conditions that will permit continuous cross border railway operations<br />

5) Provide direct payment to railways for social and security services, as would<br />

be the case for private road hauliers<br />

6) Include the costs <strong>of</strong> traffic control and enforcement to be recovered from road<br />

users<br />

Section 107.<br />

Better Rail-freight Services<br />

BR market share <strong>of</strong> freight is declining year on year partly because its common<br />

carrier status exists and constrains the possibilities for specialisation. But it also must<br />

be said that marketing is poor – a marketing strategy is not in place and market<br />

research is not carried out. Further concerns are that the level <strong>of</strong> service is variable<br />

and customer care is limited. Operationally and the speed <strong>of</strong> expediting freight is<br />

slow, losses and damages to freight is high. Moving forward, the potential for added<br />

value services such as logistics is not realised, there is lack <strong>of</strong> rail companies to<br />

compete with BR and Cabcon and most importantly for Botswana with its restricted<br />

domestic market, regional and global opportunities are not considered.<br />

It has been the expectation <strong>of</strong> the <strong>Government</strong> for years that rail freight services<br />

should at least cover their allocated costs. Besides BR and Cabcon there are no<br />

other competitors for rail freight carriers. The lack <strong>of</strong> choice <strong>of</strong> supplier <strong>of</strong> railway<br />

service has resulted in road haulage having a disproportionate market share. The BR<br />

monopoly is not working in the interests <strong>of</strong> the railway subsector, the transport sector<br />

or the wider economy.<br />

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Botswana <strong>National</strong> <strong>Integrated</strong> <strong>Transport</strong> <strong>Policy</strong><br />

The <strong>Government</strong> requires that BR prepares a turn-around strategy that addresses<br />

these problems, puts market development and customer care at the top <strong>of</strong> their<br />

agenda and puts into place a plan <strong>of</strong> action, with indicators, that the Ministry <strong>of</strong><br />

<strong>Transport</strong> will monitor. At the same the Ministry will review the common carrier status<br />

<strong>of</strong> the national railways as it is understood and other constraints to market<br />

development.<br />

The <strong>Government</strong> also envisage the possibility <strong>of</strong> BR merging with some <strong>of</strong> its<br />

neighbours to create conditions<br />

The policy objectives in providing better railways services are set out below:<br />

1) Improving the level <strong>of</strong> customer care, reducing complaints, losses and<br />

damages<br />

2) Improving delivery performance, punctuality and reliability<br />

3) Opening up the national and international freight market.<br />

4) Increasing market share <strong>of</strong> all traffic<br />

5) Add value to the core business<br />

Actions that will be taken to achieve the policy objectives are summarised as<br />

follows:<br />

1) Carryout market research<br />

2) Prepare and implement an aggressive marketing strategy<br />

3) Establish a quality control function<br />

4) Review and possibly rescind the common carrier status <strong>of</strong> BR<br />

5) Compile reliability and other performance statistics and report on service<br />

delivery to BR<br />

6) Provide added value services<br />

Section 108.<br />

Returning to Passenger Services<br />

The last rail passenger services were withdrawn in 2008 and have not resumed. At<br />

the time nearly 400,000 passenger travelled by rail. The reasons are universal and<br />

have affected every passenger railway. There has been a lack <strong>of</strong> finance for<br />

modernisation leading to declining service standards, rising car ownership,<br />

unsophisticated economics and no policy direction. Moreover, the economic cost <strong>of</strong><br />

these passengers travelling by road may not have been taken into account when<br />

considering the merits <strong>of</strong> the two modes <strong>of</strong> transport.<br />

The government understands that the existence <strong>of</strong> railways is due mainly to the need<br />

to move freight and not people. Awareness <strong>of</strong> this helps chart a way forward that will<br />

enable both local and longer distance railway services to return.<br />

Firstly freight services will be considered to be the prime user <strong>of</strong> railway infrastructure<br />

and as such shall carry most <strong>of</strong> the cost <strong>of</strong> its provision.<br />

Secondly the removal <strong>of</strong> passengers from road to rail has advantages such as<br />

reducing traffic congestion and pollution which will be taken into account when<br />

allocating funding.<br />

Thirdly, rail is energy efficient and can run on locally produced electricity which<br />

means that rail travel can have a positive impact on the trade balance.<br />

Fourthly the re-establishment <strong>of</strong> passenger stations are ideal PPP projects when<br />

linked to retail and <strong>of</strong>fice development<br />

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Botswana <strong>National</strong> <strong>Integrated</strong> <strong>Transport</strong> <strong>Policy</strong><br />

Case Study - Withdrawal <strong>of</strong> passenger services<br />

A combination <strong>of</strong> lack <strong>of</strong> integrated planning and<br />

appropriate economic analysis has led to the demise <strong>of</strong><br />

railway passenger services.<br />

Poor planning because, other than Phakalane, the<br />

Gaborone City morphology has been predominately East<br />

West, away from the main transport corridor rather than<br />

north south and aligned to the corridor. The North South<br />

Corridor is blessed with a extremely high quality dual<br />

carriageway road and a parallel railway - both are under<br />

used.<br />

The economics <strong>of</strong> passenger railways need to be be based on the<br />

principle <strong>of</strong> marginal cost pricing and take into consideration the<br />

costs <strong>of</strong> the alternative mode, including external costs <strong>of</strong><br />

congestion and pollution.<br />

Many travellers have to flag down private cars as the public<br />

transport is poor, standing in the road causing a hazard to<br />

traffic and endangering themselves. At the same time the<br />

parrallel railway is unused practically the entire day.<br />

The Minister will review the future <strong>of</strong> local and passenger services and prepare and<br />

implement a long term strategy for their reintroduction and achieve the following<br />

objectives<br />

1) Passenger transport will be introduced<br />

2) Passenger services will be expected to cover its marginal costs<br />

3) Financial support from <strong>Government</strong> will be forthcoming provided that there is<br />

a quantifiable social and economic justification.<br />

4) A modal shift in favour <strong>of</strong> rail<br />

5) Better level <strong>of</strong> service on the roads.<br />

6) Relative reductions in the consumption <strong>of</strong> fossil fuels and<br />

7) Lower emissions <strong>of</strong> green house gases.<br />

8) Less road accidents<br />

The actions to be taken include, but are not limited to...<br />

1) Review the future <strong>of</strong> local and regional railway passenger services.<br />

2) Prepare a strategy for re-introducing passenger services.<br />

3) Prepare an investment plan for reintroduction <strong>of</strong> passenger services and<br />

include in the 5 year multi-annual plan (MAP for 2015 to 2020) Create a<br />

subsidiary company to move forward with rail passenger transport as a joint<br />

venture with the private sector.<br />

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Botswana <strong>National</strong> <strong>Integrated</strong> <strong>Transport</strong> <strong>Policy</strong><br />

4) Start with local services from Phakalane to Ramotswa and Intercity Services<br />

from Gaborone to Johannesburg and Bulawayo<br />

5) Plan for a new international passenger station and development at<br />

Phakalane with a light rail connection to the international airport<br />

Section 109.<br />

Movement without penalties (<strong>Transport</strong> Integration)<br />

It takes 7 days for a container from Gabcon in Gaborone to reach the Container<br />

Terminal in Port Elizabeth; the commercial speed is only just 6 KPH – about the same<br />

as a horse and wagon <strong>of</strong> over 250 years ago.<br />

Passenger and Freight movement through the transport network should be without<br />

penalties caused, for example, by changing at interchanges, waiting at international<br />

borders and queuing to obtain basic services. It is well understood that railways are<br />

inherently less flexible than road, so in planning railways, everything possible must be<br />

done to reduce that disadvantage.<br />

Establishing connectivity standards for each mode <strong>of</strong> transport including rail, which<br />

may include, the number <strong>of</strong> changes <strong>of</strong> service between different categories <strong>of</strong> origin<br />

and destination or the clearance time <strong>of</strong> a container or the processing time through a<br />

border crossing, would provide a strategic basis upon which to reduce impediments<br />

to movement. The Minister will oversee the preparation and implementation <strong>of</strong> a<br />

range <strong>of</strong> service standards for Railways and ensure that the following objectives are<br />

achieved to remove the impediments to integration.<br />

1) Improve overall service delivery<br />

2) Reduce waiting and non-productive time at interchanges, border crossings<br />

and in yards<br />

3) Remove all non-physical barriers<br />

4) Increase overall commercial speeds<br />

The measures to be taken to remove the penalties include:<br />

1) Establish performance standards that meet customer’s needs.<br />

2) Become signatories to the AGCT Agreement on Containers and Terminals<br />

that sets out performance standards<br />

3) Negotiate reciprocal arrangements with neighbouring railways for through<br />

operations<br />

4) Negotiate performance standards with SADC railways.<br />

5) Negotiate inland customs clearance<br />

Article XVIII.<br />

Section 110.<br />

Establishing Ownership<br />

Opening Competition<br />

Railway infrastructure may be considered to include, track, bridges, other structures<br />

essential for the operation <strong>of</strong> the railways, signalling and communications. Railway<br />

infrastructure, like trunk roads and airport runways are strategic assets which have<br />

been developed by the state over the last 40 years or so.<br />

In the future, it is anticipated that various arrangements to develop and manage<br />

railways will be needed if Botswana Railways is to make a substantive and positive<br />

contribution to society. But neither <strong>Government</strong> nor BR has access to the kind <strong>of</strong><br />

funding that is required to enhance the strategic railway network.<br />

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Botswana <strong>National</strong> <strong>Integrated</strong> <strong>Transport</strong> <strong>Policy</strong><br />

The <strong>Government</strong> will set up the <strong>National</strong> Railway Authority as a part <strong>of</strong> the <strong>National</strong><br />

<strong>Transport</strong> Authority, the functions <strong>of</strong> the <strong>National</strong> Railways Authority will be to<br />

regulate the railway sub-sector, provide technical standards, prepare and implement<br />

plans for the development <strong>of</strong> railways, raise income from the application <strong>of</strong><br />

infrastructure user charges and apply such funds to development and maintenance<br />

through various service providers.<br />

The <strong>National</strong> Railways Authority may, establish such arrangements as may be<br />

considered in the national interest to enhance the performance <strong>of</strong> the railways and<br />

transfer the responsibility to another public or private legal entity. In so doing, the<br />

<strong>Government</strong> consider that it is the national interest that railway infrastructure shall<br />

remain within the eventual ownership <strong>of</strong> the state. The maximum continuous period<br />

for railway infrastructure to remain under the control <strong>of</strong> another public or private entity<br />

shall be 25 years.<br />

The <strong>National</strong> Railways Authority may enter into agreement with neighbouring<br />

countries to establish jointly operated systems, eliminating barriers and promoting<br />

seamless services.<br />

Operational assets, involving moving locomotives, wagons, coaching equipment,<br />

specific buildings and systems may be owned outright by third parties. The key<br />

objectives <strong>of</strong> this policy are:<br />

1) Maintaining overall control <strong>of</strong> the railway network.<br />

2) Ensuring international connectivity<br />

3) Guarantee national security<br />

4) Ensure economic and social interest.<br />

5) Creating conducive arrangements for improving the management and<br />

operation <strong>of</strong> the railways.<br />

6) Transfer ownership for defined periods to third parties generate investment to<br />

develop the railway network<br />

7) Enter into strategic alliances with neighbouring countries to develop new<br />

services<br />

Some <strong>of</strong> the measures that will be taken to implement this policy are:<br />

1) Consider various ownership structures for BR that will enable the railway<br />

network to expand and services improve.<br />

2) Create a joint stock company with Namibia, other <strong>Government</strong>s, and private<br />

investors to expand and develop the railway network, including the<br />

construction <strong>of</strong> the Trans Kalahari Railway.<br />

3) Transfer all BR owned assets, to the company for a period <strong>of</strong> 25 years.<br />

Section 111.<br />

Restructuring Railways<br />

Restructuring challenges<br />

Railways are complex organisations that combine infrastructure, operations<br />

and traffic control.<br />

Railways are responsible for both infrastructure and operations, unlike other<br />

modes <strong>of</strong> transport.<br />

Freight and passenger services are managed by one operator.<br />

Railway costs are difficult to allocate to services.<br />

Being a natural monopoly for bulk freight has made management complacent<br />

Railway management is too used to dealing with relatively few customers to<br />

compete in a fierce market<br />

Railway management are not involved in the wider transport debate<br />

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Botswana <strong>National</strong> <strong>Integrated</strong> <strong>Transport</strong> <strong>Policy</strong><br />

The <strong>Government</strong> is aware that railway management is limited in its perspective and<br />

does not apply modern planning, marketing and management techniques so the<br />

development <strong>of</strong> new markets is problematic. Consideration <strong>of</strong> Rail Sub-Sector in<br />

Botswana is dominated by its historic organizational arrangements. To encourage<br />

new thinking and the dynamism that is needed for railways in Botswana to take<br />

leading role in transportation, the <strong>Government</strong> will strive to inculcate competition,<br />

where-ever possible.<br />

By splitting the existing Botswana Railways organization into a number <strong>of</strong> separate<br />

companies, by introducing direct competition or contracting out and by creating a new<br />

and vibrant railway supplies industry, the <strong>Government</strong> expect that railway transport<br />

will again play a vital role in the development <strong>of</strong> Botswana and the Region.<br />

The policy drivers to restructuring are:<br />

1) Increase the number and diversity <strong>of</strong> railways services.<br />

2) Improve the pr<strong>of</strong>itability <strong>of</strong> railway freight transport.<br />

3) Provide a structure in which railway passenger transport may flourish<br />

4) Provide a market for the railway supplies industry to develop<br />

5) Reduce overheads and improve cost recovery<br />

6) Provide a platform for expansion into regional markets<br />

7) Improve the performance <strong>of</strong> railway management and participation in the<br />

wider transport sector<br />

The initiatives to be taken will include...<br />

1) Establish separate organisations responsible for infrastructure and<br />

operations.<br />

2) Restructure BR accounts, set up pr<strong>of</strong>it centres for each <strong>of</strong> the core business<br />

activities and corporate services.<br />

3) Set up three railways freight companies, for mining and mineral products.<br />

