INTEGRATION OF CIVIL REGISTRATION AND VITAL STATISTICS AND IDENTITY MANAGEMENT SYSTEMS: BOTSWANA SUCCESS STORY Department of Civil and National Registration Ministry of Labour and Home Home Affairs Case Study developed in collaboration with The Department of Population Studies, University of Botswana SEPTEMBER 2015 Map of Botswana IBRD 33376 20∞E 25∞E To ZAMBIA Lusaka BOTSWANA ANGOLA Kasane To Menongue i nt ya Ok Lin Ngamas eri av an og CHOBE Xaud um NGAMILAND ZIMBABWE NAMIBIA Nokeneng Okavango Swamps To Maun Gweru 20∞S Nata 20∞S Tsau eb Eis Sehithwa Lake Ngami Makgadikgadi Salt Pans NORTH- Rakops Bote ti EAST To Orapa Francistown Messina Lake Xau Letlhakane Shashe Mo Ghanzi C E N T R A L tlo u tse Seruli Selebi-Phikwe GHANZI Okwa Sefophe Mamuno Serowe Palapye p Limpo o Lotsane K a l a h a r i Mahalapye D e s e r t Kang KWENENG Tshane KGATLENG Mochudi Molepolole SOUTH AFRICA KGALAGADI Jwaneng GABORONE Khakhea SOUTHERN 25∞S Kanye SOUTH- 25∞S No Werda Lobatse EAST ss ob b e Mosele To Pretoria po Molo Tshabong po B O T S WA N A lo Mo To DISTRICT CAPITALS* Kimberley Bokspits NATIONAL CAPITAL RIVERS MAIN ROADS 0 50 100 150 Kilometers RAILROADS 0 25 50 75 100 Miles DISTRICT BOUNDARIES This map was produced by the Map Design Unit of The World Bank. INTERNATIONAL BOUNDARIES The boundaries, colors, denominations and any other information shown on this map do not imply, on the part of The World Bank * The town councils of Francistown, Group, any judgment on the legal status of any territory, or any endorsement or acceptance of such boundaries. Gaborone, Lobatse, and Selebi-Pikwe have status equal to Districts. 20∞E 25∞E SEPTEMBER 2004 Cover artwork: Bonang Mafokate, Department of Civil and National Registration, Botswana Publication design and layout: The Word Express, Inc. Integration of Civil Registration and Vital Statistics and Identity Management Systems: Botswana Success Story Contents Acknowledgments . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . vii Acronyms, Abbreviations and Setswana Terms. . . . . . . . . . . . . . . . . . . . . . . . . . ix Executive Summary. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . xi 1  Introduction . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1 Background on Botswana – Social and Economic Context. . . . . . . . . . . . 1 The Department of Civil and National Registration . . . . . . . . . . . . . . . . . 1 Definitions and Importance of Civil Registration, Vital Statistics, and Identity Management . . . . . . . . . . . . . . . . . . . . . . . 2 Developments in CRVS and Identity Management in Local, Regional, and Global Contexts. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 3 2   The Births and Deaths Registration Processes . . . . . . . . . . . . . . . . . . . . . . 7 Processes for Obtaining Duplicate Births and Deaths Certificate . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 8 Electronic On-site Birth Registration . . . . . . . . . . . . . . . . . . . . . . . . . . . . 9 Coverage of Vital Events. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 10 3  Integration of Civil Registration and Identity Management Vital Statistics. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 13 Integration of Civil Registration and Identity Management. . . . . . . . . . . 13 Generation of Vital Statistics From Civil Registration Records (Crvs Integration). . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 14 4   Strategic Initiatives Driving Accelerated Improvement. . . . . . . . . . . . . . . 15 Supply Side Initiatives – Registration Infrastructure . . . . . . . . . . . . . . . . 16 Demand Creation . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 22 vi The Case Study of Botswana 5   Cost Benefit Analysis for CRVS. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 27 The Benefit of Protection of The Rights of Individuals . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 27 A Robust, Safe, Secure, and Reliable Identity Management System. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 28 Electoral Systems. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 28 Claiming of Entitlements and Access to Services. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 28 Availability of Timely, Accurate, and Reliable Data . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 28 Other Benefits of CRVS Systems . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 29 Development Costs Associated with Initiatives aimed at Strengthening CRVS in Botswana . . . . . . . . . . . 30 Social Costs Associated with not Embracing Crvs and Id-M . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 30 6   Key Enablers or Critical Success Factors. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 33 Legal and Regulatory Framework for Civil Registration in Botswana . . . . . . . . . . . . . . . . . . . . . . . . . . . . 34 Human and Institutional Capacity. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 34 Human Resources. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 35 CRVS Interface with Other Systems . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 35 Political Commitment and Ownership. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 35 Registration – Management and Organization . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 36 7  Challenges. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 37 Data Protection and Privacy Legislation . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 37 The Department is not mandated by law to register divorces, resulting in a gap in vital events registration. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 37 Inadequate Inter-linkage of Systems . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 38 Shortage of Vital Resources. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 38 Lack of Monitoring and Tracking of Registration . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 38 8   Lessons Learned . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 39 9   Way Forward. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 41 References and Key National CRVS Documentation. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 43 Acknowledgments T his report was prepared by the University of Botswana, Department of Pop- ulation Studies in collaboration with the Department of Civil and National registration in the Ministry of Labour and Home affairs (MLHA) and with support from the World Bank Group. The University team was led by Dr. Serai Daniel Rakgoasi with team members Professor Kannan Navaneetham, Mr. Ken- abetsho Bainame, Mr. Mpho Keetile, and Mr. Motsholathebe Bowelo. The work was co-authored by Ms. Neo Corneliah Lepang, Director, Depart- ment of Civil and National Registration, MLHA. In guiding the work technically, she provided key information, research, and resources for the work. Dr. Samuel Mills, Senior Health Specialist, Health, Nutrition, and Population Global Practice, together with the World Bank Group Identification for Development Working Group, also provided technical guidance. The work benefited greatly from the useful and insightful peer reviewer comments of Mr. Benito Semommung, UNICEF Botswana; Mr. Moses Keetile, UNFPA; Mrs. Grace Mphetolang of Statistics Botswana; and Mrs. Hauwa Nhuru, Assistant Registrar, Administration of Justice, who collaborated closely with the DCNR on the issue of accelerated improvement in Civil Registration and Vital statistics (CRVS) and Identity Management. Acknowledgements are also due to the Senior Management Team and the Staff of the Department of Civil and National Registration who contributed im- mensely to the development of the report, including providing data sources and validation of the report. Acronyms, Abbreviations and Setswana Terms AfDB African Development Bank APAI-CRVS Africa Programme on Accelerated Improvement of Civil Registration and Vital Statistics BDRS Births and Deaths Registration System COIA Commission on Information and Accountability CR Civil Registration “Botho” Humility CRVS Civil Registration and Vital Statistics DCNR Department of Civil and National Registration ERM Enterprise Risk Management GDP Gross Domestic Product HoD Head of Department ICAO International Civil Aviation Organization ICS Immigration and Citizenship System ICT Information Communication Technology IDM Institute of Development Management ID-M Identity Management IEC Independent Electoral Commission IE-C Information, Education and Communication “Kgotla” A traditional public village committee or forum in rural areas convened by village chiefs and sub-chiefs for public consultative purposes on matters of national interest and public policy LDC Least Developed Country MDG Millennium Development Goals MLHA Ministry of Labour and Home Affairs MRTD Machine-Readable Travel Documents NGO Non-Governmental Office x The Case Study of Botswana NIS National Identification System TRIP Traveler Identification Program NDP National Development Plan UID Unique Identification Number NSS National Statistical System UNECA United Nations Economic Commission “Omang” An identity card in Setswana vernacular for Africa directly translated as UNFPA United Nations Population Fund “who are you” UNICEF United Nations Children’s Fund PCI Project Concern International UNSD United Nations Statistics Division RAD Remote Area Dweller USAID United States Agency for International SDG Sustainable Development Goals Development SI Statutory Instrument WBG World Bank Group SIDS Small Island Developing States WHO World Health Organization SOBERS Social Benefits Registration System STRATEGIC FOUNDATIONS for the Ministry of Labour and Home Affairs Vision: Excellence in provision of labour and homeland services Mission: MLHA to promote social and industrial harmony and homeland security Values: Integrity, Botho Strategic Themes: Service Excellence, Operational Excellence, Homeland Security Strategic Results: Customer Satisfaction; Efficient Operations; Labour Safety and Security Executive Summary T he initiative of a case study on Botswana’s successful integration of civil and identification registers comes against a backdrop of major continental and global efforts to accelerate improvement in the area of civil registration. In 2003, the Government of Botswana established an organic link between birth registration, national registration, and death registration through a unique identifier to ensure that birth registration becomes a credible foundation for iden- tity management beyond just serving as a source of vital statistics and conferring rights on individuals. The organic link extends to death registration that marks the end of an identity. The National Identification System (NIS) is linked with other government systems such as the elections system, the Social Benefits Registration System (SOBERS), the government payroll, the transport system, and others to facilitate service delivery because a person’s identity serves as a gateway for access- ing services. In addition, through this link the National Identification System is updated in real-time when a death occurs and the status of the registered citizen is automatically changed from “live” to “deceased”, and this update is imported to all other interfaced government systems in real-time. Civil registration is a credible source from which vital statistics in Botswana can be generated and was used previously to generate population reports. These reports have highlighted key policy issues and trends which go a long way in in- forming evidence-based decision making. The progress made in ensuring that civil registration is used to generate a vital statistics report, and is used along with house- hold surveys and census reports, is a great achievement for the country. On the supply side, the capacity to effectively deliver registration services to the population was improved. This extended to the development and maintenance of the following: a sound registration infrastructure, such as the legal framework; human infrastructure; an institutional frame work; effective management of the identity life-cycle; and establishment of partnerships with internal government stakeholders, development partners, and non-state actors for resource mobilization and technical advice. Demand was stimulated through the National Universal Registration Cam- paign in which a robust Information, Education, and Communication Strategy was developed and implemented. It was delivered through the print media (newspaper xii The Case Study of Botswana advertisements, flyers, posters, and so forth) and elec- network of service points across the country, and thus tronic media (radio and television) as well as through improved access to such services, including bringing targeted meetings with various leadership forums at services all the way to hospital beds. Electronic on-site both the national and local levels. Members of the pub- registration centers also ensure improved data integrity, lic were further targeted through open Kgotla meetings process efficiency, and the ability of citizens to imme- at the village level, and through “edutainment” materials diately obtain birth registration and establish right of packaged with key messages which were used, especially identity. in schools, to target students. The campaign informed The nature of CRVS is that it requires long- the population on the value and importance of civil reg- range and sustained plans of action and also a legal istration, vital statistics, and identity management. Both and legislative framework that facilitates the growth the demand and supply initiatives are summarized in and sustenance of the system. However, in many Chapter 3. contexts, the efficiency and effectiveness of CRVS is The creation of one department to provide civil compromised by challenges relating to the adequacy and national registration headed by a single Registrar of legislation, the nature of the civil registration or- for both civil and national registration brought about ganization, the methods of coordinating the different benefits of synchronization of processes and immediate elements of the system, and the levels of priority given decision-making. This has greatly stabilized the registra- to the whole enterprise.One challenge experienced is tion processes and continues to facilitate the accelerated that the identity management and CRVS systems are improvement and development of civil registration and managed in the absence of data protection and privacy identity management (ID-M). legislation, yet the institutions involved are primary Furthermore, having an institutional framework processors of a person’s data. In the absence of such in place facilitates the smooth implementation of Civ- legislation, proper control of maintaining and releas- il Registration and Vital Statistics (CRVS) and ID-M ing a person’s data can be a challenge. While there are through a network of offices strategically placed across some secrecy and confidentiality sections in the cur- the country to ensure that services are brought closer to rent registration legal framework, they are limited in the people. The eelctronic on-site births and deaths reg- scope. Privacy concerns can also appear in spite of the istration centers in hospitals were added to an existing linking of the different systems. 