Towards a Safe and Secure Nation: The First Consultative Conference on Firearm Control, Ownership and Administration in Botswana, 13-15 May, 2003

Research agenda on the prolifeation of small arms in Botswana by the Centre for Stategic studies, Department of Political and Administrative studies, Universtity of Botswana
Prof Mpho G Molomo

Introduction

I first of all wish to expre ss my profound gratitude to the Botswana Police Service for being perceptive and organizing the first national conference on firearms control, ownership and Administration in Botswana. I would also like to thank them for inviting us from the Centre for Strategic Studies (CSS) at the University of Botswana (UB) to take part in this conference. This invitation is recognition by the Police Service that other sectors of society, especially academia and civil society, have a role to play in defining the security agenda of this country.

The CSS is housed in the Department of Political and Administrative Studies and is networked with the Southern African Defence and Security Management Network (SADSEM) coordinated from the University of the Witwatersrand in Johannesburg. The CSS is also mandated by UNESCO to set up a regional Centre for Peace Studies at UB. The overall vision of the CSS is to contribute to effective democratic management of Defense Forces, Police Services and other government offices, and to enable them to better embark on preventative diplomacy, peace making and peace building. CSS seeks to ensure that Botswana is a safe place for its citizens. In this regard, we consider the proliferation of small arms a serious threat to the security of this country. The Centre seeks to contribute to the security of the country by:

Providing training and education for defense management and planning civilmilitary relations, peace building and management of peace missions.
Building scholarly capacity in the region to provide education, policy and technical support and research output.
Developing a regional network of institutions involved in education, training, research and policy support in these areas.

Background

Botswana has since independence in 1966 presented democratic credentials as a success story in liberal democratic practice as well as an economic success story (see Stedman, 1993). Supporting this impeccable record has been the traditional system of the Kgotla. The kgotla has been used by government as an effective forum for consultation and dissemination of information. It nevertheless needs to be pointed out that despite the open political system that the country has, civil society remains weak and is not able to effectively play a countervailing role on government (Molutsi, Holm and Somolekae, 1996).

Having said the above, the limitations that beset Botswana's democracy need to be pointed out. Although it has not reached alarming proportions, Botswana's security regime emanating from the proliferation of small arms is facing a serious threat. Botswana's security agenda in line with the proliferation of small arms is predicted on its geo-political situation. As a landlocked country, its sure of security is premised on the security situation and goodwill of its neighbours (Molomo, 2001). Botswana faces a major challenge in that it is surrounded by countries that have a small arms problem, and there is a high probability that this problem could spill over into its borders. Botswana has porous borders and it is difficult to keep an effective surveillance system to ensure that illicit weapons do not make their way into the country. However, despite the high prevalence of the problem in the region, Botswana is not yet adversely affected.

Botswana is exceptional in having a fairly clean record in the proliferation of small arms. This is based on the historical fact that it did not fight a war of liberation, and as such it never had to manage and control a large catche of arms in unauthorized hands. Furthermore, Botswana's culture has gone a long way to regulate the use of firearms. Nevertheless, there are emerging problems of illegal armed poaching in some areas of the country.

This culture is engrained in the Tswana proverb that Wtwakgolo ke ya molomo" (the best way to resolve differences is through dialogue). Research demonstrates that the success of measures aimed at managing small arms proliferation depends on the culture within which they are introduced. This culture impacts on the process of developing an effective small arms control regime.

In Botswana guns are a highly valued asset and are held in high esteem. It is a symbol of manhood, as a status symbol, and is used largely for traditional chores. Traditionally a gun was used to protect livestock against predators. It is also used to slaughter cattle during funerals and weddings. Traditionally, its use in suicide and domestic violence was shunned due to the strict cultural control of firearms. Illicit firearms do not yet pose a major problem. However, there is evidence on the country of the case of illicit arms in crime activity, suicide cases, love killings and domestic violence. It is therefore imperative that, as a country, we embark on a thorough ongoing research to understand the sources of the small arms and how the menace can be addressed.