Petro-chemicals, multimodal.<br />

4) Set up an intercity passenger transport company.<br />

5) Set up a Gaborone and district passenger railway company<br />

6) Set up land and property holding company<br />

7) Set up Botswana Namibia joint venture Railway Company to develop the<br />

TKR and exploit the regional market.<br />

8) Set up corporate services, strengthen procurement, contracting and legal<br />

functions, identify client and supplier functions, outsource supplier functions<br />

Section 112.<br />

Removing the restrictions<br />

Generally national railways have a monopoly over the use <strong>of</strong> the national railway<br />

infrastructure. This is increasingly seen as restrictive practise and anti competitive.<br />

Following the creation <strong>of</strong> the <strong>National</strong> Railway Authority, restructuring <strong>of</strong> BR and the<br />

separation <strong>of</strong> infrastructure from operations, the <strong>Government</strong> will legislate that any<br />

certified railway operator may operate freight or passenger trains on any railway on<br />

the territory <strong>of</strong> Botswana without restriction. Although such liberal steps may alarm<br />

the industry, it is the steadfast view <strong>of</strong> the <strong>Government</strong> that only by opening the<br />

market can railways fully contribute to economic and social development. The<br />

<strong>Government</strong> also believes that by being the first ot liberalise, local companies will be<br />

better positioned to take advantage <strong>of</strong> new opportunities as a when they arise. Such<br />

open access will align railways to all other modes <strong>of</strong> transport where infrastructure<br />

and operations are separated and access is open to any licensed operator. Access<br />

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Botswana <strong>National</strong> <strong>Integrated</strong> <strong>Transport</strong> <strong>Policy</strong><br />

will be granted on condition <strong>of</strong> a payment <strong>of</strong> a track access fee to the pertinent<br />

infrastructure company. Such fees shall be based on the unit <strong>of</strong> one train<br />

Moving one kilometre Access fees and conditions shall be overseen by an<br />

independent Railway Regulator.<br />

The Assistant Minister responsible for railways shall, within 2 years <strong>of</strong> passing the<br />

<strong>Transport</strong> <strong>Policy</strong>, put in place open access conditions. Implementation <strong>of</strong> railway<br />

open access with neighbouring countries shall be strictly on a reciprocal basis until<br />

such times as there is regional consensus on open access arrangements. <strong>Policy</strong><br />

objectives are to:<br />

1) Increase railway market share.<br />

2) Increase the number and proportion <strong>of</strong> different railway freight and<br />

passenger services operated domestically<br />

3) Increase the output <strong>of</strong> regional railway services provided by locally based<br />

companies<br />

4) Reduce the cost <strong>of</strong> railway services<br />

5) Improve the economy through lowering trade costs<br />

6) Increase the number <strong>of</strong> regional railway companies based in Botswana<br />

7) Create a revenue stream for financing railway infrastructure<br />

And the measures needed to implement the policy are;<br />

1) Move forward with BR restructuring<br />

2) Set up terms and conditions for track access charging.<br />

3) Set up the <strong>of</strong>fice <strong>of</strong> the Railway Regulator.<br />

4) Ensure that the TKR and other PPP projects separate operations from<br />

infrastructure.<br />

5) Ensure that the TKR and any other PPP project has provisions for open<br />

access by Botswana, and other Railway Operators<br />

Section 113.<br />

Regionalisation <strong>of</strong> Railways<br />

Railways are massively expensive undertakings and benefit enormously from<br />

economies <strong>of</strong> scale. The larger the railway system the lower the unit cost <strong>of</strong><br />

operations. The railway systems <strong>of</strong> region are small by international comparison. The<br />

total length <strong>of</strong> the Cape Gauge Network is about 25,000 km – which is about the<br />

same as Spain but with only 10% <strong>of</strong> the utilisation. Each national railway is self<br />

contained and has its own head <strong>of</strong>fice, workshops and operating fleet. But each are<br />

losing money and require the support from the hard pressed tax payer through a<br />

<strong>Government</strong> subsidy.<br />

The <strong>Government</strong> recognises that the small scale <strong>of</strong> the national railways is a part <strong>of</strong><br />

the problem and fully supports the process <strong>of</strong> regionalisation. This will mean creating<br />

a regional market in infrastructure provision, freight and passenger operations and a<br />

regional railway support industry. The Ministry <strong>of</strong> <strong>Transport</strong> through its International<br />

Department will do all that it can to remove the barriers to regionalising the railway<br />

market. In so doing the <strong>Government</strong> believes that ideal conditions will be created for<br />

Botswana to become a centre for the emergent regional railway business. <strong>Policy</strong><br />

objectives are...<br />

1) Increase the potential size <strong>of</strong> the railways global market<br />

2) Reduce impediments to the free movement <strong>of</strong> railway freight and<br />

passengers<br />

3) Improve the efficiency <strong>of</strong> regional railway operations<br />

4) Reduce the costs <strong>of</strong> regional railway transport<br />

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Botswana <strong>National</strong> <strong>Integrated</strong> <strong>Transport</strong> <strong>Policy</strong><br />

Measures to be taken that will achieve the objectives are summarised below<br />

1) Speed up the process <strong>of</strong> regionalising railways and agree an agenda within<br />

SADC<br />

2) Identify and remove impediments to regionalising railways<br />

3) Establish criteria and procedures for the technical acceptance <strong>of</strong> the<br />

locomotives, rolling stock and operators between countries<br />

4) Agree regional open access procedures<br />

Section 114.<br />

Developing a supporting railway industry<br />

There is virtually no private capacity to provide railway technical services in<br />

Botswana. This has to be corrected if such services are to be outsourced. Through<br />

outsourcing, a market will be developed for railway industry technical goods and<br />

services. This is expected to help drive the policy <strong>of</strong> economic diversification. The<br />

Minister for Trade and Industry together with the Minister <strong>of</strong> <strong>Transport</strong> and<br />

communication will oversee the creation <strong>of</strong> a new railway industry.<br />

1) Increasing size <strong>of</strong> the railway industry supply market<br />

2) Increasing proportion <strong>of</strong> outsourcing <strong>of</strong> railways services<br />

3) Reducing the inventory <strong>of</strong> locomotives and rolling stock and concomitant<br />

spare parts<br />

4) Reducing BR exposure to risk <strong>of</strong> market fluctuations<br />

5) Opening up the railway supply market to competition<br />

6) Franchising to encourage investment commitments<br />

Some <strong>of</strong> the steps that will be taken to set up an indigenous railway industry include:<br />

1) Setting up a wagon and locomotive leasing company.<br />

2) Outsourcing all civil, mechanical and electrical engineering works and<br />

maintenance.<br />

3) Outsourcing various corporate activities such as payroll management;<br />

4) Promoting cross border trade in railways services and goods.<br />

Section 115.<br />

Business Partnerships<br />

Railways are a business that presents limitless possibilities for pr<strong>of</strong>itable commercial<br />

activity. The problem is that <strong>Government</strong>, Railway Management and the Business<br />

Community have not see it like that. The Railway Business is constrained by its<br />

Parastatal status. Like the state – but slightly apart from it.<br />

The <strong>Government</strong> is acutely aware that to generate the interest <strong>of</strong> private enterprise,<br />

the Parastatal status <strong>of</strong> our national railway organisation must go. The <strong>Government</strong><br />

intends to replace the state organisation by a corporation that has all <strong>of</strong> the normal<br />

freedoms to develop its business and satisfy its shareholders. A critical part <strong>of</strong> the<br />

business development strategy will be to build alliances with the private sector whereever<br />

possible. In this way, not only will new possibilities emerge but a business<br />

culture will gradually grow. To provide the necessary political momentum the position<br />

<strong>of</strong> Assistant Minister for Railways and Aviation will be established to steer the<br />

transition.<br />

Priorities to be achieved by the policy are listed as follows:<br />

1) Improve entrepreneurship<br />

2) Diversify the railway business<br />

3) Increase income and pr<strong>of</strong>itability<br />

4) Fleet renewal<br />

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Botswana <strong>National</strong> <strong>Integrated</strong> <strong>Transport</strong> <strong>Policy</strong><br />

5) Network Development<br />

6) Energy and Electrification<br />

7) Improve Signalling and communications<br />

8) Improve on line services, Information and wagon tracking<br />

Initiatives and measures that will be taken to implement the policy are:<br />

1) Create a new corporation to replace Botswana Railways.<br />

2) The new railway corporation to have a broadly based share holding that may<br />

include, the Namibian <strong>Government</strong>. Namibian Railways, mining companies,<br />

multimodal transport companies, transport services companies and banks.<br />

3) Establish alliances with the national, regional and international business<br />

community using PPP, Leasing, outsourcing, etc.<br />

4) Examples where progressive business models will be used include<br />

5) Regional Rail Freight Company/s<br />

6) A locomotive and wagon leasing and maintenance company<br />

7) Trans-Kalahari Railway project<br />

8) Multi Modal <strong>Transport</strong> Operations<br />

9) Logistics Services<br />

10) Land and Property development<br />

11) Communication infrastructure- optic cable<br />

12) Track maintenance company<br />

Article XIX. Modernisation<br />

Section 116.<br />

Network Development<br />

The traffic levels on the network are low. Freight train movements amount to some 12<br />

per day overall so there are no capacity problems. The reasons for the lack <strong>of</strong> rail<br />

traffic are many, and are addressed in this <strong>Transport</strong> <strong>Policy</strong>. However, there is also a<br />

lack <strong>of</strong> connectivity because there are no direct connections with Namibia and with<br />

Zambia. There is also a lack <strong>of</strong> accessibility, especially at interchanges for intermodal<br />

transport.<br />

The <strong>Government</strong> is committed to the further development <strong>of</strong> the Railway Network<br />

where is can be economically justified and convincingly shown to be in the national<br />

interest.<br />

The government is very keen to see that railway network improvements are<br />

considered as part <strong>of</strong> general development.<br />

The Minister for <strong>Transport</strong> and Communications through the new position <strong>of</strong><br />

Assistant Minister <strong>of</strong> Railways and Aviation shall ensure that railway network<br />

developments are included in the 5 year multi-annual national transport plan and take<br />

steps to implement them. Objectives that are to achieved include:<br />

1) Improve international connectivity<br />

2) Improve inter-modality and increase opportunities for road rail transfer.<br />

3) Maximise the opportunities for general development when extending the<br />

railway network<br />

4) Develop projects in partnership with the private sector<br />

5) Improve the overall pr<strong>of</strong>itability <strong>of</strong> the railway<br />

6) Make a positive contribution to the economy<br />

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Botswana <strong>National</strong> <strong>Integrated</strong> <strong>Transport</strong> <strong>Policy</strong><br />

These policies will be implemented through a number <strong>of</strong> measures including those<br />

summarised below:<br />

1) Prepare railway network development projects in a systematic way and<br />

include them in a <strong>National</strong> 5 year MAP.<br />

2) Include the following projects.<br />

3) Relocate Gabcon into a new freight village and use the valuable land in the<br />

city centre for development<br />

4) Provide incentives to construct private sidings and conditions thereto<br />

5) Establish a new SSK International Passenger station as a PPP project<br />

6) Similarly set up a network <strong>of</strong> Intermodal Interchanges<br />

7) Progress the TKR as a regional PPP project using the Cape Gauge, ensuring<br />

unrestricted open access by BR NR and operators<br />

8) Establish others railway links to improve connectivity and accessibility.<br />

9) Repair and modernise level crossings to improve safety, consider grade<br />

separation only when there is sufficient railway traffic to justify it.<br />

Section 117.<br />

Fleet renewal<br />

The average age <strong>of</strong> the fleet <strong>of</strong> locomotives is ??? and that <strong>of</strong> the wagons is ???<br />

availability is and reliability is ??? and utilisation is ???. Besides the aging fleet <strong>of</strong> the<br />

rolling stock, markets and technology are changing and new types <strong>of</strong> vehicles are<br />

needed for the future. Since BR is 100% owned by <strong>Government</strong>, there is an<br />

obligation to ensure that locomotives and rolling stock as sufficient to meet the needs<br />

<strong>of</strong> the customers. However, the <strong>Government</strong> no longer sees itself in this role and<br />

carrying commercial risks, such as purchasing railway locomotives and wagons.<br />

Instead the <strong>Government</strong> will facilitate the establishment <strong>of</strong> a railway locomotive and<br />

wagon leasing company from whom BR and other may lease the equipment that is<br />

needed. The principle objectives <strong>of</strong> the policy are to...<br />

1) Improve the utilisation <strong>of</strong> locomotives and wagons<br />

2) Reduce the unit costs <strong>of</strong> operations<br />

3) Align the supply <strong>of</strong> wagons to meet customer’s needs<br />

This will be done by...<br />

1) Carrying out a study <strong>of</strong> locomotive and rolling stock needs domestically and<br />

regionally through SADC<br />

2) Set up a locomotive and wagon leasing company to supply the domestic and<br />

regional market as a PPP project<br />

Section 118.<br />

Energy and Electrification<br />

Railway transport is more energy efficient than Road. Despite this advantage, fuel<br />

accounts for over half <strong>of</strong> the operating expenditure OPEX. The long term global trend<br />

is for railways to electrify, and to become more energy efficient. The strategic shift to<br />

electric power provides more options as to primary fuel used in energy generation.<br />

The energy policy with respect to rail transport is to electrify all railways. The Minister<br />

<strong>of</strong> <strong>Transport</strong> will ensure that appropriate plans are in place in time to make the switch<br />

from diesel to electric power. Regarding future development <strong>of</strong> the network, the<br />

structure gauge shall be based on electrification clearance.<br />

The <strong>Government</strong> is aware that operations <strong>of</strong> the proposed TKR will be based on<br />

imported diesel fuel. The use <strong>of</strong> imported diesel to export coal is an unacceptable<br />

paradox. As potential shareholders, the <strong>Government</strong> would prefer that the nation’s<br />

considerable national coal reserves be used to generate electricity and for the TKR to<br />

use electric traction. There are four clear policy objectives that will be achieved:<br />

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Botswana <strong>National</strong> <strong>Integrated</strong> <strong>Transport</strong> <strong>Policy</strong><br />