1 Introduction Background on Botswana – Social and Economic Context Botswana is a landlocked country situated in Southern Africa. It shares borders with South Africa in the south and southeast, Namibia in the northwest, and Zambia and Zimbabwe in the northeast. Botswana has a surface area of 582,000 km2 with the Kalahari Desert comprising more than two-thirds of the total area. About 87 percent of the population lives in the eastern part of Botswana where rainfall is more regular, ground water is available, and the soil is relatively fertile. When it gained independence in 1966, Botswana was one of the poorest countries in the world with a per capita income estimated at less than US$100 per annum and a largely rural economy that was dependent on agriculture. However, with the discovery of minerals, especially diamonds, soon after independence, Botswana quickly became the fastest growing economy in the world. Yet, while diamond mining contributes a relatively large proportion to growth, gross domestic product (GDP), export shares, and government revenues, its direct impact in terms of employment is quite small because it is capital intensive by nature. Botswana’s stable democracy and prudent economic management has facilitated strong investment in infrastructure, health, and education, which has resulted in improvements in social indicators such as literacy, health, life expectancy, and overall quality of health. The Department of Civil and National Registration The Department of Civil and National Registration (DCNR) is a government insti- tution within the Ministry of Labour and Home Affairs (MLHA) in the Republic of Botswana. It is statutorily headed by a National Registrar who is also the Admin- istrative Director. The core mandate of the Department is the delivery of registra- tion services for civil registration (CR) and identity management (ID-M) as well as the registration and monitoring of societies. The DCNR has a staff complement of four hundred and fifty-two (452) and has established registration offices outside 2 The Case Study of Botswana the capital city to improve access for registration with stakeholders assist in the registration processes and the objective of taking registration services closer to help achieve sustained acceleration of civil registration the people. To this end, DCNR has offices staffed with and vital statistics (CRVS) and ID-M improvements trained and semi-skilled personnel, such as profession- through resource mobilization and technical assistance, als, technicians, artisans, and preparatory clerks, based including financial resources. in various districts and sub-districts across the entire country. To date there are a total of 37 stations and 13 electronic on-site registration offices at various health Definitions and Importance of Civil facilities across the country. The electronic on-site reg- Registration, Vital Statistics, and Identity istration initiative is planned for expansion to other Management health facilities over a period of time, if funds permit. Therefore, decentralization is taken very seriously as Civil registration is an administrative system that services are brought very close to citizens. involves the continuous gathering of information on all DCNR derives its core mandate from six Acts of relevant vital events, including birth, marriage, divorce, Parliament including: the Births and Deaths Registra- adoption, and death. Civil registration is defined by tion Act; the National Registration Act; the Marriage the United Nations as the “Universal, continuous, per- Act; the Married Persons Property Act; the Change of manent, and compulsory recording of vital events pro- Name Act; and the Societies Registration Act. In terms vided through decree or regulation in accordance with of the legal framework, registration of births and deaths the legal requirements of each country.”1 Civil registra- and national registration are both mandatory in na- tion provides the most important source of vital statis- ture, and the system aims for full coverage of all events tics and is a basis for identity management. It provides and their timely registration within legally prescribed individuals with documentation needed to establish timeframes. Such registrations are based on the prin- legal identity and family relationships, and by exten- ciples of continuity, permanence, and confidentiality. sion, to exercise their civil rights, access services, and In carrying out its work, DCNR has strategic partner- participate in modern society. In the case of Botswana, ship alliances with other key stakeholders, including: civil registration is a foundation for identity and iden- the Ministry of Health, which is responsible for birth tity management. and death events; the Administration of Justice, which Identify refers to “a unique set of features and is responsible for divorce administration; and Statistics characteristics that individualize a person, including the Botswana, which by law is responsible for the compila- name and other biographical data of the individual,” tion, analysis, and release of vital statistics. The Depart- while Identity Management is “a combination of systems, ment has working collaborations through this project rules, and procedures that are defined between an individ- with various development partners such as the United ual and organizations regarding the entitlement, use, and Nations Children’s Fund (UNICEF), the United Na- protection of personal information in order to authenticate tions Population Fund (UNFPA), the World Health individual identities and provide authorization and priv- Organization (WHO), the African Development Bank ileges within or across systems and enterprise boundaries”.2 (AfDB), and lately the World Bank Group (WBG). Other strategic partnerships are with non-state actors 1 United Nations Statistics Division – Principles and Recom- such as Project Concern International (PCI) which is mendations on Civil Registration and Vital Statistics, 2014. funded by the United States Agency for International 2 Dictionary for civil registration and identification. Mia Har- Development (USAID), the Masiela Trust Fund, and bitz, Kristo Kentala. p. cm. – (Inter-American Development the Marang Child Network Trust. The partners and Bank Monograph ; 164 Introduction 3 The right to identity and nationality is embed- was under-performing because of one or more of the ded in the Universal Declaration of Human Rights3 following deficiencies: and the Convention on the Rights of the Child Reso- lution 44/25 of November 20, 1989.4 The possession A lack of or a limited political commitment of an identity is a precondition for full citizenship. Outdated laws and registration procedures Furthermore, Target 16.9 of the post-2015 Sustain- Organizational and infrastructural problems able Development Goals (SDG) calls for provision of Limited expertise and the multidisciplinary a legal identity for all, including birth registration, by character of civil registration 2030. Underdeveloped public administration In addition, statistics on vital events such as infrastructure births and deaths provides essential information on A lack of properly articulated national standards, the size and characteristics of a country’s population at operational manuals, and guidelines national and subnational administrative levels. This in- A lack of monitoring and evaluation standards formation is a prerequisite for planning and informed and procedures decision making in both public and private sectors and Inadequate efforts in mainstreaming civil regis- for many areas that are central to improving health, tration and vital statistics in the National Statis- such as education, water and sanitation, social protec- tical System (NSS) tion, food security, labor and employment, as well as A huge civil registration backlog the provision of health services. The lack of a comprehensive national action Vital statistics includes data on population size, plan mortality and causes of death, life expectancy, and fer- National statistics offices overwhelmed with pro- tility trends. These data underpin health policy and pri- visional demographic methods and techniques ority setting, planning, service delivery, and monitoring A lack of long-term vision and commitment and evaluation. The CRVS system thus provides infra- A shortage or lack of budget, human, and/or structure of particular importance for health.5 logistical resources A lack of motivation or a cultural barrier against registering events on the part of the public Developments in CRVS and Identity A lack of limited incentives for registration Management in Local, Regional, and personnel Global Contexts Limited awareness and use of registration records by the public and by government offices The initiative of a case study on Botswana’s successful Limited use of statistics at lower administration integration of civil and identification registers comes levels against a backdrop of major continental and global Problems of data completeness, quality, and efforts to accelerate improvement in the area of civil timeliness registration. There is a resurgence of interest from dif- ferent constituents in advancing CRVS and ID-M at the national, regional, and global levels, yet in Botswana, 3 Universal Declaration on Human Rights (1948) 4 Convention on the Rights of the Child (1989) such work predates the resurgence and has been part of 5 Bowker and Starr 1999, cited in Keith Breckenridge and its developmental work for some time. Simon Szreter (eds), 2012. Registration and Recognition: This initiative was necessitated by the fact that Documenting the Person in World History, Oxford: Oxford in many African countries the civil registration system University Press. 4 The Case Study of Botswana A lack of or an inadequate interface between National Registration Act, every citizen of the Re- civil registration and vital statistics organs public of Botswana must be registered and issued an The presence of disincentives for registering vital identity card within 30 days of reaching 16 years of events age or acquiring Botswana citizenship. On this note, Inadequate efforts in mainstreaming civil regis- the Botswana government has endeavored through tration and vital statistics in the monitoring and both legislation and administration operations to en- evaluation of national development programs sure that individuals enjoy these most fundamental and Millennium Development Goals (MDGs) rights. The government has committed to and tak- A lack of or limited awareness among health en an interest in accelerating improvements in CRVS professionals with the specific purpose of achieving universality in vital events registration and national registration in the country. Over time, the government has taken Botswana CRVS Country Context deliberate steps to accelerate improvements in CRVS Civil registration in Botswana is almost a century old, and ID-M through implementation of initiatives tar- having been originally set up in 1918, when it only cov- geting both the demand and supply sides of the func- ered the population of European descent. Subsequent tions. The initiatives will be discussed in more detail to Botswana’s independence in 1966, registration of in subsequent chapters. births and deaths became open to all citizens (United Nations, 2010), and was compulsory in towns and major villages. National registration was introduced in Africa Regional Context 1988 and was automated in 1998 resulting in the cre- For Africa and its major regional groupings, the goals of ation of the National Identification System (NIS). The unification and the new 50-year development agenda births and deaths registration system (BDRS) was auto- drive the movement for dependable and viable civil mated in 2003 after the establishment of the Depart- ment of Civil and National Registration (DCNR). After 2003, integration of civil registration and national History of civil registration Table 1    registration was instituted to make civil registration a system in Botswana key foundation for identity management through an Evolution of civil registration and vital statistics organic link. Identity management was thus positioned Year system as central to service delivery and as a primary tool for 19th Registration of vital events compulsory for whites and Africans governance and public administration. Table 1 summa- century (indigenous populations) were not required to register rizes Botswana’s historical development of civil regis- 1966 Registration of births and deaths started; and was only compulsory in towns and major villages tration and identity management during the pre- and 1967 The National Vital Statistics System under the Statistics Act post-independence periods. was enacted Under the Children’s Act (1981, 2009), every 1968 Births and Deaths Registration Act (amended in child has a right to birth registration and to a name, 1998,2000, & 2014 (SI)) including the right to know who their biological par- 1986 National Registration Act (1986, amended in 2004, and 2011 (SI),) ents are, while under the Births and Deaths Registra- 1988 Introduction of the National Registration and Identification tion Act (1968, last amended 1998/2000, Statutory 1998 Registration of births and deaths became compulsory/ Instrument (SI 2014), every birth and death that oc- mandatory curs in Botswana must be registered within 60 days 2003 Department of Civil and National Registration within the and 30 days respectively of occurrence. Under the Ministry of Labour and Home Affairs was established Introduction 5 registration and vital statistics systems. To this end, the universal civil registration of births, deaths, and other region has institutionalized and made more concrete vital events, including reporting of causes of death and the accelerated improvement of CRVS. The region access to legal proof of registration for all individuals, has achieved political commitment and ownership of by 2030 (World Bank Group and WHO, 2014). The the CRVS agenda through the institutionalization of importance of CRVS and identity management is recog- the biennial meeting of the ministers responsible for nized in two of the post-2015 Sustainable Development CRVS, of which three have already been held in Addis Goals,6 namely Goal 16, on the promotion of peace- Ababa, Durban, and Yamoussoukro, respectively. The ful and inclusive societies for sustainable development, Minister’s Meeting is a policy guidance forum for the providing access to justice for all citizens, and building region, and is used to monitor progress in terms of effective, accountable, and inclusive institutions at all implementation of the medium- and short-term plans levels. This goal includes a target to provide a legal iden- of the Africa Programme on Accelerated Improvement tity for all, including birth registration (Target 16.9). of Civil Registration and Vital Statistics (APAI-CRVS). The second goal guiding the development of In 2011, the Ministers approved the APAI-CRVS, and CRVS relates to the strengthening of the means of im- it is currently being implemented in the countries. To plementation and revitalization of the global partner- accelerate this implementation, which targets CRVS ship for sustainable development (Goal 17). The target improvement, the Meeting of Ministers adopted a Res- associated with this goal (Target 17.18) entails the en- olution in 2011 tasking all the countries with under- hancement of capacity-building support in developing taking a comprehensive assessment of their CRVS sys- countries, including for Least Developed Countries tems, developing strategic plans, and then reporting the (LDC) and Small Island Developing States (SIDS), to progress made back to the Meeting of Ministers. As a by 2020 significantly increase the availability of high constituent, Botswana has honored this resolution fully. quality, timely, and reliable data disaggregated by in- come gender, age, race, ethnicity, migration status, disability, geographic location, and other characteris- Global Context tics relevant in the national context. The overall goal Botswana is in step with the global impetus and com- is to have one master CRVS system from which data mitment to accelerate improvement in CRVS and can be accessed for different purposes while ensuring ID-M and the country will largely be taking advan- confidentiality and security (World Bank and WHO, tage of the many opportunities presented by this pos- 2014). Subsequent to the United Nations General As- itive global policy environment to move forward with sembly’s adoption of the Millennium Development its own system improvements. The global consulta- Goals (MDG)s, the Commission on Information and tive meeting on Civil Registration and Vital Statistics Accountability (COIA) for women’s and children’s in Addis Ababa, hosted in April 2014 by the United health that was set up by the United Nations in 2011 Nations Economic Commission for Africa (UNECA), issued a set of recommendations to address concerns WHO, and the World Bank Grouping, approved the about providing the correct basis for decision making. Global CRVS Scaling-Up Investment Plan 2015–2020 The COIA expressed the expectation that by 2015 all to strengthen CRVS in low- and middle-income coun- countries should have taken significant strides to es- tries. The concern with security and national identity, tablish a system for registration of births, deaths, and reinforced by goals adopted by the global community and by regional commitments, has reactivated the drive 6 Open Working Group proposal for Sustainable Devel- toward developing CRVS and identity management sys- opment Goals. http://sustainabledevelopment.un.org/ tems. For instance, the World Bank has set a goal for sdgsproposal” 6 The Case Study of Botswana causes of deaths, and have well-functioning health in- (TRIP) strategy provides a framework for achieving formation systems that combine data from facilities, significant enhancements in aviation security and facil- administrative sources, and surveys. itation in the future by bringing together the elements Another CRVS and identity management de- of identification management and building on ICAO velopment at the continental level occurred when the leadership in matters related to Machine-Readable Trav- 38th Session of the International Civil Aviation Organi- el Documents (MRTD). On this note the integration zation (ICAO) General Assembly approved Resolution already established in Botswana that secures the effec- no.A38-WP/11,EX/6,17/05/13, which emphasized a tive management of the identity life cycle from the es- holistic approach to identification management and tablishment of identity (birth registration) to use during travel documents based on the concept of “evidence of life and to end of identity (death registration) effectively identity.” The ICAO Traveler Identification Program supports the achievement of the ICAO TRIP Strategy. 