Important research questions on Smal Arms

Culture as a factor in small arms
We need to conduct research into our culture and determine those attributes that reinforce a gun-safe environment and build on them in terms of policy formulation. We also need to take into cognizance the fact that our traditional values, many of which we cherished, are eroded by urbanization and globalization, and this leads to the disintegration of our social fabric. It is also said that we hide behind our culture as a peace-loving people and, as such, fail to address important questions regarding the use of firearms. As a cultural institution, the role of the Kgotla needs to be addressed in terms of addressing the problem of small arms.

A survey of people's attitudes into small arms
There is a need for a national survey to tap into the attitudes of Batswana to determine their thinking about the proliferation of small arms, and the violence that results from their use. Batswana as a nation needs to assess their behaviour in eroding the security of the country. They do this by harbouring illegal immigrants and not reporting suspicious characters to the police.

The Role of socialization in the proliferation of small arms
Research the impact of several socialization agents and determine their role in promoting a gun free culture, and instill a sense of responsibility in the use of a gun. There is a need to look into the school curriculum and determine whether there is a way of introducing these concepts at an early age so that pupils grow up knowing how to responsibly handle a gun. The impact of the Television also needs to be addressed to ensure that it does not propagate a culture of violence.

The use of small arms in crime, passion killings and domestic violence
Despite being projected as a peace-loving people and also an island of political calm and stability, there is increasing evidence of violence in our homes and streets. Bank robberies, carjacking using small arms and also toy guns are on the rise and there is a need to research this issue to find ways of curbing it.

Control and Regulation of Firearms
The Botswana Arms and Ammunition Act of 1981 provides for strict codes and control of the use of firearms. At present there are about 31 000 registered civilian-owned firearms in Botswana (Interview with Deputy Commissioner of Police). During the mid-1970s the Botswana government embarked on a comprehensive registration of firearms. To ensure that all guns were registered, it offered amnesty to all gun holders who did not have papers for them to come forward and register them without any penalties. This dispensation went a long way to register most, if not, all privately held firearms.

Individuals who seek to own guns have to go through a vigorous application process; they screened them of any previous violent crime convictions, domestic violence convictions, or hunting offences (such as illegal poaching) or any contravention of the Arms and Ammunitions Act. If the applicant has any adverse record in the handling of firearms, they are disqualified for eligibility to own a gun. Manifesting strict control of firearms, a quarter of only 400 guns are registered every year: 200 rifles and 200 shotguns. After a thorough voting exercise, the permits are allocated through a raffle system (Interview with Deputy Commissioner of Police).

Despite the stringent measures of regulating the supply of arms, there is still evidence of abuse of firearms. Research therefore needs to address the allocation procedures, as well as the legislation and penalties that go with the abuse of weapons.

Effectiveness of Arms Control Mechanisms
Much as we have talked about ways and means of regulation of arms in terms of their acquisition, the State, through its various law enforcement agencies, is a custodian and repository of a large arsenal of arms. The important research question is how secure are these firearms in terms of straying into unauthorized hands. There is evidence that many of the cases of suicide, crimes of passion and domestic violence occur with the use of official firearms. It may also be that the proliferation of illegal weapons may arise from the abuse of official weapons.

Cross-border Crime involving small arms
Cross-border crime is an important issue that has the potential of destabilizing the country. Botswana is concerned about the increasing cross-border crime. Although the small arms problems have not reached alarming proportions, it has taken the threat of this phenomenon seriously. There is evidence that the illegal poaching of wildlife in the Game Reserves, especially in the Chobe Game Reserve has a regional dimension. Research should address not only the social and economic implications of such poaching but also the origins of these weapons with a view to finding a permanent solution to it. Research would help to focus and sharpen regional strategies designed to address the problem.

In consonance with regional and international initiatives, Botswana established a committee on small arms whose aim is to address potential problems and also to focus on the transit of small arms through Botswana. This decision came after the creation of the SADC Working Group on small arms and the subsequent United Nations Conference on Small Arms and Light Weapons in New York in 2000.