1) Reduce dependency on imported fossil fuels.<br />

2) Electrify the railway network by 2025<br />

3) Use alternative sources <strong>of</strong> electric generation by 2035.<br />

4) Reduce operating costs<br />

Projects and measure that will be carried out to improve energy efficiency include<br />

1) Make sure that all new railway structures built on the territory <strong>of</strong> Botswana<br />

are to electrification standards <strong>of</strong> clearance to facilitate the change over - as<br />

and when this happens<br />

2) Prepare a long term plan for a change in motive power.<br />

3) Require that the TKR development considers the option <strong>of</strong> electric traction.<br />

4) Monitor the consumption <strong>of</strong> diesel fuel<br />

Section 119.<br />

Information, technology R&D<br />

The <strong>Government</strong> is acutely aware <strong>of</strong> the financial limitations to modernise the<br />

railways. Never-the- less the need modernise is very apparent. In fact, the intention is<br />

to make Botswana a global leader in railways – not by being the largest, but by<br />

leading in the supply <strong>of</strong> railways based services and ideas.<br />

The new culture will be created firstly through restructuring to make the railways more<br />

commercially successful, secondly through promoting partnerships introduce new<br />

ideas and technology and thirdly and most importantly through encouraging a railway<br />

supply industry to be based in Botswana so that R& D investment will centred here.<br />

Several Ministries are expected to be involved in this process, including <strong>Transport</strong>,<br />

Industry and Education. The Deputy Prime Minster will chair a forum comprising all<br />

stakeholders to implement this policy and to make sure that its objectives are<br />

achieved<br />

1) Restore confidence and self belief in the railways sub-sector<br />

2) Facilitate foreign companies to relocate in Botswana<br />

3) Modernise all aspects <strong>of</strong> railway services<br />

4) Focus modernisation on improving information and IT<br />

5) Increase the proportion <strong>of</strong> e - business transactions<br />

6) Become a regional centre for the railway industry and for research and<br />

development<br />

Measures that will be taken to implement the policy include but are not limited to the<br />

following<br />

1) Establish and maintain a Progressive and interactive BR Web Site<br />

2) Establish on-line wagon or consignment tracing systems<br />

3) Set up an integrated management information system<br />

4) Set up e-business systems and change to on-line transactions<br />

5) Develop and implement an R&D strategy<br />

6) Establish affiliations with Railway Industry, Academia, R&D organisations<br />

7) Hold conferences in Botswana<br />

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Botswana <strong>National</strong> <strong>Integrated</strong> <strong>Transport</strong> <strong>Policy</strong><br />

Article XX. Towards Pr<strong>of</strong>itability<br />

Section 120.<br />

Cost recovery<br />

BR needs to be subsidised from tax payers and has a problem to recover its variable<br />

costs. (These are costs that can be avoided if the particular service or a part <strong>of</strong> a<br />

service is not carried out). Being a small railway, the fixed costs <strong>of</strong> BR (these are<br />

costs that do change with the number <strong>of</strong> services or volume <strong>of</strong> business) are a high<br />

proportion <strong>of</strong> total costs, so without restructuring, apportionment <strong>of</strong> overheads is<br />

problematic. BR also contributes to the Road Fund Levy to pay for roads, through<br />

charges collected from diesel fuel used by the locomotive.<br />

Botswana Railways is closed system and is mandated to be commercialised and to<br />

recover all <strong>of</strong> its costs through revenue and to be able to balance its books each year.<br />

However, over the last 10 years BR has received capital support through the <strong>National</strong><br />

Development Budget and for the last few years through the recurrent budget.<br />

Because <strong>of</strong> the structure <strong>of</strong> BR and its commitments to <strong>Government</strong>, its fixed costs<br />

are a high proportion <strong>of</strong> its total costs. Costs to services have been allocated on an<br />

average cost basis but that this does not optimise the utilisation <strong>of</strong> the railway or<br />

maximise its revenue. The <strong>Government</strong> will encourage a flexible approach to cost<br />

recovery based on marginal cost principles.<br />

The Ministry <strong>of</strong> <strong>Transport</strong> Communications will require that BR submit financial<br />

accounts for its approval. The accounts will show the costs from each type <strong>of</strong> traffic<br />

and for each <strong>of</strong> its restructured units. In moving towards pr<strong>of</strong>itability the following will<br />

be achieved:<br />

1) Maximise cost recovery from users so that costs recovered approach the<br />

total costs <strong>of</strong> Botswana Railways<br />

2) The costs <strong>of</strong> providing railways infrastructure are to be recovered mostly from<br />

the prime user <strong>of</strong> that infrastructure such mining. (The costs <strong>of</strong> a coal line<br />

shall be recovered mostly from coal traffic and not non-coal traffic)<br />

3) Costs <strong>of</strong> railway operations shall be recovered through revenue using the<br />

principle <strong>of</strong> marginal cost pricing.<br />

4) The <strong>Government</strong> expects that each restructured unit will be financially selfsustaining.<br />

5) Track user charges will be based on the recovery <strong>of</strong> long run marginal costs<br />

and allocated according to train km whether empty or full.<br />

Key initiatives to be implemented include<br />

1) Establish a system <strong>of</strong> infrastructure user charges that will charge the operator<br />

for the use <strong>of</strong> the track<br />

2) Establish cost / pr<strong>of</strong>it centres following BR restructuring<br />

3) Exempt railways from contributing to the Road Fund Levy.<br />

4) Identify the prime user <strong>of</strong> certain railways lines and develop a cost recovery<br />

strategy from that user.<br />

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Section 121.<br />

Botswana <strong>National</strong> <strong>Integrated</strong> <strong>Transport</strong> <strong>Policy</strong><br />

Investment <strong>Policy</strong><br />

Further challenges in returning to pr<strong>of</strong>itability...<br />

1) There is insufficient investment in Railways<br />

2) The <strong>Government</strong> Development Budget is not enough to fund BRs investment<br />

requirements<br />

3) That investment in railways is usually not financially justifiable<br />

4) BR projects are not economically evaluated<br />

5) There are no PPP arrangements in BR<br />

The <strong>Government</strong> appreciates that rail transport imposes less costs to society than<br />

road. Despite this the government requires that all Railway investment projects<br />

generally must be commercially sound. But where the socio-economic benefit <strong>of</strong> a<br />

railway project is greater than the financial return, the government may, under certain<br />

circumstances, provide the capital needed to make the project bankable.<br />

In any event the government will encourage BR to enter into arrangements with the<br />

private sector in the form <strong>of</strong> PPP for infrastructure or leasing <strong>of</strong> locomotives and<br />

rolling stock.<br />

The government also appreciates that the private party interest may not always<br />

coincide with that <strong>of</strong> the wider community and that to maximise the benefit <strong>of</strong> an<br />

investment to the community may compromise the pr<strong>of</strong>itability <strong>of</strong> the investment – in<br />

these cases the <strong>Government</strong> will ensure that the trade <strong>of</strong>f between community benefit<br />

and loss <strong>of</strong> pr<strong>of</strong>itability are carefully considered.<br />

Objectives <strong>of</strong> the <strong>Policy</strong> are...<br />

1) All investments shall show a positive financial benefit to the railways and<br />

enhance its pr<strong>of</strong>itability.<br />

2) All investments shall show a positive Economic Benefit to the wider<br />

community<br />

3) Where an investment is not pr<strong>of</strong>itable to the enterprise but is demonstrably<br />

beneficial to society the <strong>Government</strong> will consider participating in the funding.<br />

4) Public sector investment in railways shall be used to leverage investment<br />

from the private sector<br />

5) In a PPP arrangement, the government will not assume any commercial risk.<br />

Measures that will implement the policy include...<br />

1) Ensure investments are considered as a part <strong>of</strong> an integrated plan <strong>of</strong><br />

development.<br />

2) Establish consortia for railway development.<br />

3) Ensure <strong>Government</strong> enters investment opportunities as a business partner in<br />

a PPP arrangement.<br />

4) Establish viable business models for large investment projects.<br />

5) Provide land for lines and interchanges, stations and for<br />

6) general development to improve bankability<br />

Section 122.<br />

Pricing policy to increase revenue<br />

Railway pricing is based on a mixture <strong>of</strong> historic tariff structures and <strong>of</strong>f tariff<br />

negotiations and is complicated and not transparent. The <strong>Government</strong> has to approve<br />

tariff structures and has the prerogative to determine price increases as well as<br />

intervene on prices for certain commodities. Moreover, there is excessive empty back<br />

haul due partly to inflexibility in pricing and pricing regional services is based on<br />

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Botswana <strong>National</strong> <strong>Integrated</strong> <strong>Transport</strong> <strong>Policy</strong><br />

border to border tariffs not through tariffs – this makes the total tariff higher than it<br />

need be. Br have tried to become more commercially adroit in recent years as can be<br />

seen in the figure below.<br />

Figure 16 Railway Freight Prices thebe per net ton km<br />

70.0<br />

60.0<br />

BR has a published a tariff structure that is<br />

based on the ad valorum principle – that is to<br />

50.0<br />

say commodity type volume and value based.<br />

40.0<br />

Imports<br />

30.0<br />

Exports The railway tariff book is complicated, not<br />

20.0<br />

10.0<br />

0.0<br />

Domestic<br />

Transit<br />

particularly transparent and difficult for most<br />

customers to understand. Further-more almost<br />

all freight contracts are individually negotiated<br />

independently from the tariff structure. The<br />

current tariff book shall be completely replaced<br />

and the structure simplified and made more transparent. The new freight tariff<br />

structure shall based on the unit <strong>of</strong> wagon and be independent from commodity and<br />

load. The government will attempt lead the region in this approach.<br />

1999<br />

2000<br />

2001<br />

2002<br />

2003<br />

2004<br />

2005<br />

2006<br />

2007<br />

2008<br />

The <strong>Government</strong> is also aware that most railway freight movement requires an empty<br />

back haul. That is to wagons travel full in one direction and empty in another. The<br />

<strong>Government</strong> will encourage the railway operator to price such services very<br />

aggressively to ensure that empty capacity is used where ever it is possible to do so.<br />

Furthermore the government also wishes to encourage railway operators to provide<br />

added value to the services including on line information, door to door delivery and<br />

logistics.<br />

Pricing <strong>Policy</strong> Objectives are...<br />

1) Maximise revenue - by implementing marginal cost pricing.<br />

2) Simplify the tariff structure.<br />

3) Reduce the rate <strong>of</strong> empty back haul<br />

4) Minimise government intervention in pricing <strong>of</strong> railway services except in<br />

cases <strong>of</strong> national emergencies<br />

Measures to be taken deregulate and simplify pricing <strong>of</strong> railways includes<br />

1) To restructure tariffs based on wagon load<br />

2) Price aggressively for new services when entering a new market<br />

3) Price back haul to recover the short run marginal cost – fuel and<br />

maintenance only<br />

4) Combine with contiguous railways to provide lower prices for through<br />

services<br />

Section 123.<br />

Subsidy <strong>Policy</strong><br />

The policy <strong>of</strong> subsidy is deeply embedded into the economy-the specific issues for<br />

Botswana Railways are as follows:<br />

1) Carte blanche financial support for BR balance sheet<br />

2) Cannot ascertain if society is obtaining value from its support <strong>of</strong> BR<br />

3) Cross subsidies are distorting the corporate picture<br />

4) No specific government contract to provide socially needed services<br />

5) But BR may still have some social objectives such as a creating jobs and<br />

poverty alleviation<br />

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Botswana <strong>National</strong> <strong>Integrated</strong> <strong>Transport</strong> <strong>Policy</strong><br />

Botswana Railways is financially supported by the government. Internally, net<br />

receipts from a pr<strong>of</strong>itable business may be used to subsidise a loss making activity.<br />

Overall the picture is confused for BR management and the <strong>Government</strong> and it not<br />

clear if the tax payer is receiving value.<br />

There is nothing irregular about this situation for all modes <strong>of</strong> <strong>Transport</strong> are supported<br />

by the government directly and indirectly.<br />

There can be doubt that there are certain services that may need government<br />

support, and, where it can be shown to be in the <strong>National</strong> Interest, the Minister <strong>of</strong><br />

<strong>Transport</strong> and Communications has the responsibility to expedite that support. The<br />

Minister will be required to show that both recurrent and development support<br />

provides value and set up the support on contractual basis so that the support is<br />

linked to the performance expected. .<br />

Key policy objectives<br />

1) Unsupported commercially self sustaining railway freight services<br />

2) Maximise the economic benefit <strong>of</strong> the railways<br />

3) Restarting passenger services<br />

4) Launching new services<br />

Measures to be taken to remove subsidies include:<br />

1) Establish the principle and practice <strong>of</strong> Public Service Obligation ( PSO)<br />

2) Eliminate cross subsidy as a results <strong>of</strong> restructuring<br />

3) Identify and place a cost on any social obligations<br />

4) Provide seed capital and support for start up <strong>of</strong> some new services<br />

5) Provide support for providing private party connection to the network –<br />

provided there is an economic case<br />

Section 124.<br />

Improving Asset Management and Procurement<br />

There is an absence <strong>of</strong> asset management in the public sector and BR is no<br />

exception; there is no up to date asset register and it is not digitised. Stock control is<br />

archaic relying on hand written forms and exercise books<br />

There is an excess <strong>of</strong> scrap and obsolete equipment and procurement procedures<br />

are long winded and probably contribute to higher costs.<br />

The public sector has been investing heavily in creating social infrastructure over the<br />

last generation but very poor at managing the assets that it has created. The preoccupation<br />

with development rather than maintenance has created a massive<br />

backlog <strong>of</strong> actions that will cost billions <strong>of</strong> Pula. BR is no exception.<br />

The <strong>Government</strong> appreciate that part <strong>of</strong> the reason for this is its policy <strong>of</strong><br />

development but it also realises that there is little sense <strong>of</strong> ownership <strong>of</strong> assets by<br />

public sector employees. It therefore determined to reverse this trend and will require<br />