2 The Births and Deaths Registration Processes T here are two processes to follow depending on whether the registration is on time (within 60 days of birth or 30 days of death) or is a late registration (60 days or more after birth). On time registration: Registration can be done either at the health facil- ity where the event occurred or at the nearest DCNR office. For registration at the health facility, health personnel record the birth by completing a birth/death notification form immediately after the event occurs and then forwarding the completed form to the relevant DCNR office for processing, either on-site at the hospital within an hour of occurrence, or at a district or sub-district office within a week. Once the forms are received at the DCNR office, they are entered into the Births and Deaths Registration System, where registration is quality-checked and authorized. At this point event registration is complete. The certificate is delivered to the mother before she leaves the hospital, or in case of death, to the next of kin or to private undertakers before the body leaves a hospital mortuary. In cases where the form was submitted to offices outside the hospital, the regis- tration is processed and authorized, and the death certificate is ready for print- ing. In order to be able to pick up the death certificate, the next of kin is required to produce a tear–off piece from the birth notification form that was acquired at the time of the deceased’s birth, and also the next of kin’s own identity card for identity confirmation, authentication and linkage to the national registration database. In addition, the DCNR operates through each district and sub-district monthly mobile registration services to remote and difficult to reach areas, and other centers to conduct registrations of any non-institutional birth and death events and to distribute certificates without the respective individuals having to visit civil registry offices. Civil registration is undertaken free of charge. A late registration fee of BWP 5 (US$0.50) is charged for every month of not registering 8 The Case Study of Botswana up to a maximum of BWP 100 (US$ 10). For a du- plicate certificate, BWP20 (US$2) is charged, while for alterations the fee is BWP 10 (US$1). However, in order to further improve access to the registration service and to facilitate the registration of vulnerable children, the Government made a decision in 2014 to suspend all late registration fees from April 2014 to March 2015, and to continue the suspension of fees for the vulnerable population (destitute persons, or- phans and vulnerable children) beyond March 2015. In addition, another decision was made to relax re- quirements for supporting documentation for regis- tration of remote area dwellers. Instead, a local assess- ment committee comprising of local leadership and officials meets to orally hear such evidence and on the basis of the minutes produced, an application for reg- istration is completed and forwarded to the Registrar for authorization and processing. As of June 2015, laminating machines were acquired to specifically laminate the births and deaths certificates issued to those residing in remote and difficult to reach areas. This was done for preservation purposes to assist peo- ple living a more nomadic lifestyle. Sample birth certificate Late registrations: In case of late registra- tions, the declarant also has to bring an affidavit and witnesses to confirm that the event indeed occurred. These extra steps are designed to prevent ghost reg- births and deaths registration system is decentralized istrations. The application form is considered by the and connected to the central database. Late Registration Assessment Board for data authen- tication and authorization at a higher level. The Board is based at the head office of the Ministry of Labour Processes for Obtaining Duplicate Births and Home Affairs in Gaborone. It can either ask for and Deaths Certificate additional information, refer the matter for further investigation, or approve or reject registration. All Duplicate certificates are normally requested for var- completed application forms, including approved ious reasons. The procedure for acquiring a duplicate late registration forms, are then immediately entered is that a customer presents himself/herself at any of into the registration system, at which point the regis- DCNR offices where he/she will be required to make tration process is completed and a certificate can be a sworn statement describing the circumstances that issued. The certificate collection protocols and pro- led to the loss of the certificate. The customer will cedures will then follow. It is important to note that then pay a replacement fee of BWP20.00 (US$ 2) at this point, the customer can collect a certificate after which a supervisor authorizes a certificate to be from any of the DCNR offices countrywide since the issued. In cases where there are changes as a result of The Births and Deaths Registration Processes 9 On-site Birth registration kiosk awarding a birth certificate to a newly born baby at Marina Hospital in Gaborone a change in the surname or where the High Court has goes a long way in significantly reducing late birth authorized material changes in either birth or death registrations (that is, registration after the 60 days of registrations, the same capture and authorization pro- birth stipulated in the Births and Deaths Registration cedures will be followed and new certificates issued Act but before age 1 year) or delayed registrations (after accordingly. age 1 year) and the initiative is expected to significantly bring the country up to the level of universal registra- tion, building on the advantage of already having in Electronic On-site Birth Registration the system the 94 percent of births occurring in health institutions. This is crucial since every life counts and Realizing that health institutions are a natural part- must be counted and accounted for in a timely manner. ner in civil registration, and in order to utilize their Available data indicates that since its inception in 2011, key position as a source of data where about 94 per- electronic on-site registration strategy has significantly cent of birth and death events occur, Botswana insti- improved the number of registered births and deaths tuted a strategy of Electronic On-site Registration of and has reduced the number of late registered events. Births and Deaths in hospitals in 2011 and to date has Figure 1 shows the percentage of births regis- opened up onsite registration facilities in 13 hospitals. tered onsite between 2011 and 2015 out of all births Assistant Registrars are placed in health institutions to that were registered during each year. The figure shows register births and deaths as they occur. The strategy that the proportion of onsite births has been increasing 10 The Case Study of Botswana steadily from 4.2 percent in 2011, to 28.3 percent in Percentage of On-site Figure 1    2014, and to 35.1 percent in the first half of 2015. Registered Births as a From an initial 2,856 births registered on-site in 2011 Proportion of all Registered to a peak of 28,007 in 2014, this increase has shown the Births importance of on-site registration (Table 2). 40 35 35.1 Coverage of Vital Events 30 28.3 25 23.0 Percent According to the 2007 Botswana Family Health Sur- 20 vey report, about 94 percent of births in the country 15 are institutional (that is they take place in a modern 14.5 10 health facility, attended to by qualified, professional birth attendants). Table 2 shows the number of births, 5 4.2 deaths, marriages registered, and national identity cards 0 issued between 2009 and 2015 The table also disag- 2011 2012 2013 2014 2015 gregates the number of births according to whether (Jan–June) they occurred in a health facility or at home, as well as Year whether they were registered on-site or not. The Births and Deaths Registration Processes 11 Number of Births, Deaths, and Marriages Registered, and National Identity Table 2    Cards Issued Number of births Number of Number of Number of Number of Number of ID in health facilities births at registered Number on on-site registered registered Cards Issued Year (MoH) home (MoH) births (CNR) registration (CNR) deaths (CNR) marriages (CNR) (CNR) 2009 45,145 220 123,524 — 14,497 4,637 245,601 2010 49,853 475 197,382 — 14,317 5,648 147,811 2011 44,904 104 67,550 2,856 15,430 5,677 198,111 2012 49,957 91 107,848 15,653 15,629 6,391 152,572 2013 49,771 68 92,636 21,288 15,614 5,806 188,119 2014 — — 97,850 27,739 14,551 5,609 177,002 Total 239,630 958 686,790 67,536 90,038 33,768 1,109,216 3 Integration of Civil Registration and Identity Management Vital Statistics Integration of Civil Registration and Identity Management In 2003, the Government of Botswana established an organic link between birth registration, national registration, and death registration through a unique iden- tifier to ensure that birth registration becomes a credible foundation for identity management beyond just serving as a source of vital statistics and to confer rights on individuals. The organic link extends to death registration, which marks the end of identity. In 2011, the birth certificate was made a compulsory requirement for national registration and for acquisition at the age of 16 of a national identity card, which is the same as the unique identification number (UID) issued at the time of birth registration. This integration ensures effective management of a person’s iden- tity life cycle from birth—“Identity Establishment”—throughout life, to death, and then to “End of Identity.” “Establishment of identity” is thus done on the basis of evidence of identity, such as timely birth registration or social footprints (school certificates) when there have been late registrations in cases where births occurred outside a health facility, while “end of identity” is carried out through death regis- tration or emigration. The National Identification System is linked with other government systems such as the electoral system, the Social Benefits Registration System (SOBERS), gov- ernment payroll, the transport system, and others to facilitate service delivery because an identity serves as a gateway for accessing services. Similarly, through this link, the National Identification System is updated in real time whenever a death occurs and the status of the registered citizen is automatically changed from “live” to “deceased” 14 The Case Study of Botswana At the same time, this updated information is automat- is investigated and verified before registration. Similar- ically changed in all other government systems main- ly, any double registration is questioned and cleared up tained by service ministries that interface with the NIS. before inclusion in or exclusion from the voters roll. This integration accords a number of advantages Furthermore, any death that is recorded of a registered to identity management and to service delivery. First, in- voter results in a real-time update of the voter’s status tegration ensures that the identity management register from “live” to “dead”, which also maintains the integri- is up-to-date and not bloated with non-living identities, ty of the voters roll. and further ensures that the identities are real, living, and authentic and are not “ghosts.” The organic link also stabilizes the identity of the individuals to establish that Generation of Vital Statistics From Civil individuals are who they claim to be. This brings about Registration Records (Crvs Integration) integrity in identity management. Second, such integrity and trust has resulted in the acceptance and use of iden- According to the Statistics Act, 2009, Statistics tity mechanisms by individuals and institutions, both Botswana is the preeminent national agency respon- private and public, which enable them to transact busi- sible for the development and management of official ness with each other. Identity is largely used to secure statistics. Therefore, embedded within it are the func- access to services by those qualified either in terms of tions of processing, compiling, analyzing, publishing, age, citizenship, or social safety net programs. As a result, and disseminating vital statistics. Civil registration is a this integration of civil registration and identity manage- credible source for generating vital statistics, and previ- ment has effectively curtailed governance problems such ously in Botswana, civil registration was used to gener- as fraud, pilferage, and ghost employees. ate a population report. However, when improvements In terms of the electoral process, identity man- were made to the civil registration system, this report agement has served to strengthen the process in Bo- was upgraded to serve as a vital statistics report in order tswana and to continuously preserve its democracy by to differentiate it from the census report. Subsequently ensuring the integrity of the voter’s roll. This integrity the annual vital statistics reports for the years 2011 and is achieved by ensuring that through the use of an iden- 2012 were produced by Statistics Botswana in Decem- tity card, the right to vote is exercised only by those en- ber 2014 and June 2015 respectively directly from titled and qualified in terms of the Botswana Constitu- civil registration records. The reports aim to provide tion and the Electoral Act, namely citizenship and age, an overview of annual changes in births, deaths, and and also by validating the identities of voters to make marriage statistics. Key policy issues and trends dis- sure that they are indeed who they claim to be before cussed in the reports go a long way toward informing being registering to vote or actually casting a vote. The evidence-based decision making. The progress made voters roll is also generated on the basis of the identity in ensuring that civil registration can generate a vital management national register. Voter registration of a statistics report and is used alongside household sur- person not registered in the national identity manage- veys and census reports is a great achievement for the ment register cannot proceed until the person’s identity country. 