National Integrated Transport Policy White Paper - Government of ...
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National Integrated Transport Policy White Paper - Government of ...
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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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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 />
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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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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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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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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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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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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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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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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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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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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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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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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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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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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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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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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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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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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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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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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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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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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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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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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Figure 10 The Public Highway Network<br />
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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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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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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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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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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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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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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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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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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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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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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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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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Railways Sub-Sector<br />
<strong>Policy</strong><br />
Part 3.2<br />
Modernising to provide better services<br />
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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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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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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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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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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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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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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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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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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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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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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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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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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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Aviation <strong>Policy</strong><br />
Part 3.4<br />
Broadening Horizons<br />
Figure 17 SSKI before and after - 2010<br />
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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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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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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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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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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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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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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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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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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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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