BR to set up a programme <strong>of</strong> repair and rehabilitation to all its operational assets and<br />

put in place asset management processes to restore and maintain the value <strong>of</strong> assets<br />

that is currently owned by the Motswana. The <strong>Government</strong> will only invest in BR is<br />

there is a strategy to maintain the assets there-after.<br />

Procurement procedures are unnecessarily cumbersome and bureaucratic and there<br />

is also no substantive evidence that the procedures guarantee better value – quite<br />

the contrary. Therefore, the procurement <strong>of</strong> goods and services to BR will be<br />

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Botswana <strong>National</strong> <strong>Integrated</strong> <strong>Transport</strong> <strong>Policy</strong><br />

decentralised from <strong>Government</strong> Offices to BR. BR Management will be able to<br />

outsource procurement to a specialist procurement agencies in the private sector.<br />

The unambiguous policy objectives are<br />

1) Restore asset value on BR<br />

2) Management <strong>of</strong> assets to become a strategic priority<br />

This will be achieved through the following actions...<br />

1) Establish an asset data base<br />

2) Revalue assets according to government asset valuation guidelines<br />

3) Introduce modern methods <strong>of</strong> stock control using bar codes and s<strong>of</strong>tware.<br />

4) Develop and implement an asset management strategy<br />

5) Carry out a scrapping exercise <strong>of</strong> redundant and obsolete assets<br />

6) Purchasing goods and services to be streamlined and using e commerce<br />

where- ever possible<br />

Section 125.<br />

Pr<strong>of</strong>iting from Land and Property<br />

The restrictions on the use <strong>of</strong> state land constrain development and needs to be<br />

unbundled. BR can do much more to benefit from land and property. Business<br />

deriving from the use <strong>of</strong> non-operati0onland and property is not effectively ring<br />

fenced. There is presumption that income from BR land and property will be used<br />

cross-subsidise railway services.<br />

Holdings <strong>of</strong> sate land are considerable, BR, as both a custodian <strong>of</strong> state land and a<br />

commercial enterprise has the potential to exploit its land and property assets to<br />

benefit <strong>of</strong> both the enterprise and society at large. To that end The <strong>Government</strong> fully<br />

supports the proposition <strong>of</strong> BR maximising the financial and economic benefits <strong>of</strong> land<br />

a property. A subsidiary company called BR Lands and Property (BRLP) Pty will be<br />

created to manage the portfolio. All non-operational land will be transferred to BRLP.<br />

The <strong>Government</strong> to be initially a 100% share holder and its representative to chair the<br />

board <strong>of</strong> directors with its corporate objectives being...<br />

1) Maximise income from BR Lands and Property.<br />

2) Obtain and secure land for future railway development<br />

3) Protect land from development that will have deleterious impacts on future<br />

operations<br />

Supporting measures will also include...<br />

1) Establish a data base <strong>of</strong> land and property – classified according operational<br />

and non-operational<br />

2) Initially Value then annually revalue Railways land and property assets<br />

3) Enable Railways to utilise land to enhance the pr<strong>of</strong>itability <strong>of</strong> its business<br />

4) Permit BRLP to invest in non- railway land and property where it is pr<strong>of</strong>itable<br />

so to do.<br />

Section 126.<br />

Accounts and transparency<br />

BR accounting procedures remain more orientated to public sector accounting. There<br />

is little management accounting – linked to performance – accounts are not in the<br />

public domain. Accounting standards should be to international standards. Poor<br />

accounting and transparency deters investor interest. State participation the financing<br />

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Botswana <strong>National</strong> <strong>Integrated</strong> <strong>Transport</strong> <strong>Policy</strong><br />

<strong>of</strong> BR is ???? In turning around BR, its shareholders will instigate a full review <strong>of</strong> BR<br />

finances and accounting procedures, require that management accounting practises<br />

are introduced and insist that annual accounts are published and are to international<br />

standards. This will then help the Minister to make better informed decisions<br />

regarding the state intervention in BR or its successor organisations. The <strong>Policy</strong><br />

Objectives may be stated clearly as being...<br />

1) To gain the trust and support <strong>of</strong> shareholders / stakeholders<br />

2) To gain investor confidence<br />

3) To become compliant to accounting standards<br />

4) To supply accurate information to management<br />

5) To supply accurate information on traffic costs to BR marketing personnel.<br />

Actions required to expedite the policy include...<br />

1) For each business or activity create and manage a cost / pr<strong>of</strong>it centre<br />

2) Purchasing good and services to be streamlined<br />

3) Details on Financial performance to be issued quarterly<br />

4) Audited Accounts to be published annually<br />

Article XXI. Changing attitudes<br />

Section 127.<br />

Caring for customers<br />

BR is a Parastatal with a pseudo- bureaucratic approach to customer care – that is to<br />

say minimise contact. There is no independent railway watch-dog and compensation<br />

for losses due to damage, delay or theft are lengthy processes and not automatic.<br />

Also <strong>of</strong> note is that the conditions <strong>of</strong> the carriage <strong>of</strong> goods are out <strong>of</strong> date. Customer<br />

communications can be improved as they have difficulties getting the information that<br />

they need to make transport decisions.<br />

Parastatals do not really work. The functions <strong>of</strong> a statutory authority, pseudo<br />

government agency, or commercial organisation do not sit happily together... and it is<br />

the customer that generally suffers. BR wears all <strong>of</strong> these hats and can put them on<br />

or take them <strong>of</strong>f according to the situation. Customer relations are not high on the<br />

agenda <strong>of</strong> <strong>Government</strong> Agencies, and it is similarly not high on the BR agenda. That<br />

the <strong>Government</strong> both as owner and customer requires dramatic change,<br />

The <strong>Government</strong> will set up the <strong>National</strong> Railway Authority as a part <strong>of</strong> the <strong>National</strong><br />

<strong>Transport</strong> Authority that will include the <strong>of</strong>fice <strong>of</strong> the Railway Regulator. Operators,<br />

like BR will be required to handle customer complaints more transparently and report<br />

regularly to the Railway Regulator. BR will also be required basic insurance for<br />

looses, damage and delay to goods. The cost <strong>of</strong> the insurance and number <strong>of</strong> claims<br />

will provide a reliable indicator <strong>of</strong> performance. Overall, the <strong>Government</strong> requires a<br />

fundamental change <strong>of</strong> attitude that puts the customer on centre stage and to...<br />

1) Independent checks and balances <strong>of</strong> railway performance<br />

2) Improve the conditions <strong>of</strong> contract for the carriage <strong>of</strong> goods with respect to<br />

the customer<br />

3) Improve level <strong>of</strong> customer satisfaction<br />

4) Reduce number <strong>of</strong> complaints<br />

5) Raise standards <strong>of</strong> customer relations<br />

6) Strengthen public relations<br />

7) Reduce customer time in obtaining information about railway businesses<br />

8) All contracts to carry minimum levels <strong>of</strong> insurance cover<br />

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Botswana <strong>National</strong> <strong>Integrated</strong> <strong>Transport</strong> <strong>Policy</strong><br />

Measures to be taken that will implement the policy are summarised below:<br />

1) Establish the <strong>of</strong>fice <strong>of</strong> the rail regulator<br />

2) Strengthen the complaints procedure<br />

3) Establish one stop shops<br />

4) Training in customer relations<br />

5) Carry out regular customer surveys<br />

6) Appoint customer care managers for each business type<br />

7) Improve communications<br />

8) Provide minimum automatic insurance for losses and damage to goods in<br />

transit<br />

9) Provide minimum compensation for delay<br />

10) Provide options to increase insurance cover<br />

Section 128.<br />

Providing safety and security<br />

Railways are an inherently a safe form <strong>of</strong> transport, there are comparatively few<br />

accidents and operational safety is <strong>of</strong> paramount concern, unlike road However,<br />

traffic is low, speeds and slow and so the risk <strong>of</strong> accidents is much reduced.<br />

The potential for conflict are high. The number <strong>of</strong> level <strong>of</strong> crossings is ... Crossings<br />

need to be gradually replaced with bridges only when traffic levels and speeds<br />

increase.<br />

The entire railway is fenced though needs mostly replacing. The responsibility for<br />

policing the railways is //// Theft remains the biggest problem. BR pays for enforcing<br />

security which is cost to the enterprise<br />

As a part <strong>of</strong> the process <strong>of</strong> restructuring, a thorough review <strong>of</strong> the safety and security<br />

will be carried out.<br />

The <strong>National</strong> Railways Authority will be responsible for ensuring the attention to<br />

safety and security is high. The Authority will regulate the sub-sector through issuing<br />

operator licences to on-line and <strong>of</strong>f-line operations, prepare and issue technical<br />

standards as well as provide oversight to safety and security enforcement<br />

The <strong>Government</strong> will consider the establishment <strong>of</strong> a special transport division <strong>of</strong> the<br />

police responsible for both railways and airports. Clear policy objectives are...<br />

1) Improve operational safety<br />

2) Reduce the potential for accidents<br />

3) Reduce crime on the railways<br />

Measures will include...<br />

1) Set up the safety and security directorate <strong>of</strong> the <strong>National</strong> Railway <strong>Transport</strong><br />

Authority.<br />

2) Keep accurate statistics and improved incident reporting<br />

3) Establish harmonised procedures with SADC partners for the issuance <strong>of</strong><br />

operator licences for new freight and passenger companies and neighbouring<br />

railways that will enable them to operate on Botswana railways.<br />

4) Re-fencing programme<br />

5) Level- crossing improvement programme<br />

6) Establish Botswana <strong>Transport</strong> police Division for Railways and Airports<br />

7) Review and update Railways Safety manual<br />

8) Install surveillance systems in high risk areas.<br />

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Section 129.<br />

Botswana <strong>National</strong> <strong>Integrated</strong> <strong>Transport</strong> <strong>Policy</strong><br />

Protecting the environment<br />

Rail has advantages over road in terms <strong>of</strong> environmental impacts, consuming less<br />

energy, polluting less, using less land, not causing traffic congestion and not affecting<br />

the quality <strong>of</strong> urban life. Railways do not promote their advantages strongly enough.<br />

BR though has much to do to tidy up its act, clearing rubbish, mopping up oil spills<br />

and repairing fences.<br />

Botswana is a signatory to several conventions on environmental matters and is likely<br />

to support the second treaty on climate change expected in 2012. In so doing it will<br />

require transport modes to internalise external – environmental costs. For railways<br />

this may mean paying around Pula 20 million in carbon credits to <strong>of</strong>fset the CO2<br />

emitted from diesel fuel. <strong>Policy</strong> objectives that will protect and enhance the<br />

environment are set out below:<br />

1) Internalise the external costs <strong>of</strong> pollution<br />

2) Clean up the railway formation and general environment<br />

3) Reduce noise and air pollution<br />

4) Reduce conflicts with animals<br />

5) Minimise disturbance to natural resources<br />

6) Promote the environmental advantages <strong>of</strong> railways.<br />

Actions that will be taken to implement the <strong>Policy</strong> include...<br />

1) Establish noise and pollution targets<br />

2) Insolate areas where oil spills<br />

3) Formulate a strategy to minimise CO2 footprint<br />

4) Prepare to implement Kyoto Protocol II on global warming and estimate the<br />

cost <strong>of</strong> purchasing carbon credits to <strong>of</strong>fset CO2 production and enter into<br />

accounts as proxy number<br />

5) Fencing and animal movements<br />

6) Have a proactive plan to for the conservation <strong>of</strong> Natural Resources<br />

7) Have in place guidelines for the SEA for new railways lines<br />

8) increase Night time operations<br />

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Botswana <strong>National</strong> <strong>Integrated</strong> <strong>Transport</strong> <strong>Policy</strong><br />

Aviation <strong>Policy</strong><br />

Part 3.4<br />

Broadening Horizons<br />

Figure 17 SSKI before and after - 2010<br />

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Botswana <strong>National</strong> <strong>Integrated</strong> <strong>Transport</strong> <strong>Policy</strong><br />

Article XXII. Increasing Market Share<br />

Section 130.<br />

Stimulating Passenger Demand<br />

The <strong>Government</strong> is committed to expanding the role <strong>of</strong> the aviation sub-sector and<br />

has embarked on a series <strong>of</strong> reforms which are continuing to bear fruit. It is<br />

noteworthy that passenger transport in Botswana is provided either by road or by air,<br />

there being no rail passenger transport. Overall, although aviation accounts for<br />

around 1.5% <strong>of</strong> total transport demand, its importance in terms <strong>of</strong> contribution to the<br />

economy is much higher. Such analysis is generally absent from business or<br />

economic planning and details provided herein are only estimates. But given the<br />

<strong>Government</strong>’s commitment to aviation, more attention to will be given to assessing<br />

the wider economic impact <strong>of</strong> airport projects. To this extent the minister responsible<br />

for transport will ensure that there is a clear understanding <strong>of</strong> the relative<br />

contributions made by each <strong>of</strong> the transport subsectors in general and <strong>of</strong> aviation in<br />

particular.<br />

Air passenger transport demand is expected to grow in Botswana in the years ahead.<br />

Growth will come from domestic demand as the economy develops and from<br />

international demand as Botswana projects itself in terms <strong>of</strong> business opportunities<br />

and as a leisure destination. Surveys have shown that 60% <strong>of</strong> demand is for business<br />

travel. The leisure market is positioned to expand considerably in the year ahead.<br />

Growth in passenger demand has occurred at SSKI, Francistown and Maun but not<br />

at Selebi Phikwe and Ghanzi. This pattern is expected to continue such that growth<br />

will be at around 6% per annum for SSKI, Francistown and Maun but at 12% pa at<br />