4 Strategic Initiatives Driving Accelerated Improvement I n order to accelerate the improvement of civil registration and vital statistics (CRVS) and identity management and to achieve their integration, a dou- ble-pronged strategy was implemented for the functions—development on the supply side and motivation of the demand side. On the supply side, the capacity to effectively deliver registration services to the clientele was improved. This extended to the development and maintenance of the following: a sound registration infrastructure, such as the legal framework; the human infrastructure; an institutional framework; effective management of the identity life cycle; and the establishment of partnerships with internal government stakeholders, development partners, and non-state actors for resource mobilization and technical advice. Demand was stimulated through the National Universal Registration Cam- paign in which a robust Information, Education, and Communication Strategy was developed and implemented. It was delivered through print media (newspa- per advertisements, flyers, posters, and so forth) and electronic media (radio and television) as well as through targeted meetings with various leadership forums at both the national and local levels. Members of the public were further targeted through open Kgotla meetings at the village level and through “edutainment” ma- terials packaged with key messages which were used in schools to target students. The campaign informed the population on the value and importance of civil reg- istration, vital statistics, and identity management. Both these supply and demand initiatives are discussed below. 16 The Case Study of Botswana Supply Side Initiatives – Registration by those in breach. Enforcement of the process is en- Infrastructure hanced by the existence of detailed offenses and fines prescribed under the Act beyond just failure to register. Adequacy of Legal Framework National registration establishes the identity of a citizen The legal framework for civil registration and vital sta- and provides the essential legal documentation for that tistics and for identity management is largely adequate, identity. and facilitates being able to carry out those functions. An “Omang” or identity card is the prima facie Furthermore, the framework is in line with the Prin- proof of the particulars stated on the identity card. Ac- ciples and Recommendations of the United Nations quisition of a national identity card enables every citizen Statistics Division. In terms of the law, the Department to access public services through secure identification. of Civil and National Registration (DCNR) adminis- Furthermore, under Section 10 sub-section (5a) and ters registration of vital events, issues registration docu- section 31 sub-section 1 of the Electoral Act (Chapter ments, and maintains the registers. 67 (A), the right to register for elections and the right DCNR carries out this system by acknowledging to vote can only be exercised by qualified citizens in the existence of an individual through the process of possession of a valid national identity card. The Change birth registration and the subsequent issuance of a birth of Name Act, (Chapter 15:02) restricts and regulates certificate under the Births and Deaths Act (Chapter the right of any person to assume a surname and pro- 30:01). It provides for the compulsory registration of vides for other related incidental matters. Changes to births and deaths within 60 and 30 days respectively of surnames must be authorized in writing by the Min- occurrence and requires that a birth or death certificate ister for Labour and Home Affairs, or through the ex- is issued. Section 4 of the Act provides that the Reg- ceptions clause. These changes are ultimately reflected istrar shall maintain three registers (the “Births Regis- in the national registers and subsequently in the regis- ter”, the “Stillbirths Register”, and the “Deaths Regis- tration documents (either an Omang or a birth certifi- ter”) into which shall be entered prescribed details of cate). Section 17 of the Births and Deaths Act regulates births, still births, and deaths. Furthermore, under the alteration to forenames because names can only be add- Children’s Act of 2009 (Chapter 28:01, section 12(2)), ed and not deleted or changed. These provisions serve timely birth registration is the right of every child. The to stabilize and protect the identity of individuals to Act directs the registrar of births and deaths to obtain ensure that in fact they are who they claim to be. details of the child’s biological parents, whether in or out of wedlock, to facilitate the child being able to ex- ercise the right to know both parents. Furthermore, the Institutional Framework, Organization and law provides penalties for non-compliance. Management Regarding national registration, DCNR enrolls The creation of a single department responsible for citizens in the national register, in which case a personal both civil and national registration, headed by a single identification token is issued to the individual, while at registrar, brought about benefits of synchronization of the same time the state maintains the national register. processes and immediate decision making. This greatly According to the National Registration Act (Chapter stabilized the registration process and continues to facil- 01:02, section 6), it is compulsory for every citizen of itate the accelerated improvement and development of Botswana to register within thirty (30) days of attaining civil registration and identity management. the age of sixteen (16), and within 30 days of acquiring Furthermore, having an institutional frame- Botswana citizenship. Failure to register is an offense work in place facilitates the smooth implementation under the law, and the law prescribes fines to be paid of CRVS and ID-M through a network of offices Strategic Initiatives Driving Accelerated Improvement 17 strategically placed across the country to ensure that Training and Development services are brought closer to the people, thus improv- ing access to such services. The government under- Collaboration with the University of Botswana took to decentralize rather than centralize registration The Department of Civil and National Registra- services in all 12 districts and 25 sub-districts, both tion entered into agreements with the University of administrative offices, and in the 13 electronic on-site Botswana, Department of Population Studies, to craft registration centers at health facilities for immediate syllabi and deliver training designed especially for the birth and death registration and issuance of certifi- registration officers. When the university discontinued cates. These were added to an existing network of ser- offering Diploma in Population Studies, the training vice points across the country and improved access to was moved to the Institute of Development Manage- such services, including bringing services all the way to ment (IDM), where the courses can result in Diploma hospital beds. On-site registration centers ensure im- in Human Resource Management or Certificate in Pop- proved data integrity, process efficiency, and the ability ulation Studies. Since the program’s inception, a total of of citizens to immediately obtain birth registration and 25 officers have received diplomas in Human Resource to establish an identity right. Management, 7 officers have received Diploma in Pop- In addition, every district and sub-district under- ulation Studies, and 43 officers have received Certificate takes an outreach program to the remote and hard-to- in Population Studies. In addition, 15 officers have been reach areas twice every three months for registration and trained and received a certificate in Information Com- distribution of registration documents in those areas. munication Technology (ICT) offered by other institu- This has brought services very close to the population, tions. Some officers are enrolled in degree programs in especially the vulnerable and nomadic populations. an effort to make the operations more professional; 4 officers have received Bachelor of Arts Degree in Popu- lation Studies from the University of Botswana. Human Infrastructure and Its Development Over time, the government has dedicated human Collaboration with the Botswana Police Service resources to the delivery of registration services and As a capacity-development initiative, the Department identity management, and 454 staff members are of Civil and National Registration, in collaboration deployed across all the offices. Since human resources with the Botswana Police, has developed a course on are lacking in terms of quantity, caliber, and exper- Fraudulent Document Identification and Investigation tise, the department has undertaken short-term and Skills, which is targeted specifically for the DCNR. long-term development programs, including in-service Annually, about 60 officers are given training under training, to provide personnel with the skills to improve this initiative. Since its inception in 2012, more than the quality of their work and to build a culture of high 150 employees have been trained under this program. performance. The program equips employees with skills in differenti- In terms of vital statistics, Statistics Botswana ating fraudulent documents from genuine documents, has a dedicated directorate responsible for the compi- for example birth and death certificates. Employees are lation, analysis, and production of vital statistics. The also equipped with expertise on facial identification, professionals executing these functions are continuous- handwriting analysis, and interview skills. This training ly educated through in-service training and short-term is expected to improve investigative skills, the ability to training courses related to CRVS offered by the Uni- identify document fraud, and interviewing skills, and to versity of Botswana and the Institute for Development help maintain the integrity of the registration data, the Management (IDM). registration documents, and the process of registration, 18 The Case Study of Botswana and also the integrity of the officers, with an overall goal They are not like the Statistics Act, which provides of improving and maintaining effective management of very detailed provisions regarding confidentiality, de- the processes of “Establishment of Identity” and “End voting Part V of the Act to the subject of “Confiden- of Identity”. In 2014, training on Enterprise Risk Man- tiality and Disclosure,” and including stiff penalties agement (ERM) was included in the training courses associated with a breach of confidentiality on a scale for DCNR, and four officers underwent ERM training. not matched by the penalties in any of the other laws The training will be offered on an annual basis. These reviewed. The United Nations notes that the contents training courses have improved officers’ capacities to of civil registration records are essentially legal, but can deliver and deal head-on with operational risks, such as usefully be linked to administrative, health, tax, and fraud and corruption, and have greatly contributed to other records. These linkages can, however, potentially building for employees the security culture required to violate an individual’s right to personal and family pri- handle this crucial work. vacy if the use of this personal and confidential infor- mation is not checked. However, the Data Protection and Privacy Bill is currently only at the bill stage. Enterprise Risk Management In addition, there is a division for investigations The department has developed a Risk Management that is charged with ensuring the overall integrity of Strategy which identifies and describes 20 significant the documents, data, and registers issued and kept by risks with respect to identity management and CRVS. DCNR. It investigates cases of false declarations leading It further describes the importance of enterprise risk to the issuance of synthetic documents, processes cases, management (ERM) and has prepared a risk policy for and makes any necessary referrals to law enforcement the Department of Civil and National Registration. The agencies for taking cases to court. DCNR officers also strategy documents the risk management architecture of appear before the courts on subpoenas to give evidence DCNR and shows the roles and accountabilities of each on any matter related to the registration and issuance of the key parties, including employees and management, of documents. in mitigating risk. Some of the significant risks identified in terms of the political, economic, social, technological, legal and ethical (PESTLE) analysis approach include: Financial and Material Resources culture risk, reconciliation risk, integrity risk, reputa- DCNR has an annual budget of P 56 million tion risk, public confidence, systems interface/integra- (US$5,600,000) dedicated to the delivery of identity tion, systems access/security risk, data integrity, human management and civil registration. The Government resources risk, and segregation of duties risk, among oth- had dedicated a fleet of 66 vehicles for use across the ers. As a response to the risks identified, a risk register country in the delivery of these services, but 50 per- was developed that indicated the risks identified and the cent of the vehicles had been declared not roadworthy measures undertaken to mitigate such risks for imple- and were not used, and then were not replaced because mentation in the 2015–16 performance year. of the economic downturn. In fiscal year 2014/15, the In relation to data integrity and systems secu- government added a budget provision of P 8 million rity risk, although the Births and Deaths Registration (US$800,000) to augment equipment and consum- Act and the National Registration Act both have strict ables specifically relating to identity management, such provisions governing the changes that are to be made as cameras, printers, fax machines, computers, and so to registration records, in many contexts there are no forth, to boost the capacity of DCNR to facilitate the specific safeguards for the confidentiality of the per- 2014 general elections. Despite this limited capacity, sonal information collected and stored in the registers. the department continues to move ahead in delivering Strategic Initiatives Driving Accelerated Improvement 19 the work and shows the government’s commitment to confidence in the credibility of their registration system facilitating identity management and civil registration. and its offshoots. Automation of the Critical Functions Improvement in ICT Infrastructure There is common acknowledgment among countries Robust information communication and technology that civil registration systems should be digitized. Most (ICT) infrastructure is essential for running automated countries in Africa are in the process of establishing systems. Prior to 2013, it was noticed that the available national population registers and have already started bandwidth could not sufficiently support the systems establishing computerized databases. These coun- when there was a huge demand for registration services tries have also initiated steps for scanning past records by clients as a result of the universal registration cam- while making the transition. For Botswana, DCNR paign. The registration systems were performing poorly, embraced Information Communication Technol- especially the Births and Deaths Registration System ogy (ICT) as a medium to expand its service delivery (BDRS) due to the low bandwidth and the poor system capacity and to improve on its efficiency and processes. architecture, which often led to network failures and In 1998, a special effort was undertaken to automate system shutdowns. Some offices were running at band- national registration, which resulted in the creation of widths of 128 Kbps, 256 Kbps, and 512 Kbps respec- the National Identification System. In 2003, birth and tively. Subsequently, the bandwidth was upgraded for death registrations were also automated, which resulted all DCNR offices and they are now all running at a in the Births and Deaths Registration System (BDRS). minimum of 1 Mbps bandwidth. However, the department has not yet automated the However, during the same period, the design of processes of “Change of Name” or of “Marriages” and the BDRS was also enhanced to improve its process- linked them to the People Hub (Population Register), ing time, which improved system efficiency. Before the as is required in the project memorandum approved