Botswana is a member of the joint commission on defense, security and police with South Africa, Zimbabwe, Zambia and Namibia. The hotlines between the commanders of the armies allow for coordination and monitoring of the situation across borders. To date the commission has been functioning very well. The joint commission also reviews the crime situation between borders. To date Botswana has met with Zimbabwe, Zambia and Namibia. There is yet to be a meeting with South Africa. To contain the problem of small arms in the region, the SADC Protocol on Firearms, Armaments and Related Materials recommended that the Southern African Regional Police Chiefs Cooperation Organization (SARPCCO) implements law and order matters. SARPCCO, established in 1995, is responsible for controlling cross-border crime. SARPCCO has three sub-committees - the training, legal and permanent coordinating committee of the heads of criminal investigations departments. The permanent committee has conducted joint operations very successfully resulting in recovery of vehicles mostly from Zambia, a few from Zimbabwe and one or two from Malawi. However, at the beginning there was no trust between the police of SARPCCO until joint training on border control, intelligence gathering and harmonization of legal provisions regarding motor vehicle penalties were done. This led to improved relations. In September 2002, Ministers responsible for the police agreed on a plan on regional security which will be implemented by SARPCCO (Interview with the Deputy Commissioner of Police).

Conclusion

The CSS at the UB recognizes the centrality of research in terms of providing knowledge that would feed into the development of sound policies aimed at promoting a gun-safe culture that would also curb the proliferation of illicit weapons. In this regard, the CSS is working with the Centre for Conflict Resolution and Gun Free South Africa to undertake a major research in Southern Africa to determine the extent and nature of trade, use and control of small arms in eight Southern African countries, including Botswana. Through the findings of the proposed research, we anticipate to make available data that would inform policy formulation.

References

Botswana Government (1981) Arms and Ammunition Ch 42:01, Gaborone, Government Printer.
Eavis, Paul and Gamba, Virginia, Action on Small Arms in Southern Africa, Newsletter 3, August 2001 [internet]. www.iss.co.za/Pubs/Newsletters/saferworld/SmallArms.htm, Pretoria, [November 29, 2002].
Molomo, MG (2001) 'Civil Military Relations in Botswana's Developmental State' African Studies Quarterly vol. 5, no. 2. http://web.africa.ufi.edu/asg/v5/v5i2a3.htm
Molutsi, P and J Holm (1990) 'Developing Democracy When Civil Society is Weak: The Case of Botswana', African Affairs, vol. 89, no. 356.
Osei-Hwedie, BZ (1998) 'The Role of Botswana in the Liberation of Southern Africa since 1996' in W Edge and M Lekorwe, (eds.) Botswana Politics and Society, Pretoria: JL van Schaik Publishers.
Osei-Hwedie, BZ (2002) 'The Quest for Peace and Security: The Southern African Development Community Organ on Politics, Defence and Security' in D Milazi, Mulinge M and E Mukamaambo (eds.) Democracy, Human Rights and Regional Cooperation in Southern Africa Pretoria: Africa Institute of South Africa.
Stedman, SJ (ed.) (1993) Botswana: The Political Economy of Democratic Development Boulder: Lynne Rienner.
SaferAfrica, (2002) Namibia: The First National Conference on Small Arms and Light weapons in Support of the Implementation of the SADC Protocol on Firearms and Ammunition, Windhoek.
Sullivan, GR and Twomey, AB (1994) 'The Challenges of Peace', Parameters, Vol. Xxiv, No.3.
Zibani Maundeni, Mpho Molomo, Bertha Osei-Hwedie, Ian Taylor, Shelly Whitman, Democratic Governance and Common Security in Southern Africa: the Case of Botswana, Paper presented at an IDRC workshop, April 2003, University of Witwatersrand, Johannesburg.

Interviews

Mr Batshu, the Deputy Commissioner of Police, 1 1 December 2002 and December 12, 2002 at Police Headquarters.
Lt Gen Fisher, M Commander of the Botswana Defence Force, 21 February 2003.
Hon Lt Gen Merafhe, M. Minister of Foreign Affairs and former Commander of the BDF, 27 January 2003.
Hon Segokgo, S, Member of Botswana Parliament, 29 January 2003.