Kasane. Refer to Table 10 which shows that demand may reach 1 million passengers<br />

by 2016.<br />

Table 10 Passenger Traffic – Forecast<br />

Year SSKA Maun Kasane F/town<br />

Selebi<br />

Phikwe<br />

Ghanzi<br />

Total as per<br />

trend<br />

assessment<br />

(optimistic<br />

scenario)<br />

As per<br />

regression<br />

method<br />

most likely<br />

scenario<br />

2010 371,207 226,412 77,680 50,895 1,678 1,423 731,305 660,158<br />

2011 393,479 237,733 85,448 53,948 1,681 1,437 775,737 682,088<br />

2012 417,088 249,619 93,993 57,185 1,695 1,452 823,044 704,018<br />

2013 442,113 262,100 103,392 60,616 1,704 1,466 873,404 725,948<br />

2014 468,640 275,205 113,731 64,253 1,712 1,481 927,036 747,878<br />

2015 496,754 288,965 125,104 68,108 1,720 1,495 984,161 770,314<br />

2016 526,563 303,413 137,614 72,194 1,728 1,510 1,045,038 793,423<br />

The growth in air traffic is expected to parallel that <strong>of</strong> passenger demand though will<br />

lag behind it due to the load factors being sub-optimal. Growth in air traffic landing or<br />

taking <strong>of</strong>f from Botswana’s main airports is expected to grow at 3% p.a as indicated in<br />

Table 11 . Such increases in air traffic movement are expected to be accommodated<br />

by existing and planned changes in capacity.<br />

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Botswana <strong>National</strong> <strong>Integrated</strong> <strong>Transport</strong> <strong>Policy</strong><br />

Table 11 Aircraft Movements – Forecast<br />

Year SSKA Maun Kasane F/Town<br />

Selebi<br />

Phikwe<br />

Ghanzi<br />

Total as per<br />

trend<br />

assessment<br />

(optimistic<br />

scenario)<br />

As per<br />

regression<br />

method<br />

most<br />

likely<br />

scenario<br />

2010 18,695 46,541 15,416 5,442 503 382 86,979 75,688<br />

2011 19,817 47,937 16,340 5,659 506 384 90,643 76,810<br />

2012 21,006 49,855 17,321 5,886 509 385 94,962 77,832<br />

2013 22,266 50,852 18,360 6,239 511 387 98,615 79,054<br />

2014 23,602 52,378 19,462 6,488 514 389 102,833 80,175<br />

2015 25,018 53,949 20,629 6,747 517 390 107,250 81,786<br />

2016 26,519 55,578 21,867 7,016 520 392 111,892 81,786<br />

Despite the predicted increase in air transport demand the market is small and the<br />

critical mass needed to improve commercial viability is missing. It is a well known and<br />

long standing issue but none-the-less one that requires critical attention in this policy,<br />

for financial and economic viability drives all other issues.<br />

Growth assumes that the market will liberalise, that service standards will improve<br />

and that linkages will evolve with long haul carriers. Therefore, the main strategic<br />

objectives that aim to address the issue <strong>of</strong> increasing demand are<br />

1) To liberalise domestic markets as soon as possible<br />

2) Promote establishment <strong>of</strong> a regional low cost airlines<br />

3) Raise service standards to compete on quality<br />

4) Promote linkages with long haul carriers<br />

Measures to achieve these objectives are<br />

Section 131.<br />

Supporting Tourism and Trade<br />

The tourism and trade sectors have never had close link with aviation sector to<br />

explore economic opportunities. Of the 2.5 million tourist arrivals in 2009, air<br />

accounted for only 4.5%. The lack <strong>of</strong> this linkage has disadvantaged the economic<br />

growth <strong>of</strong> sectors for a period <strong>of</strong> time. The World Tourism Association defines a<br />

tourist as being anyone staying up to 1 year in a place that is not his or her home.<br />

This means that almost all business trips may be recorded as being touristic.<br />

Tourism and trade are indispensable and inseparable accounting for 16% and 23%<br />

<strong>of</strong> non-mining GDP and 11% and 15% <strong>of</strong> registered employment. Despite the low<br />

proportion <strong>of</strong> tourists travelling by air, the growth in tourism has been at an average<br />

rate <strong>of</strong> 14% since 1995.<br />

The low use <strong>of</strong> aviation services is attributed mostly to the low volume consequences<br />

<strong>of</strong> Botswana being marketed as an exclusive destination, high prices and lack <strong>of</strong><br />

connectivity. The Minister responsible for transport will together with Ministers<br />

responsible for trade and tourism will prepare strategies that will double demand<br />

within 5 years <strong>of</strong> this policy entering into force.<br />

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Botswana <strong>National</strong> <strong>Integrated</strong> <strong>Transport</strong> <strong>Policy</strong><br />

Strategic Objectives for supporting tourism and trade include:<br />

1) Expand the high volume tourist market<br />

2) Providing freedom to international tourist charters to all airports linking places<br />

<strong>of</strong> tourist interest<br />

3) Attribute airports with international status<br />

4) Ensure airports have easy connectivity and better services<br />

5) Upgrade airports at places <strong>of</strong> tourist interest.<br />

6) Encourage private sector participation in building infrastructure near airports<br />

Some <strong>of</strong> the initiatives that will be taken to implement the policy as summarised<br />

below:<br />

1) Amendment <strong>of</strong> the aviation law<br />

2) Identify key airports for international status<br />

3) Upgrading and identify potential grounds<br />

4) Like transport services from airports to nearby cities, business centres, and<br />

duty free shopping complexes <strong>of</strong> international class. Golf courses,<br />

amusement park, aviation recreation activities, adventure aviation , micro<br />

light aircraft, parachuting etc<br />

5) Issue <strong>of</strong> visa on arrival at the airport<br />

6) Introduce Electronic Data Interchange to interlink trade agencies, customs,<br />

immigration for faster efficient trade<br />

Section 132.<br />

Positioning Botswana in the Aviation Network<br />

The history <strong>of</strong> international and regional transport development in Botswana has<br />

always been closely linked to the politics in the region, be it international sanctions<br />

against South Africa before 1994 or problems in Zimbabwe since 2001. Examination<br />

<strong>of</strong> the historical traffic volumes (1988-2008) suggests that there were a number <strong>of</strong><br />

events and factors which may help to explain the fluctuations in the aviation market.<br />

Following the lifting <strong>of</strong> sanctions, long haul carriers (UTA/Air France and BA)<br />

terminated operations to Gaborone, probably due the high cost <strong>of</strong> the short leg GBE-<br />

JNB and uncompetitive 1-stop service on London-Johannesburg. BA continued its<br />

service until March 1999. The rapid expansion <strong>of</strong> the regional network <strong>of</strong> services in<br />

1990's to lead to substantial losses and eventfully to their termination. Johannesburg<br />

is now the gateway for practically all regional and international services to and from<br />

Botswana.<br />

As direct regional flights were discontinued, the frequency and capacity <strong>of</strong> connecting<br />

services between Gaborone and Johannesburg have increased. In addition non-stop<br />

service initiated between Maun and Johannesburg in 2006/07 with 1 flight a week,<br />

are now 3 times per week. This service has since been expanded to 15 flights a<br />

week. Refer to Table 12.<br />

Lessons have been learned from the past, the main one being that only commercial<br />

considerations shall influence the marketing strategy <strong>of</strong> the <strong>National</strong> Airline. The<br />

Assistant Minister responsible for aviation shall ensure that market projections are<br />

realistic and achievable when considering network expansion.<br />

The <strong>Government</strong> support the aspiration <strong>of</strong> positioning SSKI as a complementary and<br />

alternative hub to Johannesburg but recognise that it will not be achievable in the<br />

short and medium term, until the relative attractiveness <strong>of</strong> Gaborone improves.<br />

When planning and investing in network expansion the following strategic objectives<br />

shall be achieved.<br />

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Botswana <strong>National</strong> <strong>Integrated</strong> <strong>Transport</strong> <strong>Policy</strong><br />

1) Each service added or enhanced shall make a positive contribution to the net<br />

revenue <strong>of</strong> Air Botswana.<br />

2) Direct services to Southern African regional destinations shall be added as<br />

demand increases<br />

3) Reintroduce stopovers from long hauls to the region<br />

Table 12 Frequency <strong>of</strong> International Services - 1990 through 2009<br />

Round/trip<br />

Services<br />

Between<br />

Bots.<br />

Foreign<br />

Gaborone<br />

Maun<br />

Oct ‘91 thru March<br />

‘92<br />

Feb, ‘96<br />

March<br />

‘97<br />

April ‘09<br />

AB Foreign Total AB Foreign Total AB AB Foreign Total<br />

Date<br />

service<br />

discontinued<br />

London - 2 2 - 2 2 2 - - - March<br />

‘99<br />

Paris - 1 1 - - - - - - - Nov. ‘94<br />

Jo’burg 8 7 15 16 13 29 19 27 39 66<br />

Harare 3 3 6 2 2 4 3 3 - 3<br />

Nairobi 2 - 2 - - - - - - -<br />

Bulawayo 2 - 2 - - - - - - -<br />

Maseru 2 - 2 - - - - - - -<br />

Manzoni 1 3 4 - - - - - - -<br />

Lusaka 1 2 2 1 - 1 - - - -<br />

Lilongwe/<br />

Dar as 1 1 2 - - - - - - -<br />

Salam<br />

Luanda 1 - 1 - - - - - - -<br />

Windhoek - - - 2<br />

Vic. Falls 2 - 2 - - - - - - -<br />

Jo’burg - - - - - - 1 12 - 12<br />

Vic. Falls - - - 3 - 3 3 - - -<br />

Windhoek 1 2 3 2 2 4 1 - 3 3<br />

Source: Airline schedules, Air Botswana and previous studies.<br />

Measures to fulfil the above mentioned objectives include but are not limited to the<br />

following:<br />

1. Improve capacities <strong>of</strong> marketing in AB<br />

2. Carry out annual market surveys on all services<br />

3. Prepare and implement marketing strategies to support the realisation <strong>of</strong> the<br />

above mentioned objectives<br />

4. Develop packages with tour companies<br />

5. Discount services on-last minute basis to increase load factors<br />

Section 133.<br />

International Connectivity<br />

Gaborone is connected directly to only 3 other SADC capital cities and, with one<br />

transfer to another 12. Outside the SADC region, Gaborone is connected directly to<br />

only 1 capital city. This represents one <strong>of</strong> the lowest levels <strong>of</strong> aviation connectivity<br />

between capital cities anywhere in the world.<br />

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Botswana <strong>National</strong> <strong>Integrated</strong> <strong>Transport</strong> <strong>Policy</strong><br />

Figure 18 International destinations for passengers departing from SSKI April 2009<br />

Major Countries<br />

<strong>of</strong> Destination<br />

JNB<br />

Other ZA<br />

UK<br />

Zambia<br />

Zimbabwe<br />

USA<br />

India<br />

Namibia<br />

Kenya<br />

Lesotho<br />

China<br />

Mozambique<br />

Mauritius<br />

Italy<br />

France<br />

Nigeria<br />

Malawi<br />

Tanzania<br />

Uganda<br />

Sweden<br />

Australia<br />

Portugal<br />

Angola<br />

Germany<br />

- 100 200 300 400 500 600 700 800<br />

One-way Passengers per week<br />

April 19 to 25, 2009<br />

International air traffic<br />

operations are guided by<br />

bilateral agreements. In the<br />

context <strong>of</strong> emerging national<br />

and global economic<br />

scenarios, such agreements<br />

need to be reviewed from a<br />

wider perspective and should<br />

embody user interests,<br />

national<br />

economic<br />

priorities/policies, commercial<br />

relations with other countries.<br />

Potential benefits to other<br />

sectors <strong>of</strong> the economy like<br />

tourism, trade, commerce,<br />

investment etc need to be<br />

given due priority in planning<br />

to ensure that the bilateral agreements serve the larger national interests. The<br />

<strong>Government</strong> will aim at ensuring adequate capacity to fully meet the requirement <strong>of</strong><br />

international trade and tourism.<br />

In international air transport, the policy strives to provide adequate capacity and<br />

market access to facilitate easy movement <strong>of</strong> international traffic to/from Botswana.<br />

The policy favours competition in the international air transport, sector, with due<br />

consideration to protecting national interests, and increasing Botswana’s participation<br />

in the international air transport market.<br />

The <strong>Government</strong> will support the award <strong>of</strong> reciprocal international operations to<br />

promote trade and tourism. There will be freedom to international charter operations<br />

to different custom airports. Efforts will be made by national carriers to join global<br />

alliances in their own commercial interest and in the interest <strong>of</strong> travelling passengers<br />

code-sharing, exchange <strong>of</strong> frequent-flier programs.<br />

The principle <strong>Policy</strong> objectives to be achieved are...<br />

1) Ensuring that traffic rights are utilized to the maximum extent<br />

2) Providing a fair play environment<br />

3) Reducing penalties that undermine international connectivity<br />

4) Reducing restriction on international cargo flights<br />

The main measures that will be carried out to implement the policy include<br />

1) Creation <strong>of</strong> direct operations, creation <strong>of</strong> virtual equipment by way <strong>of</strong> joint<br />

flights, code sharing arrangements which can also apply two national<br />

carriers.<br />

2) Establish long run and well defined objectives and mechanism for sharing<br />

international traffic rights amongst airlines in a transparent manner.<br />

3) Avoiding discrimination between airport operators in allotting capacity to<br />

foreign carriers as per bilateral agreements if demand exists<br />

4) Set standards to improve connectivity by minimum connections<br />

internationally<br />

5) Set tariffs that will support market viability, only domestic cargo within the<br />

country will be not allowed<br />

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Botswana <strong>National</strong> <strong>Integrated</strong> <strong>Transport</strong> <strong>Policy</strong><br />

Section 134.<br />

<strong>National</strong> Flag Carrier<br />

Air Botswana has been the national flag carrier since 1966. The concept <strong>of</strong> airlines<br />

and railways representing the national interest is historic and persists today. There<br />

are instances where small nations recognizing the benefits <strong>of</strong> working together have<br />

managed to put aside their national pride and combine. Scandinavian Air Services<br />

SAS is a good example <strong>of</strong> this. The benefits <strong>of</strong> combining resources and creating<br />

economies <strong>of</strong> scale are obvious.<br />

Furthermore, the <strong>Government</strong> will promote market liberalization and will resist any<br />

calls to protectionism. That being the case, it is predictable that other airlines, not<br />

inhibited by national interests, will open services in the region and successfully<br />

compete with historic national carriers. As such it is possible to predict a loss <strong>of</strong><br />

market share and decline in pr<strong>of</strong>itability <strong>of</strong> the national flag carrier in the medium<br />

term.<br />

In 2010 Air Botswana operated 100 flights per week, it remains one <strong>of</strong> many small<br />

airlines in the region whose future exists only if the national governments underwrite<br />

them, and the <strong>Government</strong> has an open mind to the regionalisation <strong>of</strong> national<br />

airlines and, to that end, will peruse a course <strong>of</strong> negotiations with neighboring<br />

countries to achieve that goal.<br />

The Assistant Minister responsible for aviation will pursue a course that will eventually<br />

lead to a regional airline, bearing in mind the following strategic objectives:<br />