enhancement, the system would take an average of 30 under the National Development Plan Ten (NDP10). minutes to process one transaction. Once redesigned, Automation is key to the improvement of identity the system is now able to process applications faster and management and civil registration. on average takes two minutes per transaction. Botswana has deliberately moved slowly in cre- ating a People Hub and introducing electronic identity cards. Officials wanted to first ensure the integrity of Strategic Partnerships and Stakeholder its data and the efficiency of its processes, and to en- Collaboration sure that the CRVS is reliable, stable, dynamic, and not DCNR has been very deliberate in establishing partner- vulnerable to fraud. This is accomplished by ensuring ships and collaborations with development partners and that the registration processes are dynamic and fool- non-state actors to improve the delivery of registration proof before introducing digitization, and also by first services and the quality of the information collected, ensuring that the environment is ready to embrace the and to better inform policy formulation and general full-scale population registry of a People Hub. Some programming. Since 2011, a number of stakeholders countries that have moved to digitize before ensuring have been engaged through giving technical and finan- that their systems and process were adequately dynam- cial support. Currently, the department is collaborating ic, inclusive, and rigorous have found themselves oper- with the United Nations Population Fund (UNFPA), ating a registration system that is vulnerable to fraud, the United Nations Children’s Fund (UNICEF), the and one in which the people and institutions have little World Bank, the World Health Organization (WHO), 20 The Case Study of Botswana and the African Development Bank (AfDB). In terms Comprehensive Assessment of Civil of non-state actors, there is on-going collaboration Registration and Vital Statistics with Project Concern International (PCI) funded by In response to the African Ministers’ Resolution call- USAID, the Masiela Trust Fund, the Marang Chil- ing upon African governments to fast-track improve- dren’s Trust, and the SOS Children’s Villages, Botswana ments of CRVS systems to achieve their full potential, (SOS). The total financial resources acquired from such as a first step in implementing the resolution, Botswana collaborations from 2011–2014 were in excess of P 5 has conducted a comprehensive assessment of CRVS million (US$500,000). and identity management systems. The Government These partnerships helped to improve birth and of Botswana conducted this assessment as a collabora- death registration, especially in remote areas. UNICEF tive exercise of the four key institutions involved: the sponsored a universal birth registration campaign in Ministry of Health, the Ministry of Labour and Home Ghanzi in 2011. UNICEF also undertook a campaign Affairs, the Administration of Justice, and Statistics in Maun in collaboration with DCNR March 18–20, Botswana. Each of these institutions has legal and 2014, to register vulnerable children and orphans. This administrative responsibilities for delivering and man- was in line with the UNICEF mandate on children’s aging services associated with the four key vital events, rights and the Children’s Act of 2009. UNICEF also namely birth, death, marriage, and divorce. donated US$45,000, of which US$20,000 was used The assessment was undertaken in 2013 and 2014 for the registration of vulnerable groups. A total of 14 with the financial support of major development part- computers and 7 printers were purchased by UNICEF ners, including the United Nations Population Fund, for use in the project on registration of vulnerable the African Development Bank, and the World Health groups and were allocated to districts with remote area Organization. The assessment focused on processes and dwellers to improve their registration capacity. Part of practices at different operational levels in the registration the funding was allocated for publicity, such as booklets of vital events and the production of vital statistics and and flyers, and part was used to improve overall imple- national registration, as follows: it established the level of mentation of the CRVS. compliance with legal provisions; assessed the adequacy Recently, the department enlisted the support of the legal framework and the current structures and of the World Bank, in collaboration with the Univer- procedures for delivering quality registration services to sity of Botswana, to document good practices relating the citizenry; determined the extent to which vital events to civil registration and identity management. DCNR are registered and what relevant information was ob- has also enlisted the support of Project Concern In- tained, processed, and compiled; identified bottlenecks ternational (funded by USAID), the Masiela Trust in the management of registration and data production; Fund (orphans), and the Marang Children’s Trust to and suggested areas for possible improvements. strengthen and galvanize the second-generation uni- The following is a sample of some of the key versal registration campaign launched in June 2015. findings: This is aimed at continuing efforts relating to ensuring the universality of registration. The combined efforts In terms of the legal framework, the Births and a)  of all these stakeholders have resulted in the accelera- Deaths Registration Act is comprehensive and tion of the development of Botswana’s civil registration complies substantially with international rec- and identity management processes from strength to ommendations. Many of the elements that the strength within the shortest period to become one of United Nations guidelines consider fundamen- the finest benchmarks of best practices in this area on tal for the CRVS legal framework, and the items the African continent. of information listed in the United Nations Strategic Initiatives Driving Accelerated Improvement 21 manual and WHO handbooks as necessary, are Development of a Five-Year Strategic/ reflected in various forms. The registration sys- Investment Plan tems in place also closely adhere to provisions The CRVS and Identity Management Strategic Plan of the respective Acts. Notwithstanding these 2015–2020 was developed and concluded in 2015 on developments, although the law provides for reg- the basis of the CRVS comprehensive assessment. It istration of every child born within Botswana, in will guide planning and resource allocation over the practice universal registration has not yet been next five years and will be reviewed annually in light completely achieved. of stakeholder needs, the evolving socioeconomic Arrangements for the registration of marriages b)  environment, and emerging priorities. The outcome and divorces differ significantly in various of the annual reviews and changes associated with respects from the requirements for births and them will be reflected in the various annual perfor- deaths registration. For instance, there is no spe- mance plans. cific legal framework for marriage and divorce The strategic plan has defined four strategic out- registration, such as is included in the Births and comes to be achieved over the medium-to-long term. Deaths Registration Act. The legislation gov- These outcomes are aligned with the National Devel- erning marriage registration is derived from the opment Plan (NDP), Vision 2016, and the African De- Marriage Act, which gives greater emphasis to velopment Agenda on CRVS. The strategic outcomes the management of the marriage process. There- of the strategic plan are as follows: fore, although the Act includes some guidance on registration of marriages, these provisions do a)   Legal and civil rights for all and registration not cover all aspects of marriage registration in universality accordance with international standards. By 2022, the registration rate should have reached 95 The key actors are not fully assuming their c)  percent for births and deaths and 70 percent for mar- assigned “roles and responsibilities”. Specifically, riages and divorces. The key indicators for success are: the attending medical practitioners, midwives, and physicians, who are identified as having the All registration processes automated responsibility for notification, are often more Standardized and harmonized registration focused on the mandates of the parent institu- processes tion, and more committed to the legal provi- All systems linked sions directly associated with their own field of Increased usage of national service points work. Furthermore, there needs to be improved Vulnerable groups have access and use of regis- coordination between agencies to achieve better tration services alignment of their efforts and more synergies in the various processes. b)  The national population register is part of Although the country network of offices is well d)  the e-government system – One Identity appreciated by segments of the population, the Based on the organic link between birth registration, assessment underscored the need to increase national registration, and death registration, and on the coverage of the electronic on-site centers to achieving universal registration for everyone, the coun- encompass all major health facilities in order for try should continue to sustain one identity for all. An the larger population to benefit fully from the identity is created once by only one institution for an strategy and to ensure universality of continued individual and is then used several times by all agencies data integrity. in delivering services to the individual. 22 The Case Study of Botswana c)  Evidence-Based Decision Making To Facili- Customer-centric culture dedicated to the “Peo- tate Good Governance, Development Plan- ple We Serve” ning, and Program Monitoring By 2022, the system should be providing 95 percent The Investment Plan identifies a number of crit- of reliable and accurate vital statistical information for ical success factors for the attainment of the strategic informed decision making. Key indicators for success are: plan as follows: All CRVS systems are integrated and fully Collaboration and cooperation by stakeholders utilized Enabling laws Vital statistics are based on complete adminis- Compliance with international standards trative records Aligned and computerized processes Official statistics are published according to Increased registration points, including on-spot international standards and mobile registration Up to date annual statistics on births, death, Good coordination structures, including a causes of death, marriages, and divorces are pub- National Coordination Committee for all stake- lished in a timely manner holders and full engagement by local authorities and assessment committees d)  Improved service delivery and accountability Strengthened system integration and interopera- By 2022, the system should be providing and accounting bility through the unique identifier and organic for 95 percent of all CRVS services that ensure maximum linkages customer satisfaction. Key indicators for success are: Registration points established in rural areas Demand Creation Integrated planning and coordination structures established National Universal Registration Campaign The “People We Serve” are satisfied The universal registration campaign is intended to cre- Government agencies empowered for informed ate demand and promote value for CRVS as well as decisions accomplishing national registration. Free and universal birth registration is featured as a suggested target under e)  Institutional Excellence the illustrative goal of “Promoting peaceful and inclu- By 2022, CRVS institutions should be capable, sustain- sive societies for sustainable development by providing able and modern. The key indicators for excellence are: access to justice for all and building effective, account- able and inclusive institutions at all levels.” (Goal 16 Enabling CRVS legislation passed and in the report of the high-level panel on the post-2015 implemented development agenda). Furthermore, the proposed Tar- Performance of CRVS institutions are moni- get 16.9 puts the spotlight on the important role of tored and evaluated identification in achieving development: “By 2030 pro- Staff is skilled in the new environment vide legal identity for all, including birth registration.” All processes are modernized and automated as The first-generation campaign was launched in part of the government modernization program 2011 at Ghanzi District, which is one of the districts Office facilities are modern, accessible, and meet with the highest population of remote area dwellers. set standards There was a need to accelerate birth registration in those Strategic Initiatives Driving Accelerated Improvement 23 areas. Several other initiatives were adopted that drive the particularly of deaths, and a large number of births and campaign. These initiatives included the establishment of deaths have since been registered. the On-site Registration of Births and Deaths at Health The second-generation registration campaign Facilities Program, and the initiation of partnerships and was launched by the Honorable Minister of Labour collaborations with stakeholders such as government and Home Affairs, Mr. Edwin Batshu, on June 2, 2015, ministries, financial institutions, and political forums, in at Sorilatholo in the Letlhakeng sub-district and was a order to create demand for registration services. collaborative effort between the Department of Civil The National Universal Registration Campaign and National Registration and Project Concern Inter- was intended to ensure universality of registration of national (PCI) with financial support from USAID, births and deaths, and national registration and identity the Masiela Trust Fund, and the Marang Child Net- management. The goal of this campaign was to achieve work. The campaign’s objectives are to (1) accelerate 100 percent registration by motivating people to regis- birth registration by 25 percent by the end of 2015; (2) ter vital events to avoid the invisibility of persons and to ensure universal birth registration of children born in be able to exercise their right to identity. As part of the Botswana and the issuance of official birth certificates universal birth registration campaigns, an On-Site Reg- to children living in difficult circumstances by the end istration Center at Health Facilities Assistant position of 2015; (3) achieve universality or 100 percent regis- was created in 2011 to place Assistant Registrars at hos- tration by enrolling everyone not registered in order to pitals to register births and deaths as they occur. This close the current gap between the Botswana Housing initiative has closed the loophole of late registration, and Population Census population numbers and the Launch of universal registration campaign on the 2nd June 2015 at Sorilatholo, Letlhakeng sub-district 24 The Case Study of Botswana numbers listed in the national registers of births and Every district has a quarterly outreach program in deaths and national registration; and (4) create aware- which officials address members of the public through ness at both the national and individual levels on the an initiative labeled ‘‘taking services to the people.” This value of identity management in order to motivate was a deliberate move to expand services to the peo- demand for identity. The campaign is using radio and ple, especially those in hard-to-reach areas. Registration television to further motivate people to register births requirements were relaxed to encourage an unimped- and deaths and to acquire national identity cards. ed registration process. Local committees were set up to interview customers regarding their birth records. A waiver policy was arranged with Botswana Police to Information, Education, and Communication only warn and caution those who were registering late, (IE-C) Strategy because according to the Births and Deaths Act (Chap- In 2008, a Social Mobilization and Advocacy Plan ter 30:01), no birth or still-birth can be registered after was developed by DCNR that was implemented on the expiration of 60 days from the date of such birth or a national scale. It was part of a robust Information, still-birth, and no death can be registered after the expi- Education, and Communication (IE&C) strategy that ration of 30 days from the date of death. Arrangements was used to motivate demand for registration services are also in place to assist the vulnerable population in and documents largely through sensitizing people to accessing services through a Special Programme on the the value and use of both the registration documents Registration of Vulnerable Groups. and the data contained in them. Efforts were made to improve coordination among different partners, such as the Ministry of Health, the Ministry of Local Govern- Registration Campaigns Partnerships ment (and its local bodies), the Ministry of Education and Skills Development, and other support partners. Partnership with Government Ministries — Ministry During the campaign, public trust and confidence were of Education improved and nurtured for enhanced acceptance and Targeted meetings were conducted in local schools across wide use of registration documents. Public participa- the country to sensitize parents and students to the need tion was also enlisted. for birth registration and birth certificates. A partner- The IEC strategy was implemented through ship with the Ministry of Education increased demand print media as well as electronic media, such as radio for birth registration when a new policy was imple- and television. One other key initiative, speaking at mented to require children to have a birth certificate to Kgotla or public meetings on the importance of birth be enrolled in schools. Making the birth certificate the and death registration, was strengthened after 2012. only form of identity to permit students to take exam- This entails holding meetings at the Kgotla, which is inations at both the primary and junior levels created a a traditional public village committee or forum in ru- strong motivation for registration. Parents saw the need ral areas convened by village chiefs and sub-chiefs for to apply for birth certificates to avoid inconvenience, public consultative purposes on matters of national which resulted in an influx of customers to civil registra- interest and public policy, under the leadership of the tion offices at the beginning of the year. Although at the district commissioner, to explain the importance of reg- time of a child’s first entry into primary school no child istration and to mobilize unregistered people, including is refused admission because of a lack of a birth certifi- children, to register In fact, this initiative is as old as the cate, they are advised to obtain one. However, children registration function itself. Kgotla meetings were used who seek admission into secondary school must produce to facilitate late registration. a birth certificate, the assumption being that by then Strategic Initiatives Driving Accelerated Improvement 25 they have been given sufficient time to register. This is social and development services in the country, only also a requirement to stabilize the identity of the pupils a small percentage of those who reside in remote and so that the schools can record the correct particulars of hard-to-reach areas (as well as orphans and street each child, including the date of birth. children) have been registered. In these areas, there are many hard-to-reach communities and families Partnerships with Financial Institutions who live in remote locations or are nomadic and are Targeted meetings were held with financial institutions, unable to travel to the nearest civil registration point. such as banks and insurance companies, to ensure A Special Project on the Universal Birth Registration that they continue to make registration documents a of Vulnerable Groups was launched in 2012 by the requirement for accessing financial services. Mortuaries Ministry of Labour and Home Affairs in collabora- were also targeted to ensure that they only take in bod- tion with UNICEF. The project is aimed at improving ies after a death certificate has been produced. These registration of births among vulnerable groups, which steps have also increased the demand for registration. is mainly comprised of remote area dwellers (RADS) and orphans. The main objective of the project is to use mobile services for those residing in remote and Special Project on the Registration of hard-to-reach areas, orphans, and street children and Vulnerable Groups Campaign in Remote to waive the registration requirements in order to Areas and Other Vulnerable Groups improve the access of these people to identity manage- Despite the fact that birth certificates and identity ment and civil registration services. Program officials cards are key documents required by citizens to access actively engage with the leadership of these people, Children in a remote and hard-to-reach area during registration outreach program 26 The Case Study of Botswana and with NGO’s working with them, to get them to the National Registration Act, national registration is support the registration program and to build trust in compulsory, and failure to register is an offense that can it. As part of this strategy, the Minister of Labour and result in a penalty not exceeding P 500 (US$50). In a Home Affairs waived the late registration fees. Addi- bid to ensure the success of the Universal Registration tional fees have been waived for vulnerable groups Campaign and to improve accessibility to registration since April 1, 2015. Furthermore, during registration, services, the Honorable Minister of Labour and Home stringent requirements are relaxed, but relevant evi- Affairs made a decision through follow-up legislation dence or information is required to reconstruct the that waived the late registration fees for all the members identity of those who could have been registered. of the public, effective April 1, 2014 to March 2015. However, for vulnerable groups, these fees were waived until further notice. For the National Registration Act, Waiver of Late Registration Fees and Fines an arrangement was made with the Botswana Police Ser- Birth and death registration is compulsory and subject to vice that while the amendment of the law is still being specific time requirements under the Births and Deaths processed, the police should not impose fines for late Registration Act. Failure to comply with these require- or non-registration, but should only caution offenders. ments can result in a penalty of P 5 (US$0.5) per month This has had a very positive effect on improving the out- in default up to a maximum of P 100 (US$10). Under come of the registration process. Street children with their guardians and Director of DCNR (center) showing and waving their newly acquired ID cards and birth certificates. The street children are part of the 3 vulnerable groups - orphans, street children and those in remote areas. 5 Cost Benefit Analysis for CRVS F or Botswana, civil registration and vital statistics and identity management benefits can be summarized as follows: Facilitation of individuals’ enjoyment of their rights to birth registration and other associated rights such as the right to a name, nationality, and the right to identity. A robust, safe, secure, and reliable identity management system and individ- ual identities The improved capacity to generate timely and accurate vital statistics data from a civil registration system for evidence-based decision making. The Benefit of Protection of The Rights of Individuals Civil registration provides documentary evidence, such as birth certificates, which ultimately leads to the protection of individuals’ human and civil rights. The cur- rent legal framework and its operation facilitates individuals being able to exercise their right to timely birth registration under the Children’s Act, 2009, Chapter 28:01 section 12(2), which states that in order to ensure the enjoyment of nation- ality, the parent or other person specified in the Births and Deaths Registration Act shall give notice of the child’s birth to the Registrar of Births in such a manner as is prescribed under that Act. Furthermore, the act is read in conjunction with other laws and international instruments, such as the Births and Deaths Registration Act, the United Nations Convention on the Rights of the Child, and the Universal Human Rights Declaration, which declares birth registration to be a human right, and makes it compulsory. Therefore, although some percentage of people are still not registered, the current 76.9 percent birth registration level underscores the fact that by and large, individuals in the country have been able to exercise their right to establish an identity. 28 The Case Study of Botswana A Robust, Safe, Secure, and Reliable can use their identity card as an access token to var- Identity Management System ious services, some of which involve free health care, including access to anti-retroviral therapy, prevention For Botswana, birth registration is a credible founda- of mother-to-child HIV transmission, education, old tion for identity management. The birth certificate age pensions, orphan care, and so forth. Furthermore, and the Omang are legal documents that provide proof the salaries of public sector employees are linked to of identity and citizenship and that provide access to individual identity numbers, which substantially state services or entitlements. They can also serve as a deters and prevents losses due to pilferage and “ghost defense against exploitation or protracted hardship in employees.” Agricultural subsidy programs are also times of emergency. There are a number of benefits of accessed, among a number of factors, on the basis of identity management that are described in the para- an identity card. Essentially, identity management graphs below. facilitates transactions between individuals and service providers, such as between the state and the private sector. Therefore, because of these benefits, it makes Electoral Systems economic sense for countries to invest in development of CRVS and ID-M because these initiatives serve as The key resolution of the 9th African Symposium comprehensive tools for good governance and effective on Statistical Development held in February 2014 in public administration. Gaborone was to promote the use of CRVS in support of good governance in Africa. In the case of Botswana, birth registration is linked organically to the National Availability of Timely, Accurate, and Identification System, to the elections system, and to Reliable Data death registration through a unique ID for each indi- vidual. This linkage authenticates the voters roll by Benefits of Data Availability validating the particulars of individual voters, who can Available evidence indicates an improved capacity for also be identified through their Omang card during Botswana to generate timely and accurate vital statistics voter registration and voting processes. The “live” or from the civil registration data system for evidence-based “deceased” status of individuals is also confirmed to pre- decision making. In Botswana, the investment in the vent ghost voters. This integration benefits the country accelerated improvement in CRVS has resulted in the through its facilitation of effective management of the production of vital statistics reports derived from a civil electoral process, fosters peace and harmony, and serves registration source, as evidenced by the recent vital sta- to strengthen Botswana’s democracy. tistics reports for the years 2011 and 2012. The 2013 report is in the process of being produced. Reliable vital statistics support efficient plan- Claiming of Entitlements and Access to ning, implementation, and evaluation of public services Services and development programs across sectors. CRVS is the only source of continuous and universal demographic The Identity Management System allows the gov- and health data, with other population data collections ernment to better target and identify specific ben- (such as the census, household surveys, and so forth) eficiaries of various social safety net programs and only serving to supplement data provided by CRVS. services, which results in both a more streamlined CRVS helps to accurately measure population dynam- budget and program cost containment. Individuals ics. Civil registration and vital statistics systems save Cost Benefit Analysis for CRVS 29 money through their facilitative role in evidence-based births and deaths are combined with data on accurate decision making. causes of death, their usefulness in health decision mak- Furthermore, improvements in CRVS will spur ing is greatly increased. the country to success in meeting the Sustainable De- velopment Goals since the lifeblood of these goals is primarily good data and indicators. Therefore the div- Other Benefits of CRVS Systems idends and benefits achieved through investment in accelerated improvement of civil registration and vital In addition to the benefits discussed above, there are a statistics far outstrips the costs of investment. On the number of additional advantages of CRVS systems: other hand, the cost of having no improvement, or only limited improvement, would be significant Although setting up and running a civil reg- istration system is expensive, over the long run having an up-to-date registry reduces the Improvement of Health Sector Service share of costs borne by other agencies and pro- Delivery grams because most of this information can be The health sector is a significant partner and benefi- accessed directly from the civil registry. Ordi- ciary of CRVS. Hospitals and other health facilities are nary citizens benefit because they will no longer hubs for most births and deaths, and thus there is a be required to make multiple registrations with need to ensure that these facilities can register or inform various government agencies for services. Civil the incidence of these events on a timely manner. It registration can be linked with other sociopo- is therefore imperative that such arrangements ensure litical, economic, and judicial systems, such as that vital events are recorded with the highest accuracy. access to public services like childcare, educa- In accordance with the United Nations standard pro- tion, health services, social assistance benefits, cedure that vital events should be reported as soon as disability and retirement pensions, voting, possible, Botswana has taken steps to ensure that events driver’s licenses, passports, and employment, are recorded promptly. This reduces “coverage error” among others. Civil registration (CR) therefore (the longer the reporting is delayed, the less likely it is provides legal documentation to protect citi- to occur), and “content error” (mistakes made in the zenship, property, and other economic, social, recording of the vital event, and, thereafter, in the cer- and human rights. tificate/extract of the civil register). CR is an integral part of a good statistical sys- Botswana has on-site registration in a number of tem, along with censuses, surveys, and other government and private hospitals and health facilities. administrative records. Births and deaths that occur in these institutions are If the civil registry is up to date, it makes it pos- routinely registered in Botswana. Detailed information sible to produce a current voters’ list on short on births and deaths by age, sex, and cause of death are notice, with minimal costs. The Independent needed to identify emerging health challenges and to Electoral Commission (IEC) will no longer have monitor the impact of health policies and programs. to spend millions of dollars every five years to For example, information on maternal deaths and on undertake voter registration. With this civil reg- infectious or vector-borne disease and mortality is crit- istration initiative, all the IEC will have to do is ical for developing appropriate interventions and mon- extract the list of voters and conduct elections. itoring. This type of information is collected upon the There is relatively little cost involved in collect- occurrence of an event. Therefore, if vital statistics of ing data for voter registration because the key 30 The Case Study of Botswana information has already been