1) Ensure that there is a sufficient supply <strong>of</strong> cost effective aviation services for<br />

Botswana<br />

2) Position Air Botswana to be a major stakeholder in a regional airline<br />

3) Ensure that one way or another, the national interest is always represented.<br />

Measures that will move towards establishing a low cost regional airline are as<br />

follows<br />

1. Study history <strong>of</strong> Ryanair and others for benchmarking<br />

2. Set out negotiating parameters with neighbouring airlines<br />

3. Prepare marketing strategy and business plan.<br />

4. Package services with international tourist companies<br />

5. Negotiate competitive landing fees at regional airports<br />

6. Generate investor interest and stakeholder participation<br />

7. Register low-cost airline in Botswana<br />

Section 135.<br />

Remote areas outreach<br />

The multi-sectoral approach to economic empowerment <strong>of</strong> Batswana is not given<br />

enough recognition as a better approach <strong>of</strong> making other government programmes<br />

like agro projects and tourism community benefits projects sustainable. As a result <strong>of</strong><br />

industrialization, the world keeps on changing responding to the impacts <strong>of</strong><br />

technology brought by the industrialization. The impact <strong>of</strong> such changes brings<br />

natural catastrophe to different parts <strong>of</strong> the country and the country should be seen to<br />

be always prepared infrastructural during times <strong>of</strong> evacuation. This extends to natural<br />

disasters like fire outbreaks, over flooding <strong>of</strong> dams, health services etc. The trend in<br />

the demand for air travel to smaller airports has been generally negative. <strong>Transport</strong><br />

aims to provide a net increase in the value <strong>of</strong> goods and labour. Based on this<br />

principle, the outreach programme will link development with accessibility so that the<br />

investment <strong>of</strong> smaller airports is justifiable.<br />

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Botswana <strong>National</strong> <strong>Integrated</strong> <strong>Transport</strong> <strong>Policy</strong><br />

Figure 19 Fluctuating demand for smaller airports<br />

I n d e x o f P s g r T r a f f i c 1 9 8 8 = 1 . 0<br />

3.00<br />

2.50<br />

2.00<br />

1.50<br />

1.00<br />

0.50<br />

0.00<br />

88 89 90 91 92 93 94 95 96 97 98 99 '00 '01 '02 '03 '04 '05 '06 '07 '08<br />

Francistown Selibe Phikwe Ghanzi<br />

Due to inaccessibility to remote areas, this<br />

policy sees the need to provide<br />

infrastructure and air services. Such<br />

provisions will also attract commercial<br />

airlines and airport operators to realize the<br />

opportunities to invest in these areas which<br />

will equally contribute to creation <strong>of</strong><br />

employment. Driven by the overarching<br />

objectives to improve accessibility,<br />

integration with other sectors and to provide<br />

support to socially necessary services, the<br />

measures to be taken that will improve the<br />

reach to remote areas <strong>of</strong> the Botswana<br />

include but are not limited to the following...<br />

1) Airport infrastructural development including airstrips/ helipads/heliports will<br />

be provided.<br />

2) Airport infrastructure will be upgraded wherever necessary keeping in mind<br />

the linkage with the aircraft type, traffic pr<strong>of</strong>ile and the likely demand.<br />

3) Establish public service obligation agreements between operators and<br />

government for the provision <strong>of</strong> social services.<br />

4) Provide subsidy to attract airports operators and small aircrafts. Airport<br />

infrastructural development including airstrips/ helipads/heliports will be<br />

provided. Airport infrastructure will be upgraded wherever necessary keeping<br />

in mind the linkage with the aircraft type, traffic pr<strong>of</strong>ile and the likely demand.<br />

5) Agro processing planting and aviation services and regeneration <strong>of</strong> mining<br />

sites to transform them into tourism sites with the support <strong>of</strong> aviation<br />

infrastructure and services.<br />

6) Provision <strong>of</strong> heliports at dams and hospitals.<br />

7) Suitable infrastructure like hotels, organized taxi-services at airports and<br />

tourist sports in remote areas will be encouraged to help growth <strong>of</strong> tourism in<br />

the country.<br />

Section 136.<br />

Better Air cargo Services<br />

Being land locked, air provides the most direct and secure mode <strong>of</strong> transport,<br />

particularly for high value goods. However, there are no scheduled exclusive cargo<br />

services operating in Botswana and air cargo is moved only on passenger services.<br />

Cargo handled through SSKA and other airports has been around 1000 tons for the<br />

last 7 years. There was strong optimism in forecasting cargo throughput in 1997<br />

which by 2013 was expected to reach 40,000 tons. This may have been achievable if<br />

other measures that stimulated foreign investment in productive areas such as<br />

manufacturing and agriculture had taken place. Initiatives such as Air Cargo Hub<br />

have also met with a disappointing response in the market place. The lack <strong>of</strong> growth<br />

in air cargo relates to the lack <strong>of</strong> growth in most non-mining sectors.<br />

There is clearly a need for both realism and pragmatism, Realism in that the<br />

generation <strong>of</strong> air cargo – particularly exports relates to the attractiveness <strong>of</strong> Botswana<br />

for foreign direct investment and pragmatism because <strong>Government</strong> is not in right<br />

position to be sufficiently sensitive to market needs. However, by focussing on added<br />

value logistics and consolidation services and on niche markets, it is possible to<br />

envisage that the air cargo will grow<br />

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Botswana <strong>National</strong> <strong>Integrated</strong> <strong>Transport</strong> <strong>Policy</strong><br />

Table 13 Cargo and Mail handled from year 1999 to 2009<br />

Year Cargo (Kg) Mail (Kg)<br />

1999 416,415 44,410<br />

2000 696,063 45,387<br />

2001 744,241 41,455<br />

2002 682,910 29,911<br />

2003 756,847 38,112<br />

2004 920,555 23,198<br />

2005 941,353 7,395<br />

2006 1,020,292 2,283<br />

2007 1,098,197 1,341<br />

2008 1,067,839 1,455<br />

2009 936,887 1,683<br />

Measures needed to expedite the policy include;<br />

1) Within 6 months <strong>of</strong> this policy being<br />

approved, the Assistant Minister responsible for<br />

aviation will spearhead a task force to come up<br />

with a workable strategy to increase the<br />

demand for air cargo services,<br />

2) The objectives <strong>of</strong> this policy are as<br />

follows:<br />

3) To ensure that air freight and logistics<br />

services are sufficient to meet demand<br />

4) Stimulate foreign direct investment<br />

through the provision <strong>of</strong> world class air freight<br />

and logistics services.<br />

1) Concentration <strong>of</strong> freight and logistics services in the vicinity <strong>of</strong> SSKI<br />

2) Support fiscal incentives to start ups and relocations in the area<br />

3) Pro-actively dismantle restrictive immigration practices<br />

4) Contribute pro-actively to regionalisation<br />

5) Promote marketing activities<br />

6) Promote consolidation services<br />

7) Improve appreciation <strong>of</strong> logistics<br />

8) Ensure internet connectivity in the area is world class<br />

Article XXIII. Improving Airport Planning and<br />

Infrastructure<br />

Section 137.<br />

<strong>Integrated</strong> Planning<br />

Airports are transport gateways that almost always catalyse local development and<br />

economic growth. This can be achieved in an ad hoc reactive way as has been the<br />

case over the years or proactively through the preparation <strong>of</strong> integrated planning. The<br />

<strong>National</strong> <strong>Transport</strong> Authority exists exactly to promote synergy between the transport<br />

sub-sectors and the other economic sectors which transport serves. Airport<br />

development shall include land use planning for the sub-region which the airport is<br />

intended to serve.<br />

The Minister responsible for transport will promote airport development only if it is<br />

clear that the wider development impact has been comprehensively integrated. This<br />

will include carrying out detailed socio-economic analysis <strong>of</strong> the proposed<br />

development and proposing changes in land use in the airport hinterland as well as<br />

traffic and market analysis. The primary objective for this policy is to maximize the<br />

value <strong>of</strong> airport development through proactive integrated planning. The measures<br />

needed to expedite the policy include the following:<br />

1. Full participation <strong>of</strong> local and regional interests in planning the development<br />

2. Revised physical planning in the zone <strong>of</strong> influence <strong>of</strong> the airport<br />

3. Preparation <strong>of</strong> a strategic environmental assessment ( SEA) including social<br />

and economic factors<br />

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4. Value added or producer surplus analysis <strong>of</strong> the economic impact on the<br />

provision <strong>of</strong> goods and labour that will show the net impact on the local<br />

economy<br />

5. Inclusion <strong>of</strong> airport development projects in the <strong>National</strong> <strong>Transport</strong><br />

Masterplan<br />

Section 138.<br />

Planning Gain around Airports<br />

Increasing the value <strong>of</strong> land has never been seen as an economic opportunity and as<br />

a consequence there has been a lack <strong>of</strong> optimal exploitation <strong>of</strong> land directly and<br />

indirectly influenced by an existing or planned airport.<br />

Moreover, the problems are compounded by a lack <strong>of</strong> considerations for economic<br />

regeneration at airports. Overall there has been a problem that foreign direct<br />

investment FDI, through private sector participation, has been disappointing<br />

Hindsight is a wonderful gift. But it is true that exploitation <strong>of</strong> the concept <strong>of</strong> planning<br />

gain has not been taken up by <strong>Government</strong>. We have all benefited from the<br />

increasing value <strong>of</strong> our properties that has occurred –especially after a new road or<br />

airport has been built nearby and now should be prepared to put something back so<br />

that the <strong>Government</strong> may continue with further development.<br />

Similarly, opportunities for economic diversification have passed us by, simply by not<br />

taking advantage <strong>of</strong> available resource to increase the value <strong>of</strong> the service provided.<br />

The typical example is land value which is determined by the available development.<br />

Land around airports is extremely valuable. The policy envisages the tapping into that<br />

increase in value to fund development and diversification.<br />

The policy will require the AAB to identify and evaluate available or vacant land at<br />

airports for purposes <strong>of</strong> construction <strong>of</strong> aviation activities. Where available land at<br />

airports has not been earmarked for future use for civil aviation purposes, it shall be<br />

diverted for use for other commercial activities either by Airport Authority <strong>of</strong><br />

Botswana or through joint venture. The objectives to be achieved through the<br />

implementation <strong>of</strong> the policy to exploit planning gain are<br />

Maximise income from planning gain due to decisions to build airports<br />

Use the income from Planning Gain to support airport related PPP<br />

The main courses <strong>of</strong> action to be taken to implement the policy are:<br />

1) Determine areas influenced by existence <strong>of</strong> airports<br />

2) Provide valuation <strong>of</strong> such lands before and after the planning decision was<br />

made<br />

3) Tax the appreciation in land values<br />

4) Apply the income to support Airport Development Projects<br />

5) Integrate airport with other economic developments<br />

Other associated measures include<br />

1) Implementation <strong>of</strong> the concept <strong>of</strong> the Airtropolis<br />

2) Leasing out land for other investment opportunities.<br />

3) Use planning grain as a component <strong>of</strong> PPP (Private Sector/<strong>Government</strong>) for<br />

optimal exploitation <strong>of</strong> airport for civil aviation purposes<br />

4) Promote the private construction <strong>of</strong> cargo complexes, aircraft maintenance<br />

facilities<br />

5) Promote related tourist and leisure activities close to regional airports<br />

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Section 139.<br />

Botswana <strong>National</strong> <strong>Integrated</strong> <strong>Transport</strong> <strong>Policy</strong><br />

Airport Infrastructure<br />

The airport infrastructure is currently developed, owned and operated by the<br />

<strong>Government</strong>. Such practise transfers all investment and management risks<br />

unnecessarily to the tax payer. <strong>Government</strong> investment decisions are not<br />

commercially driven and it is very difficult to perceive any positive economic and<br />

financial benefits, though they may be there.<br />

The <strong>Government</strong> will continue to own transport infrastructure which includes runways,<br />

taxiways, aprons and land side roads and parking and, through investment, will<br />

ensure that the provision <strong>of</strong> infrastructure aviation capacity is sufficient to meet<br />

demand. Regarding operational buildings, maintenance facilities, cargo handling and<br />

storage, the <strong>Government</strong> will, through the appointed Authority, act as landlord,<br />

permitting legal entities to develop on a leasehold or rental basis within the limits <strong>of</strong><br />

airports.<br />

The <strong>Government</strong> may determine to outsource the operation maintenance and<br />

management <strong>of</strong> infrastructure on a concession basis and require the Assistant<br />

Minister responsible for Railways and Aviation to take steps to promote further<br />

development and maintenance <strong>of</strong> airports in collaboration with the private sector<br />

where considered expedient so to do.<br />

The <strong>Government</strong> will ensure that all aviation development is fully integrated into land<br />

use plans and with other modes <strong>of</strong> transport and the objectives for airport<br />

construction include<br />

1) Improve the economic return on investment in airports<br />

2) Removal <strong>of</strong> commercial risk <strong>of</strong> investment from government to the Private<br />

Sector<br />

3) Integrate airport development<br />

To achieve these objectives some <strong>of</strong> the initiatives to be taken include..,<br />

1) Apply commercial criteria to making investment decisions<br />

2) Outsourcing the development and construction <strong>of</strong> airport infrastructure<br />

3) Restructuring <strong>of</strong> some functions to create room for private participation<br />

4) Engagement <strong>of</strong> private sector for build – own and operate and management<br />

<strong>of</strong> infrastructure<br />

5) Private sector will partake on construction and operation <strong>of</strong> new<br />

airports/airstrips/helipads/heliports/including cargo complexes, express cargo<br />

terminals, cargo satellite cities and cargo handling facilities.<br />

6) Provision <strong>of</strong> long-term lease to private investors for efficient, management,<br />

improvement <strong>of</strong> standards <strong>of</strong> services /facilities and attracting private<br />

investment<br />

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Botswana <strong>National</strong> <strong>Integrated</strong> <strong>Transport</strong> <strong>Policy</strong><br />