collected and Hub that will bring together the remaining identity compiled for the civil registry. To a large extent, management components of marriages and divorces, another government agency simply assumes the immigration and citizenship, visa and migration, costs in place of the electoral administration. work and resident permits modules. Currently these CR provides regular, frequent, and timely are stand-alone systems, and authorization of change information on the dynamics of population of name and registration marriages is done manually. growth, size, and distribution, and also a record An electronic identity card (e-ID) will be delivered of births and deaths by age, sex, and cause of as part of the project together with other registration death. These statistics are essential for planning documents with improved security features. Recent basic social services and infrastructure develop- enhancements in the security features of the civil ment, and for understanding and monitoring registration system, such as the use of security paper health issues. for birth and death certificates with unique number- Once in place, obtaining data from civil reg- ing and barcodes, have increased the integrity of the istration systems costs less than conducting a ID-M system in place. census or survey. CR data are based on a record of events rather than on an individual’s recollection of those events. Social Costs Associated with not Embracing Crvs and Id-M Development Costs Associated with There are a number of social costs associated with not Initiatives aimed at Strengthening CRVS embracing CRVS and ID-M. One of these social costs in Botswana is a limited ability to ensure uniqueness. This is because without a centralized registration system, there are Resource constraints are a major challenge for bound to be many different ID documents. In addi- civil and vital registrations systems worldwide. In tion, to attempt to eliminate this duplication without Botswana there is a specific recurrent government-al- biometrics would result in even larger errors, and the located budget for running the CRVS system at an cost for individual programs would be prohibitive. annual provision of P 56,000,000 or US$5.6 million. Especially with regard to social protection programs, This budget is augmented through financial resources as people move in and out of various programs due acquired from development partners for specific proj- to changes in their income and labor market status, ects. Although the budget has been inadequate, prog- programs often do not know how many people they ress has been achieved due to the motivation and the actually are serving, and duplicate data inputs enter commitment of the leadership to stay on course to the system (for example, multiple individual pension deliver a system currently ranked as a model of best accounts). These issues result in increased costs to both practices in the African region. Botswana provides a beneficiaries and the government. very good example of a country that has been suc- A second social cost is a limited ability to au- cessful in strengthening its CRVS systems despite thenticate. Many programs cannot authenticate se- the challenge of resource constraints. Botswana has curely and this has contributed to massive fraud and been successful in the integration of CRVS systems. corruption. In some cases programs may invest in In addition to the continuation of its accelerated e-IDs with more secure authentication but this can improvement drive, National Development Plan 10 result in a plethora of ID cards, lack of interoperabil- approved funding for the creation of a virtual People ity, and significant extra costs. A third social cost is a Cost Benefit Analysis for CRVS 31 lack of a common identifier which limits the ability to assistance registries, and monitoring social spending. coordinate across programs in order to improve target- At the end, programs do not know who is receiving ing, for instance, comparing social insurance and social benefits from multiple programs and who is excluded. 6 Key Enablers or Critical Success Factors T he nature of CRVS is that it requires long-range and sustained plans of ac- tion, requiring a legal and legislative framework that facilitates the growth and maintenance of the system. However, in many contexts, the efficiency and effectiveness of CRVS is compromised by challenges relating to the adequacy of legislation, the nature of the civil registration organization, the methods of co- ordinating the different elements of the system, and the levels of priority given to the entire enterprise by the government. Also, because CRVS requires long term planning, there is usually a reluctance to invest in a long-range plan for the future in favor of short-term action programs aimed at securing immediate results and sta- tistical data. Thus, where adequate legal, administrative, and legislative frameworks are not in place, conflicting legal interests, questions of competing jurisdictional control, and other governmental programs claiming higher priority status have the potential to limit the success and ability of CRVS systems to provide accurate and timely information for development and administrative purposes. Problems relating to adequacy of legislation, the nature of the civil registra- tion organization, methods of coordinating the different elements of the system, and the priority given to CRVS are solvable without necessarily requiring signifi- cant investment of resources. However, they are not necessarily easy to solve where there are conflicting interests and inadequate legal and administrative frameworks in place for implementation. In recognition of the importance of having a system through which meaningful data could be collected at a national level and on a continuous basis, Botswana passed legislation in 2003 mandating the registration of all births and deaths, and making it mandatory for all citizens 16 years old and above to obtain a national identity card. As a result, the increase in registration has been almost universal, making Botswana a country that can be used as a good benchmark on issues of civil and national registration and vital statistics systems. 34 The Case Study of Botswana Legal and Regulatory Framework for the registration of vital events. The National Registration Civil Registration in Botswana Act (enacted in 1986, with additional amendments in 2004 and 2011) provided for stronger enforcement of Botswana has created and instituted a number of laws the Births and Deaths Registration Act by creating de- and statutes, all of which provide a legal framework for mand for such registration. CRVS. The registration of vital events in Botswana is According to the United Nations, the three main regulated through the Birth and Death Registration functions of the civil registration system7 are the legal, Act (Chapter 30:01) and the Marriage Act (Chapter statistical, and cooperative (administrative) functions. 29:01). The following are the main Acts and instru- In both civil registration law and statistics law, there ments governing the management of vital events and should be provisions calling for generating statistical their registration. information from civil registration processes. The Sta- tistics Act, 2009 (Section 26 (I), Second Schedule), pro- 1. Births and Deaths Registration Act (1968, last vides for collection, processing, analysis, and dissemina- amended 1998, 2000, and 2014) tion of statistics from vital events (that is, births, deaths, 2. Inquests Act (Chapter 07:01) marriages, and so forth). 3. Marriage Act (2001) The Births and Deaths Registration Act (1998) 4. Matrimonial Causes Act (1973, last amended specifies definitions for live births, stillbirths, and deaths 2008) to ensure uniformity and accuracy in reporting of vital 5. Married Persons Property Act (amended 2014) events, and provides for the appointment by the Minister 6. National Registration Act (1986, last Statutory of the National Registrar and of District Registrars. The Instrument (SI) 2004, SI 2011,) Act also provides for the maintenance by the Registrar of 7. Children’s Act (1981, amended 2009) three types of registers, namely the “Births Register”, the 8. Change of Name Act (1968) “Stillbirths Register”, and the “Deaths Register”. 9. Statistics Act (2009) The review of CRVS in Botswana identified as- 10. High Court Act (Rules of the High Court, 1976, pects of the legal framework which were found to be last amended 2009) inadequate to fully facilitate comprehensive inputs of CRVS. The gaps identified in the review are being ad- The Births and Deaths Registration Act (enact- dressed through the 5-year strategic framework for the ed in 1968, and last amended 1998, 2000, and 2014)), implementation of the CRVS. specifically addresses the registration of births, deaths, and related vital events. The Marriage Act (enacted in 2001) establishes provisions for performing and regis- Human and Institutional Capacity tering marriages. The Matrimonial Causes Act (enacted in 1973, and last amended in 2008) deals with many The Department of Civil and National Registration diverse issues related to marriage and the dissolution of (DCNR) in the Ministry of Labour and Home Affairs, marriage, including divorce. The Children’s Act (enacted is the institution which has the primary responsibility in 1981, and amended in 2009), the Change of Name for registering vital events. According to the Births and Act (enacted in 1968 and under review, but a review has Deaths Registration Act, the principal actors in the not been completed since its promulgation in 1968), and the High Court Act (Rules of the High Court, 1976, last 7 Handbook of Civil Registration and Vital Statistics Systems: amended in 2009) are complementary legal instruments Preparation of Legal Framework. Series F. No. 71.United that support the implementation of the Acts governing Nations, 1998.Pg. Key Enablers or Critical Success Factors 35 registration are the Registrar, supported by the District CRVS Interface with Other Systems Registrars and Assistant Registrars. Added to these, there is also a Marriage Registrar, as identified by both The organic linkage of the National Identification Sys- the Marriage Act and the Matrimonial Causes Act. The tem (NIS) with the Births and Deaths registration sys- Department is headed by a Director (who is the Regis- tem (BDRS) has been mutually beneficial. Similarly, the trar), supported by a Deputy Director (who is the Dep- National Identification System (NIS) is also interfaced uty Registrar) and a Chief Registration Administrator with other key government systems for data authenti- (who falls within the category of Assistant Registrar). cation regarding a person. There is an ongoing process The Registration Division comprises two sec- to build a population register of a People Hub (Peo- tions: the National Registration and Civil Registration ple Hub) to interface all systems, including those of Unit and the Vital Events Unit. The division is headed the private sector, through the NIS. The NIS is to be by an Assistant Director of Registration Services. On- linked to various government departments such as the site registration (in kiosks) has been established in some Immigration and Citizenship System (ICS), the Finance hospitals to ensure immediate registration of births and Payment System, and so forth. The use of the Identity deaths, to obtain wider coverage of the population, and Management system is crucial in facilitation of service to facilitate easier access to registration offices. This will delivery. Financial institutions are also encouraged to in the future be expanded to other health facilities with emphasize the use of identity cards for their citizen cli- maternity services. ents, unlike in the past where any form of identification such as driving licenses or passports were allowed. Human Resources Political Commitment and Ownership The District CNR Offices are headed by District Regis- trars, which are positions of varying ranks. The depart- In many developing countries, resource constraints are ment has 36 District Offices around the country. The a major problem hampering civil registration. Political Gaborone District Office has 10 permanent officers commitments and strategic partnerships with stake- and 3 interns. The office services an average of 360 cus- holders are essential for implementing civil registration tomers a day on various requests for national ID and legislation, policies, and initiatives. Because of high registration services. This staff level is not adequate as political commitments in Botswana, sufficient fund- shown by customers complaining that waiting periods ing was provided for various initiatives to improve the are too long. CRVS. Although there is a well-defined service plan in Countrywide tours of all the full councils were place, DCNR staff generally has mostly artisan and tech- undertaken in 2011 by officials in the office of the direc- nical experience with inadequate competencies in key tor and by other senior officials who addressed different areas such as ICT, population dynamics, security, risk constituencies on the value of CRVS and ID-M. These management, human resources, and so forth. The De- included engagements with Parliament Select Com- partment in the last five years began to introduce more mittees, such as a Portfolio Committee on Labour and professional staff into its operations, but the program is Home Affairs, and Communications, Works, Transport still in its infancy. In addition to the issue of the caliber and Technology. These tours generated interest within of the staff, there is also a continuing, dire shortage of the political spectrum and resulted in crucial political staff across the districts and regions in terms of having ownership of CRVS issues, with many members of Par- the necessary numbers to sufficiently service the public. liament posing parliamentary questions and bringing 36 The Case Study of Botswana in motions on CRVS and ID-M, especially on the ques- them to exercise their right to vote. A special budget tion of universality, and on the need for everyone to be amounting to P 8 million (US$800,) was set aside for registered and to be issued registration documents, on the Department of Civil and National Registration turnaround times on services, and on the need to up- to enable them to adequately prepare for the October grade the capacities of the functions. 2014 General Elections by renewing expired identity The Honorable Ministers of Labour and Home cards and replacing lost ones. Affairs have each made Civil Registration and Identi- ty Management one of the priority areas in addressing public Kgotla meetings and in DCNR’s engagement Registration – Management and with other politicians. The current Minister continues Organization to speak out on national radio programs highlighting the importance of registration of vital events. This effort To encourage and facilitate inputs of registration, alone has motivated people to come forward to register the government made it a requirement that either a vital events. There have also been well-targeted meet- national identity card or a birth or death certificate be ings conducted with key groups. For instance, every full a requirement for accessing most services from govern- council and sub-district council has been addressed on ment departments, insurance companies, burial societ- the value and importance of civil registration and iden- ies, and so forth. This has had the effect of improving tity management. Generally, information dissemina- the uptake of registration of vital events and national tion has been carried out by various politicians in their identification. For instance, the fact that utilization of respective constituencies, and furthermore, a variety of antenatal care in Botswana is quite high (96 percent questions regarding registration have been raised and according to Botswana Family Health Surveys (BFHS, discussed in Parliament. Because of linkages between 2007), and that most births occur in a modern health ID and the electoral system, politicians have gone as facility, has helped to facilitate birth registration. As a far as transporting members of the public in their own result, birth registrations by the Department of Civil vehicles to enable them to get an identity card to enable and National Registration have been a success. 7 Challenges T he major drawback of the CR system is that since registration gathers a lot of data, there is always a concern that such information gives too much power to the state, and can be abused or used for purposes other than what it was intended for, leading to violations of privacy and individual rights. Thus, despite the utility and usefulness of the CR system, concerns about its abuse could make it unacceptable. Data Protection and Privacy Legislation One key challenge is that identity management and CRVS are managed in the absence of data protection and privacy legislation, yet the institutions involved are primary processors of a person’s data. In the absence of such legislation, the proper controlling of the keeping and the releasing of a person’s data can be a challenge. While there are some secrecy and confidentiality sections in the current registration legal framework, they are limited in scope. Privacy concerns can also appear as a result of the linking of different systems. The Department Is Not Mandated by Law to Register Divorces, Resulting in a Gap in Vital Events Registration The lack of laws that govern registration of divorces is a gap in the registration of vital events. Divorces are registered by court offices under the High Court of Botswana, and divorce registration records are not provided to the Department of Civil and National Registration. Therefore no statistics are generated on the regis- tered divorces in the country (UN, 2010). 38 The Case Study of Botswana Inadequate Inter-linkage of Systems of cameras for identity cards being outdated, and therefore the cost of parts and accessories become There is an ongoing process (People Hub) to interface all expensive. This leads to client inconvenience because systems through the NIS, and NIS is linked to various they can be forced to queue up for hours to get their government departments such as the Immigration and photos taken, or they are sent to other District offices Citizenship System (ICS), the Finance Payment System, to get their identity card photographs taken. Moreover and so forth. Even though there is interface with ICS, the evidenced shortage of computers, printers, and so there are still some challenges. Similarly, the interface of forth, are also a contributing factor to slowing down the NIS with finance (salaries) appears to have some chal- delivery in CNR. lenges. There were also some initiatives that are geared towards the involvement of all major players, such as in health organizations and in private organizations. There Lack of Monitoring and Tracking of are no formal arrangements for exchanging data with Sta- Registration tistics Botswana. There is no framework for specifically monitoring and tracking registration. Also interventions have not been Shortage of Vital Resources systemically evaluated for effectiveness. There is also a lack of monitoring of marriage returns of the churches The CNR offices experience serious shortages of at the district level and at headquarters. resources. In all the offices, there is a serious problem 8 Lessons Learned Registration of vital events should be mandatory The Registration of Birth and Death Act and the National Registration Act mandate that the registration of births and deaths in Botswana be universal and compulsory for all citizens. It is evident from the case study that to run and strengthen CRVS under registration principles sanctioned by law, as outlined in United Nations Sta- tistics Division (UNSD) recommendations, registration should be mandatory with the goal of achieving full coverage. It should also be timely, continuous, and of a permanent nature. It must ensure confidentiality if it is to be trusted by the populace. Robust and comprehensive legal framework is critical It is essential that there be robust and efficient legal frameworks for CRVS. In the case of Botswana, the Births and Deaths Registration Act (Chapter 30:01), the Children’s Act, the National Registration Act (Chapter 01:02), the Change of Name Act, the Marriage Act, and the Married Persons Property Act provide some of the legal framework enhancing registration of CRVS. Having Civil Registration and Identity Management in the same agency or ministry ensures integration and enhances the provision of public services The issuance of the identity cards (Omang) and registration of vital events are done by one Department, DCNR, thereby emphasizing the importance of one depart- ment carrying out the registration mandate. As a consequence, this results in the DCNR being a well-recognized and reputable institution with the mandate to reg- ister all vital events, even if there are other institutions administering services asso- ciated with the events. The Omang is a trusted tool used by citizens of Botswana and is accepted widely to facilitate transactions across government and private insti- tutions. Individuals use their Omang to access various public services their entitled to such as health care, agricultural subsidy and other social safety net programs and services. Further, the Omang is used by the Independent Electoral Commission to validate the voters roll thereby curtailing the expensive ad hoc issuance of one-time voter identity cards which is prevalent in other African countries. 40 The Case Study of Botswana Assigning unique identifier at birth registration country including 12 districts and 25 sub-districts. It ensures a centralized database of registration of also operates 13 on-site registration offices at various births and deaths linked to national identification health facilities across the country. Botswana is one of the first if not the first country in There is a comprehensive identity infrastructure. Africa to organically link civil registration to Identity This is due to non-inhibitive enrollment procedures, Management through a unique identifier and through which facilitates easy access to registration services. The process integration. A unique number is issued at a services are free, and outreach programs are undertak- person’s birth registration and continues as an identity en. The system is very responsive to the needs of vul- number for national registration, and its use continues nerable populations, and there are provisions to waive throughout the life of the person. Thus, there is only a requirements as necessary. Mobile outreach team regu- single registration with a unique ID number assigned larly provided services to those residing in remote and at birth, which is continued as the person’s identity hard-to-reach places. number during National Registration at 16 years, and There are adequate and dedicated human re- which facilitates multiple uses during a lifetime, ter- sources involved, as well as adequate budgetary resources minating only at death. This represents an Organic and strong political commitment. Furthermore, there is Link between registrations of births, national registra- a credible and trusted identity management institution tion, and death. Birth registration is a foundation for that uses risk management strategies for sustained risk identity, resulting in a traceable origin of identity, and mitigation to ensure trust, acceptance, and wide use of an authentic and secure identity. This living identity is the identity cards for services, either in government or created once and used several times through life. This in private institutions. identity life cycle is well managed as it is controlled and centralized by one dedicated authority. Even the Comprehensive Information, Education, and Com- “End of Identity” occurring with timely death registra- munication including outreach to vulnerable groups tion is organically linked to the Identity Management creates demand for registration services System, which results in all the registers being up to The Minister of Labour and Home Affairs collaborates date, with minimal ghost identities, thus improving with other ministries and stakeholders in implement- data integrity. ing comprehensive Information, Education, and Com- munication campaigns using print media, electronic Decentralizing of civil registration and identifica- media as well as public forums to generate demand for tion increases accessibility registration services. The existing system of governance There is strong political commitment for decentraliza- that reaches down to the community level and the rich tion with registration services with registration being traditional administration promoting the participation undertaken in offices across the country. Furthermore of the citizenry at the lowest geographical level has to increase registration of vital events, especially births facilitated these campaigns. For instance, regular public and deaths, there is also on-site registration in health meetings (or Kgotla) in rural areas provide an avenue facilities with trained medical staff. These electronic to explain the importance of vital events registration. A on-site registration centers ensure immediate issuance partnership with the Ministry of Education increased of certificates, improve data integrity, provide pro- demand for birth registration when a new policy was cess efficiency, and offer people the immediate enjoy- implemented to require children to have a birth certif- ment of their birth registration and identity rights. icate to be enrolled in schools. The requirement for a The DCNR has a staff complement of four hundred death certificate for taking in bodies to the mortuaries and fifty-two (452) stationed in 37 stations across the also stimulated demand for death registration. 9 Way Forward T his impressive history of determined and consistent development of the sys- tem has built up a combination of strengths on which the next century of the system’s existence can operate and build. Botswana has a functioning civil registration system but the system does not translate into sufficient and reliable vital statistics. Statistics Botswana should work closely with the Department of Civil and National Registra- tion. The publication of Vital Statistics 2011 and 2012 is a welcome devel- opment even though they are not published until three years later. Another example of limited coordination is that the civil registration districts and the census districts are defined differently, which makes it difficult to compile and compare vital rates when the numerator is derived from civil registration but the denominator is population obtained from population censuses. The legal framework needs to be revisited, improved, and harmonized. The revised legal framework should do the following: (a) specify clearly the responsibilities of different agencies at different levels involved in the civil registration; (b) include the statistical function of the civil registration sys- tem; (c) state clearly what coordination mechanisms are needed for a smooth and efficient civil registration system; and (d) cover all vital events recom- mended by the United Nations, especially the ones omitted by many coun- tries such as fetal deaths and divorces. The issue of controlled data sharing and authentication, such as Data Protec- tion and Electronic Signature, should be enacted in legislation. Currently they are still at Bill Stages. The on-going project of People Hub, which would be a central data repository for authentication and validation of personal data going beyond government records to include the private sector, should be enhanced and sustained. Furthermore, this project is anticipated to enhance validation of identity using source data to reduce exposure to counterfeit documents. In summary, this case study shows that while there is still much work to be done, the CRVS and ID-M systems in Botswana are robust and are providing sig- nificant services to the people. References and Key National CRVS Documentation Balagopal G, and van der Straaten J. (2012). Supplementary Assessment of Civil Registration in Botswana, Cote d’Ivoire, Namibia, Nigeria, Senegal and Uganda – A UNICEF Contribution to the Second Conference of Afri- can Ministers Responsible for Civil Registration, The Hague. UNICEF (No date). Strengthening birth registration in Africa: opportuni- ties and partnerships technical paper. UNICEF. World Bank /WHO (2014). Global Civil Registration and Vital Statistics: Scaling up Investment Plan 2015–2024. 28 May. World Bank/WHO. Philip W Setel, Sarah B Macfarlane, Simon Szreter, Lene Mikkelsen, Pra- bhat Jha, Susan Stout, Carla AbouZahr (2007), on behalf of the Moni- toring of Vital Events (MoVE) writing group, The lancet. DOI:10.1016/ S0140-6736(07)61307-5. Boerma, AbouZahr and Danel, (2012), Vital registration 2020: A frame- work for action. (UN Department of Economic and Social Affairs Statistics Division, (2001), Principles and recommendations for a vital statistics system: Revision 2. WHO HIShub (2009): Improving the quality and use of Birth, Death and Cause of Death Information: Guidance for Standards-Based Review of country Practices. Working Paper no. 1 and WHO, HISHub (2010), Rapid assessment of National civil registration and vital statistics systems. PMCNH, Vital Registration and Vital Statistics. Knowledge summary 17 World Health Organization, (2014) with input from several agencies and countries, prepared ahead of the May 28–30, 2014 Global Summit on Maternal, Newborn and Child Health (MNCH) in Toronto, an event hosted by Prime Minister Stephen Harper. Economic Commission for Africa, (2012), Reforming and Improving Civil Registration and Vital Statistics Systems in Africa-Regional Medium-Term 44 The Case Study of Botswana Plan: 2010–2015, Second Conference of Afri- Economic Commission for Africa, (2012), can Ministers Responsible for Civil Registration. Reforming and Improving Civil Registration WHO (2014).National CRVS Investment and Vital Statistics Systems in Africa-Regional Plans. Medium-Term Plan: 2010–2015, Second Con- World Bank/WHO (2014),Global Civil Reg- ference of African Ministers Responsible for istration and Vital Statistics Scaling up Invest- Civil Registration. ment Plan 2015–2024 WHO (2014).National CRVS Investment Philip W Setel, Sarah B Macfarlane, Simon Plans. Szreter, Lene Mikkelsen, Prabhat Jha, Susan World Bank/WHO (2014),Global Civil Reg- Stout, Carla AbouZahr (2007), on behalf istration and Vital Statistics Scaling up Invest- of the Monitoring of Vital Events (MoVE) ment Plan 2015–2024 writing group, The lancet. DOI:10.1016/ Civil Registration Centre for Develop- S0140-6736(07)61307-5. ment-CRC4D (2012),Supplementary Assess- Boerma, AbouZahr and Danel, (2012), Vital ment of Civil Registration in Botswana, Côte registration 2020: A framework for action. d’Ivoire, Namibia, Nigeria, Senegal and Ugan- (UN Department of Economic and Social da—A UNICEF Contribution to the Second Affairs Statistics Division, (2001), Principles and Conference of African Ministers Responsible for recommendations for a vital statistics system: Civil Registration. Revision 2. Lepang, Neo C (ND). RISK STRATEGY WHO HIShub (2009): Improving the quality FOR THE DEPARTMENT OF CIVIL AND and use of Birth, Death and Cause of Death NATIONAL REGISTRATION. DCNR Information: Guidance for Standards-Based Comprehensive Assessment of the Civil Reg- Review of country Practices. Working Paper no. istration and Vital Statistics System (CRVS) A 1 and WHO, HISHub (2010), Rapid assess- Synthesis Report Botswana ment of National civil registration and vital sta- Lepang, Neo C (ND). Identity Management tistics systems. framework: The case of Botswana PMCNH, Vital Registration and Vital Statistics. Reforming and Improving Reforming and Knowledge summary 17 Improving Civil Registration and Vital Statistics World Health Organization, (2014) with input Systems in Africa: Proposed Regional Medium- from several agencies and countries, prepared Regional Medium-Term Plan: 2010 Term Plan: ahead of the May 28–30, 2014 Global Sum- 2010 Term Plan: 2010–2012. Accessed on 23rd mit on Maternal, Newborn and Child Health June 2015 at http://www1.uneca.org/Portals/ (MNCH) in Toronto, an event hosted by Prime crmc/2010/docum Minister Stephen Harper. 1818 H Street, NW Washington, DC 20433