Case Study --- CAAB Development Plan 2010 - 2015<br />

The five year plan to improve SSKI, Maun, Francistown and Kasane requires investment <strong>of</strong> P1.2 billion<br />

while turnover <strong>of</strong> gross revenues projected over the same period amount to 600 million. Allowing for<br />

operating and maintenance costs <strong>of</strong> around 15% <strong>of</strong> the capital expenditure and income growth <strong>of</strong> 6% pa,<br />

the net present value <strong>of</strong> the investment will be negative P1.5 billion over a 15 year period..<br />

year sski ft kas mn CAPEX OPEX income net income<br />

1 211 515 34 411 1171 176 60 -1287<br />

2 7.2 50 108 84 249.2 214 90 -374<br />

3 0 0 9 0 9 214 120 -103<br />

4 0 0 0 0 0 214 150 -64<br />

5 0 0 0 0 0 214 180 -34<br />

6 214 191 -24<br />

7 214 202 -12<br />

8 214 214 0<br />

9 214 227 13<br />

10 214 241 27<br />

11 214 255 41<br />

12 214 271 56<br />

13 214 287 73<br />

14 214 304 90<br />

15 214 322 108<br />

1429.2 NPV (1,503.96)<br />

Assumptions<br />

Operating and maintenance expendiure 15% <strong>of</strong> the capital expenditure<br />

Income growth at 6% pa from year 6 from air traffic landing fees and overflight<br />

So more income will be needed to make a positive return on investment for the <strong>Government</strong>. To achieve a<br />

return on capital <strong>of</strong> 12%, which is the <strong>Government</strong> norm, additional income <strong>of</strong> 130% <strong>of</strong> the traffic related<br />

income would be needed over the 15 year period -- as shown below.<br />

year sski ft kas mn CAPEX OPEX income other net income<br />

1 211 515 34 411 1171 176 60 78 -1209<br />

2 7.2 50 108 84 249.2 214 90 117 -257<br />

3 0 0 9 0 9 214 120 156 53<br />

4 0 0 0 0 0 214 150 195 131<br />

5 0 0 0 0 0 214 180 234 200<br />

6 214 191 248 224<br />

7 214 202 263 251<br />

8 214 214 279 279<br />

9 214 227 295 308<br />

10 214 241 313 340<br />

11 214 255 332 373<br />

12 214 271 352 408<br />

13 214 287 373 445<br />

14 214 304 395 485<br />

15 214 322 419 527<br />

1429.2 NPV 19.87<br />

IRR 12%<br />

Income from sales and other 1.3<br />

services as a factor <strong>of</strong> income<br />

from traffic<br />

Mindful <strong>of</strong> the financial performance <strong>of</strong> its capital programme the CAAB airport development objective<br />

should be to maximise revenue...<br />

Article XXIV. Engaging Contemporary<br />

Management<br />

Section 140.<br />

Restructuring Aviation sub-sector<br />

The <strong>Government</strong> is aware that aviation requires reform in order for it to develop in the<br />

21 st century, like other subsectors. The <strong>Government</strong> is aware that it is not able to<br />

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provide the leadership needed for the sub-sector in this rapidly changing environment<br />

nor is it sensitive to the market that drives its performance.<br />

Top that end it will be taking steps to separate policy, regulatory and strategic<br />

planning from service provision. Aviation roles will be more clearly defined to avoid<br />

conflict between the authority and operators. The Civil Aviation Authority will remain<br />

an autonomous regulatory authority within the <strong>National</strong> <strong>Transport</strong> Authority, playing<br />

the role <strong>of</strong> watchdog and facilitator for the sector charged with the responsibility <strong>of</strong><br />

prescribing, and enforcing minimum standards for all agencies, settling disputes with<br />

regard to abuse <strong>of</strong> monopoly and ensuring equitable market conditions for all<br />

agencies.<br />

The primary objective <strong>of</strong> this Authority is to ensure aviation safety, security and<br />

effective regulation <strong>of</strong> air transport in the country in a more liberalised environment.<br />

The policy objectives for restructuring the aviation sector are<br />

1) Ensure that airport development makes a positive contribution to the<br />

economy<br />

2) Increase the range and quality <strong>of</strong> services provided<br />

3) Increase the demand for such services<br />

4) Improve the financial performance <strong>of</strong> ground and air services<br />

5) Improve the rights <strong>of</strong> customers<br />

6) Continue to improve security and safety<br />

The Assistant Minster responsible for aviation will be charged with the responsibility<br />

<strong>of</strong> realising these objectives, and, will set up an Inter-Ministerial Task Force, to make<br />

progress on expediting the following measures.<br />

1) Set in place procedures to ensure that airport development is sustainable<br />

2) Establishment <strong>of</strong> Airport Authority <strong>of</strong> Botswana<br />

3) Assess standards and ensure adherence to international standards<br />

4) Set standards for various agencies and personnel <strong>of</strong> civil aviation sector and<br />

ensure that these agencies and personnel continuously fulfil the standards<br />

5) Take appropriate preventive/ corrective/punitive action on lack <strong>of</strong> compliance<br />

regarding violations <strong>of</strong> set standards by agencies and personnel<br />

6) Study and analyze the trends in international and domestic civil aviation,<br />

project likely future scenario and publish periodical reports.<br />

7) Issue license to these agencies and personnel<br />

8) Deregulate tariffs – but monitor them through the Aviation Regulator<br />

9) Ensure level playing field for all agencies such as airport, airport operators,<br />

passenger aircraft operators, helicopters, private aircraft operators, flying<br />

clubs, aero sports clubs, training institute, air travel operators.<br />

10) Conduct safety and security audit including flight inspections <strong>of</strong> the<br />

concerned agencies to ensure that they meet the prescribed standards.<br />

11) CAAB will be expected to Publish Annual Report on Air Safety and Security<br />

Environment in the country.<br />

Section 141.<br />

Information sharing<br />

The system in place does not reflect any consultation forums between users and the<br />

aviation authority. The practice result from lack <strong>of</strong> proper structures that facilitate the<br />

need to see the benefit in strengthening the aviation sector. The success <strong>of</strong> the<br />

aviation policy depends upon the benefits it gives to the various users. The<br />

requirement continuous interaction with and amongst all categories <strong>of</strong> users is vital<br />

for successful implementation <strong>of</strong> and continuous improvement in the policy. There is<br />

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urgent need to establish institutional arrangements at different levels for such<br />

interaction.<br />

Measures to be achieved in improving information sharing are cited as follows:<br />

1. Establishing Air <strong>Transport</strong> Users Consultative Council<br />

2. Restructuring <strong>of</strong> aviation <strong>of</strong> operations and processes<br />

3. Provide monitoring and feedback tool for the facilitation <strong>of</strong> Committees at<br />

national, regional and local level<br />

4. Establish database on all users categories<br />

5. Mandatory prior consultation with Facilitation Committees before the<br />

amendments in policy, rules and regulation<br />

6. Formation <strong>of</strong> Facilitation Committees comprising aircraft operators, airport<br />

operators, exporters and importers, cargo handling agents, flying clubs etc.<br />

7. CAAB and AB to enhance web site and forum<br />

Article XXV. Creating Opportunities<br />

Section 142.<br />

Investment promotion<br />

The government will provide ample room to open up private sector investment<br />

opportunities. The current practice is that the government in spending so much in a<br />

wide range activities including building, owning and operating <strong>of</strong> infrastructure<br />

development. The policy will allow private participation by taking into consideration<br />

the participation <strong>of</strong> government, urban local authorities, private companies,<br />

individuals, individuals and joint ventures on build-own and transfer. The restructuring<br />

<strong>of</strong> major airports will be approached through long lease to private investors for<br />

efficient management, improvement <strong>of</strong> standards <strong>of</strong> services/facilities and attracting<br />

private investment.<br />

The principle objectives for the said policy are:<br />

1) Increase demand for air passenger and air cargo<br />

2) Increase start-ups in aviation related businesses<br />

3) Diversify markets<br />

The initiatives that will help to advance the policy will include<br />

1) Provide equal rights for landing at Airport in Botswana<br />

2) Concession the operation <strong>of</strong> airports in Botswana<br />

3) Encourage private investment formulation <strong>of</strong> liberalized guidelines in<br />

consultation with users including liberalized air space control<br />

4) Engagement <strong>of</strong> private investors in the restructuring <strong>of</strong> certain functions<br />

5) Establish flying clubs, aero sports like hang gliding, ballooning, heli-skiing,<br />

para-jumping<br />

6) Private operators and corporate operators will be encouraged to construct<br />

smaller airstrips/helipad/heliports<br />

Article XXVI.<br />

Section 143.<br />

Funding<br />

Factoring in Sustainability<br />

The airports <strong>of</strong> Botswana have been operated over the years more as a public<br />

service than a business, while aviation services in other countries have been fully<br />

comercialised, those in Botswana have not. Tariffs for ground services, license fees<br />

and navigation have not changed for many years. There has been a presumption that<br />

investment will be provided by the state as a grant. Business planning appears to be<br />

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driven more by bureaucratic expediency than business. The 5 year plan for 2009 to<br />

2014 requires the tax payer to pay over P3 billion to development and operation <strong>of</strong><br />

national airports. The projected income, <strong>of</strong> just P670 million, is only 50% <strong>of</strong> the<br />

projected operating expenses. There is no explanation <strong>of</strong> the social or economic<br />

benefit to society that justifies the public contribution. There is no indication <strong>of</strong> the<br />

future involvement <strong>of</strong> the private sector.<br />

The <strong>Government</strong> will not any longer provide an open cheque book to airport<br />

operations. The Assistant Minister for aviation will overee the transformation needed<br />

to ensure that the future aviation sub-sector is sustainable.<br />

Objectives<br />

1) Maximise the net revenue generated from supplying aviation sevices<br />

2) Enhance the value <strong>of</strong> assets through sound investment and good<br />

management<br />

3) Aim to be pr<strong>of</strong>itable and provide shareholder dividend within 3 to 5 years<br />

4) Delineate between commercially viable and socially needed services<br />

5) Privatise commercially viable businesses<br />

The measures needed<br />

1) Rapidly raise all tariffs to current market expectations for all services<br />

2) Enhance the range <strong>of</strong> sources <strong>of</strong> income<br />

3) Receive land and property assets from the state and commericially exploit<br />

them<br />

4) Provide incentives to foreign carriers to base regional operations in Botswana<br />

5) Prepare and implement public services agreement with the <strong>Government</strong> to<br />

operate and support non-commerical services at their discretion<br />

6) Lease / concession SSKI, Francistown, Maun and Kasane aiports<br />

7) Prepare and publish accounts to international standards<br />

Section 144.<br />

Safety and Security<br />

A vital element in sustainability <strong>of</strong> the aviation sub-sector is security and safety,<br />

without compliance to international safety regulations, the aviation sub-sector would<br />

not exist. Safety requirements apply to all aspects <strong>of</strong> the sub-sector, airports, air<br />

navigation and operations.<br />

While air operations and navigation are safety accredited, ground services have more<br />

to do. According to the International Civil Aviation Organisation ICAO, Botswana is<br />

92% non-compliant in areas <strong>of</strong> qualification and training and 72% non-compliant in<br />

the effective implementation <strong>of</strong> a safety management and 78% deficient in providing<br />

safety oversight.<br />

The Assistant Minister responsible for aviation will within 6 months <strong>of</strong> the adoption <strong>of</strong><br />

this policy have in place a plan for safety capacity building the objectives <strong>of</strong> which are<br />

1) Obtain highest ratings for aviation safety with the ICAO<br />

2) Obtain appropriate airport security quality ratings<br />

Measures that will be implemented to improve aviation security include but are not<br />

limited to the following:<br />

1) Rectifiy Deficiencies as identified by the ICAO<br />

2) Put in place airport safety procedures<br />

3) Establish air safety training capacity and resources<br />

4) Put in place mechanisms for funding safety oversight<br />

5) Monitor implementation and improvements<br />

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Botswana <strong>National</strong> <strong>Integrated</strong> <strong>Transport</strong> <strong>Policy</strong><br />

River, Marine &<br />

Pipeline <strong>Transport</strong><br />

<strong>Policy</strong><br />

Part 3.4.<br />

Making the most <strong>of</strong> alternative<br />

<strong>Transport</strong><br />

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Article XXVII.<br />

Augmenting modal choices<br />

Section 146.<br />

Utilizing alternatives<br />

As an alternative, river transport is not fully utilized thereby limiting modal choices for<br />

both people and goods.<br />

The <strong>Government</strong> <strong>of</strong> Botswana will promote the potential <strong>of</strong> all transport modes to<br />

ensure that river transport in the Chobe River, the Okavango panhandle and Delta<br />

are fully utilized as an alternative means <strong>of</strong> conveyance for both people and goods to<br />

enhance accessibility and mobility in areas with infrastructural deficits for other<br />

modes as well as stimulate rural economic development.<br />

There are three objectives that should be achieved through this policy<br />

1. Promote riverine transport to improve mobility <strong>of</strong> the user public in specific<br />

areas<br />

2. Reduce the peripherality <strong>of</strong> rural locations and promote social inclusion<br />

3. Enhance the transportation <strong>of</strong> freight by waterborne transport<br />

Successful implementation <strong>of</strong> the policy will be aided by the following initiatives<br />

1. Enact specific legislation for the operation <strong>of</strong> river transport<br />

2. Consolidate control under one regulatory body/agency<br />

3. Encourage and fully support the participation <strong>of</strong> the local populace in river<br />

transport operations for the transportation <strong>of</strong> passengers and goods<br />

Section 147.<br />

Regulating services<br />

The sector is generally unregulated leaving activities to be generally guided by<br />

common law, safety controls are somewhat negligible, furthermore infrastructural<br />

barriers impede the promotion <strong>of</strong> tourism activities and exacerbates congestion in<br />

waterways<br />

The <strong>Government</strong> recognises that, except for regulation through the common law, the<br />

only existing pieces <strong>of</strong> legislation with a bearing on river transport are the Aquatic<br />

Weeds (Control) Act, Declaration <strong>of</strong> Infested Water Order, Boat (Import, Registration<br />

and Movement) Regulations and the Tourism Act,2009.<br />

This deficiency demands the enactment <strong>of</strong> a specific statutory instrument for the<br />

regulation <strong>of</strong> waterborne transport.<br />

Recognising that waterways in Botswana constitute a public good or resource, and<br />

that it cannot serve the national interest to allow private ownership <strong>of</strong> the same, the<br />

government shall ensure that no individual, even natural riparian rights holders, is<br />

allowed to exercise monopoly on, or possess any stretch <strong>of</strong> waterway as a private<br />

entity to the exclusion <strong>of</strong> all other potential users.<br />

Objectives to drive this policy forward include:<br />

1. Maintain stability in the sector.<br />

2. Enhance safety and water-worthiness <strong>of</strong> vessels.<br />

3. Reduce damage to river banks and pollution <strong>of</strong> waterways.<br />

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4. Make waterways fully traversable for the common movement <strong>of</strong> passengers<br />

and freight<br />

5. Promote tourism as a feasible engine <strong>of</strong> economic growth to diversify the<br />

economy.<br />

6. Improve efficiency, service delivery, customer convenience and ownership <strong>of</strong><br />

responsibility by administering agency/authority.<br />

7. Provide unrestricted access to waterways and shore lines by third<br />

parties/public<br />

8. Ensure riverine services are completely integrated with other transport modes<br />

The programme to development waterways is in its infancy, the projects needed for<br />

development <strong>of</strong> waterways will be included in the first <strong>National</strong> <strong>Transport</strong> Masterplan<br />

for 2012 to 2017. Some <strong>of</strong> the early measures needed are listed below:<br />

1. Consolidate control and regulation <strong>of</strong> sector under one regulatory body to<br />

reduce divided responsibilities<br />

2. Prohibit potentially life-threatening activities like jet-skiing in certain waters.<br />

3. Improve competency <strong>of</strong> boat drivers through appropriate training.<br />

4. Ensure that infrastructure like bridges allow untrammelled movement <strong>of</strong> boats<br />

through collaborative planning.<br />

5. Ensure that ownership <strong>of</strong> land/property adjacent to the river front and<br />

waterways themselves, are, as a matter <strong>of</strong> law, two separate entitlements.<br />

Section 148.<br />

Providing Governance<br />

The Riverine <strong>Transport</strong> Sub-sector shall be governed through the <strong>National</strong> Riverine<br />

<strong>Transport</strong> Authority that shall be empowered to implement the Riverine <strong>Transport</strong><br />

Policies. The <strong>National</strong> Riverine <strong>Transport</strong> Authority shall comprise but not necessarily<br />

be limited to the Okavango River Authority and the Chobe Zambesi Riverine<br />

Authority. To ensure that riverine transport is fully integrated with other transport subsectors<br />

it shall be a part <strong>of</strong> the <strong>National</strong> <strong>Transport</strong> Authority. The Riverine <strong>Transport</strong><br />

Authority will be responsible for regulation, technical standards, planning and funding<br />

the development and maintenance <strong>of</strong> riverine infrastructure.<br />

The strategic objectives <strong>of</strong> the <strong>National</strong> Riverine <strong>Transport</strong> Authority are<br />

1. Increase the demand for riverine transport<br />

2. Contribute to the development <strong>of</strong> river hinterland economic activity<br />

3. Reduce the cost <strong>of</strong> transporting passengers and freight - in areas adjacent to<br />

waterways<br />

4. Increase the network <strong>of</strong> navigable waterways<br />

In pursuance <strong>of</strong> its strategic objectives, the Riverine <strong>Transport</strong> Authority shall<br />

1. Provide fair regulation,<br />

2. Prepare programmes and plans for development,<br />

3. Establish and apply a system <strong>of</strong> user charges for waterways and connected<br />

land infrastructure<br />

4. Collect and account for revenue provided through user charges,<br />

5. Provide funding for development projects<br />

6. Promote riverine services.<br />

In pursuance with its policies for creating local employment in rural areas and<br />

stimulating local development the Head Quarters <strong>of</strong> the national Riverine Authority<br />

shall be in Seronga. The <strong>of</strong>fices <strong>of</strong> the Okavango Riverine Authority shall be in Maun<br />

and those <strong>of</strong> the Chobe Zambesi Riverine Authority shall be based in Kasane.<br />

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Section 149.<br />

Equal participation, fair sharing <strong>of</strong> benefits<br />

Current river transport activities are dominated by foreign companies that have made<br />

the investment in craft and infrastructure and charges for leisure tours, especially in<br />

shallow waters, remain under control <strong>of</strong> camp and lodge owners. Domestic<br />

passenger services are not developed and opportunities exist for local operators and<br />

investors.<br />

The <strong>Government</strong> has committed itself to the empowerment <strong>of</strong> citizens by providing<br />

opportunities for them to participate in all sectors <strong>of</strong> the economy. In this regard, all<br />

efforts will be made to promote the participation <strong>of</strong> Batswana in riverine transport as<br />

well as require charges by camp and lodge operators for tourist trips in mokoro to be<br />

disclosed to prevent pr<strong>of</strong>iteering through the exploitation <strong>of</strong> mokoro boatmen.<br />

Some <strong>of</strong> the general goals <strong>of</strong> this policy are summarised below:<br />

1. Reduce poverty and improve the livelihoods <strong>of</strong> rural communities<br />

2. Provide opportunities for citizens to fully partake in water transport for hire or<br />

reward<br />

3. Provide a framework within which mokoro owners are able to equitably<br />

participate with camp and lodge owners in leisure activities<br />

4. Promote growth in water transport based services – including craft and water<br />

infrastructure maintenance<br />

Section 150.<br />

Supporting cross-river trade<br />

There is no formal infrastructure to support cross-river ferry services and trade<br />

already taking place in the Kasane area. The <strong>Government</strong> <strong>of</strong> Botswana will support<br />

cross-river ferry services between local mokoro owners and their counterpart’s<br />

resident in proximate villages <strong>of</strong> the Caprivi to foster small scale trade. This will<br />

promote rural economic growth and development and enhance the participation <strong>of</strong><br />

Batswana in commercial activities. This will be achieved by providing requisite<br />

infrastructure such as jetties in strategic points for the berthing and mooring <strong>of</strong> boats,<br />

embarkation and disembarkation <strong>of</strong> passengers and the loading and <strong>of</strong>f-loading <strong>of</strong><br />

goods.<br />

To facilitate growth in water transport there will be inter-Ministerial collaboration to<br />

support trade activities where there is potential.<br />

Section 151.<br />

Ferry Services<br />

Figure 20 Kazungula Ferry at work<br />

Water provides intermodal transport, that<br />

is to say ferry services. The Kazungula<br />

Ferry operated by Zambia carries around<br />

40 vehicels and 1800 passengers per<br />

day. Delays have occurred due to flood<br />

conditions and breakdowns <strong>of</strong> the<br />

pontoons. The <strong>Government</strong> is completing<br />

investment <strong>of</strong> a second ferry service<br />

which will double the capacity. In the<br />

longer term the ferry service will be<br />

replaced by a bridge.<br />

Such services have also gone<br />

unregulated despite their key role in international transport such as at Kazungula.<br />

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The objective <strong>of</strong> the policy is to improve the quality <strong>of</strong> ferry services.<br />

This will be done by the following:<br />

• Issue regulations concerning the technical standards for ferry<br />

operations within 12 months from the adoption <strong>of</strong> this policy at ensure<br />

such regulations are properly enforced.<br />

• Collect and publish performance information including waiting time<br />

Section 152.<br />

Building the network<br />

There is no formal network <strong>of</strong> national waterways, the laws <strong>of</strong> ownership <strong>of</strong> the use<br />

and management <strong>of</strong> waterways and banks is not clear, access rights and<br />

arrangements to waterways is not clear and there is concern that private occupation<br />

<strong>of</strong> river banks may restrict public access.<br />

There may be over 1000 km <strong>of</strong> navigable waterways in Botswana. Some may be<br />

seasonal other perennial but – actually – the length <strong>of</strong> waterways that could become<br />

a part <strong>of</strong> the national transport network is not defined. Waterways need to become a<br />

part <strong>of</strong> the national transport network. The regulations regarding ownership<br />

operations and access need to be made clear.<br />

The main conclusion is that the transport value <strong>of</strong> our waterways needs to be<br />

exploited – not for their recreational value, but as a legitimate means <strong>of</strong> transport. .<br />

The Minster responsible for <strong>Transport</strong> will firstly take steps to define the formal extent<br />

<strong>of</strong> the national river and waterway network, classify it and prescribe its potential use.<br />

With this in place it is possible to place waterways on the transport map <strong>of</strong> Botswana,<br />

following which the Ministry will then set out regulations that will control public access,<br />

operations and enforcement, indentify riverine projects for domestic and private<br />

investment then include them in the <strong>National</strong> <strong>Transport</strong> Masterplan.<br />

The main policy objectives that will<br />

1. Establish the national waterway network<br />

2. Improve accessibility to waterways<br />

3. Improve the quality and diversity <strong>of</strong> riverine transport services.<br />

4. Ensure provisions for operations and maintenance <strong>of</strong> the waterways network<br />

is in place<br />

5. Ensure adequate provisions for public access to waterways<br />

Some initiates will be taken in the next three years will include<br />

1. <strong>National</strong> survey main rivers and watercourses in terms <strong>of</strong> navigability and<br />

potential.<br />

2. Determination <strong>of</strong> the current and future demand for riverine passenger and<br />

freight transport<br />

3. Establishing the technical standards for operations and maintenance <strong>of</strong><br />

waterways<br />

4. Establishing riparian rights and responsibilities<br />

5. Including waterways in the portfolio <strong>of</strong> the <strong>National</strong> <strong>Transport</strong> Authority<br />

6. Identifying infrastructure projects that will improve the capacity and operation<br />

<strong>of</strong> water transport<br />

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Following these steps the <strong>Government</strong> will embark on a programme <strong>of</strong> River Network<br />

Enhancement that will benefit us all.<br />

Section 153.<br />

Funding Riverine <strong>Transport</strong><br />

The <strong>National</strong> Riverine <strong>Transport</strong> Authority will through delegated powers generate<br />

revenue through user charges levied to operators <strong>of</strong> riverine craft, license and<br />

registration fees <strong>of</strong> operators, fees for the use <strong>of</strong> embarkation and loading facilities,<br />

rentals <strong>of</strong> property, advertising and a tax on the planning gain generated by the<br />

development <strong>of</strong> riverine transport. Such revenue as may be collected by the <strong>National</strong><br />

Riverine Authority, The Okavango River Authority, the Chobe Zambesi Riverine or its<br />

appointed agents shall be used solely for the purpose <strong>of</strong> funding the development <strong>of</strong><br />

riverine transport. The <strong>National</strong> Riverine Authority shall have powers delegated to it<br />

that will enable it to raise funding for investment on the global capital markets, own<br />

property and enter into strategic alliances and partnerships with the private sector in<br />

order that it may conduct is activities in a businesslike and commercial manner.<br />

The strategic objectives for funding riverine transport<br />

1. Maximise revenue collected<br />

2. Maximise external investment funding<br />

3. Invest in pr<strong>of</strong>itable projects that provide an acceptable rate <strong>of</strong> return<br />

4. Provide internationally compliant accounting<br />

The key activities related to funding include<br />

1. Regulate to generate revenue<br />

2. Prepare annual and multi-annual spending plans<br />

3. Publish annual accounts <strong>of</strong> recurrent and development expenditure<br />

Article XXVIII. Unlocking Botswana<br />

Section 154. Taking the initiative - investing in Marine transport<br />

As a landlocked country, Botswana’s imports and exports remain vulnerable to<br />

disruptions in seaports <strong>of</strong> neighbouring countries with access to the sea. The<br />

aspirations <strong>of</strong> Botswana to have full control over its trade routes, including a sea port,<br />

have yet to be realised. Since the Protectorate period, through the formative years <strong>of</strong><br />

statehood to date, Botswana is largely dependent on South African sea ports for the<br />

transportation <strong>of</strong> goods to and from overseas markets. Consequently, the<br />

<strong>Government</strong> <strong>of</strong> Botswana will invest in marine transport in other regional countries to<br />

reduce the dependency on one single country and susceptibility <strong>of</strong> exports and<br />

imports to external disruptions.<br />

The objectives <strong>of</strong> this policy are clear...<br />

1. Create an alternative conduit for the transportation <strong>of</strong> goods to and from<br />

overseas<br />

2. Strengthen multi-modal solutions and create opportunities for new services<br />

3. Reduce total transport and logistics costs as well as journey times<br />

4. Provide a catalyst to Botswana’s growing economy by creating appropriate<br />

infrastructure, processes and a supportive regulatory environment to<br />

encourage international trade<br />

To move forward with this policy the Minister will...<br />

1. Take steps to own or lease a sea port<br />

2. Enact law for the operation <strong>of</strong> maritime transport<br />

3. Acquire Lease for land to build dry port<br />

4. Provide funds for port infrastructure<br />

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5. Ensure the connectivity <strong>of</strong> other modes to maritime transport<br />

Article XXIX.<br />

Section 155.<br />

Pipelines<br />

Pipeline <strong>Transport</strong>-untapped but viable alternative<br />

Except for water, Pipeline transport as a viable alternative mode remains untapped.<br />

There is presently no transportation <strong>of</strong> goods by pipeline. In recognition <strong>of</strong> the<br />

dynamism and evolving possibilities and demands <strong>of</strong> the transport sector, the<br />

<strong>Government</strong> will heighten its interest in pipelines. Initially we will firstly confer upon<br />

the Ministry <strong>of</strong> <strong>Transport</strong>, the responsibility to look after pipelines, where they are<br />

considered to impact on transport, next we will require that the Minster looks into the<br />

long term potential <strong>of</strong> pipeline transport and finally we will promote the concept <st