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REF: JCSC/CRP/15/17 No of words: 5078

AN ASSESSMENT OF THE CHALLENGES OF DEVELOPMENT AND RETENTION

OF PERSONNEL IN THE BOTSWANA DEFENCE FORCE

INTRODUCTION
1. The current talent market environment continues to reaffirm the importance of
human capital and force organisations out of the “business as usual mode” into rethinking
the most innovative and effective ways of attracting, engaging and retaining top talent for
the purpose of driving organisational mandates (Collins, 2001). This challenge is
compounded by what Heger (2007) describes as the new employment relationship which
is characterised by a diminishing feeling of employee loyalty and commitment to work. As
the author further elaborates, employees are constantly evaluating the collective value of
the benefits they derive from being members of the organisation. If employees perceive
their own organisation’s value proposition to be less competitive than that of other
organisations, they are likely to disengage from their own work by reducing their
contribution or by leaving their organisation altogether (Heger, 2007).
2. Key findings from a global workforce study by the Corporate Leadership Council
(2006) reveals that only 11 percent of the workforce dubbed “true believers” demonstrates
a very strong commitment to their organisations. The “disaffected” category, constituting
13 per cent of the world workforce, represents those employees actively opposed to their
organisation. The bulk of the workforce (76 percent),referred to as “the agnostics”, exhibit
only a moderate commitment to their work, teams, managers and organisations, and are
capable of either being lured to be the “true believers” or are lost to the “disaffected” side
of the workforce. These employees present both the risk and the opportunity as they
prompt organisations with concerns of spiritual turnover or retirement in chair by
demonstrating variable levels of effort and intention to stay (Corporate Leadership
Council, 2006).
3. In light of the above paradigm shift, it is imperative for organisations to continually
assess the value of their employment relationships with their employees for the
development of a stable and effective relationship between parties, especially in the
current business world that is heralded by insecurity and transformation. Rousseau
(2001) asserts that this aura of uncertainties coupled with economic fluctuations make it
more difficult to retain and motivate a dynamic and profitable workforce thereby making
organisations vulnerable to detrimental turnover costs and an uncommitted workforce. In
order to stimulate a fruitful, loyal and committed workforce, Robinson and Morrison (2000)
recommend that organisations should understand and explore the psychological contract.
4. The psychological contract denotes an individual’s beliefs about the terms of the
exchange agreement between employee and employer which become a set of reciprocal

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obligations of binding expectations between parties (Rousseau, 1989). As Robinson and

Morrison (2000) maintain, these sets of beliefs do not necessarily conform only to items
found in the employment contract but further incorporates those implicit, subjective and
malleable promises. The purpose of this paper is to explore the impact of the Botswana
Defence Force employee development initiatives and rewards with particular emphasis
on their value utility on attraction and retention of top talent. Further to this, focus shall be
drawn to the prevailing challenges to the organisation endeavour concluding with
recommendation for future interventions. The paper looks at the challenges of pay and
benefits, superintendence of conditions of service, the role of BDF in determining pay and
issues of retention.
AIM
5. The aim of this paper is assess the challenges of personnel development and
retention in the Botswana Defence Force with a view to make recommendations on how
conditions of service can be improved.
THE STATE OF HUMAN CAPITAL DEVELOPMENT AND RETENTION IN THE
PUBLIC SERVICE
6. The war for talent manifest in so many forms and the challenges thereof continue
to weigh heavily on organisations endeavours to develop and retain highly skilled
professionals. The public service in particular struggles with attraction, development and
retention of human capital owing to limited capacity to compete with the private sector for
highly skilled professionals. An African Public Service study by Governance and Social
Development Resource Centre (2010), which among other countries focused on
Botswana, revealed that skilled professionals cite public service as less attractive
especially in the critical areas of rewards, professional development and career support.
This study further purports that the exit interviews conducted among these professionals
largely pointed out to failure by the public service management to draw distinctions
between professional and academic qualifications in rewards and benefits schemes, as
well as lack of formal training structures and resources.
7. Reflecting on a particular case to Botswana, the National Development Plan report
indicates that despite the government interventions costing more than a quarter of a billion
in Pula’s to redress the skill shortage, the country is still grappling with acute skill
shortages (National Development Plan 10). A post critique of this challenge suggests that
the previous interventions geared towards addressing skill shortage were not done in
consideration of the public service growth and the occupational mix. It can be argued that
the public service of Botswana is failing to address the skills match versus remuneration
as it rewards decision making and pay little attention to skill offered by the employee.

8. The writer asserts that skills development and pay are conducted as parallels
limiting job satisfaction and productivity in the current Botswana public service set-up.

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The complexity lead to a high loss of skilled manpower to the private sector as the public
service rewards the level of decision making an individual is at instead of the skill offered.
DEVELOPMENT AND RETENTION CHALLENGES
9. In order to understand the challenges that organisations incur in their endeavour
to retain and develop highly skilled manpower, perhaps it will be pertinent to explore how
turnover intention (intention to leave the organisation) manifests. As earlier reiterated,
employees are in the process of comparing the value they derive from being members of
their organisation and resolve to either reduce their commitment to work (retirement on
chair) or leave the organisation completely.
THE PSYCHOLOGICAL RESPONSE OF EMPLOYEES
10. Various studies recognise turnover intention as a psychological response of an
individual towards a perceived state of affairs within his employment relationship with the
employer (Bothma & Roodt, 2013; Lum, Kervin, Clark, Reid, & Sirola, 1998). The turnover
behaviour unfolds as a multistage process which encompasses attitudes, decisions and
behavioural components (Jones, 2000). Mobley (1977) suggests that the intention to
search for alternative employment and the intention to quit could possibly be the leading
processes that add to the withdrawal decision being turnover behaviour. More specifically,
the thought process of quitting stimulates and triggers the actual turnover intention
leading to evaluation of costs of quitting, search and evaluation of alternates, intention to
quit or stay, and finally the decision or behaviour to quit or stay (Mobley, 1977).
THE TOTAL REWARD STRATEGY
10. Quite often, organisations engage in monetary rewards in their effort to retain and
motivate their employees. However, emerging studies indicate that rewards have evolved
to include those intrinsic factors such as recognition to connect employees to their
organisations and work in a more intimate way. WorldatWork (2015) maintains that
meaningful rewards have to capture everything that an employee values in the
employment relationship. As such total rewards today encompass a reward strategy that
combines compensation, employee benefits, work–life balance, personal recognition and
career development in the benefits package (Armstrong & Brown, 2001). This description
and key elements of total rewards aligns closely to what is increasingly referred to as
conditions of service in organisations.
11. Together with rewards, corporate image, leadership and work context, learning
and development has become one key factor that employee consider in their work
relationship. As the Human Capital Institute (2011) report highlights, there has been a
dramatic effect on the way that today’s worker relates to his/her organisation, understands
his/her role in that organisation, and plans his/her career within the organisation (HCI,
2011).
12. In view of total reward strategy, the author postulate that reward should not only
be measured by basic pay but to include personal recognition, relates with his/her

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organisation, understand his/her role and most importantly career path. The Botswana
Defence Force should move in the direction of total reward system so that its personnel
becomes empowered beyond basic pay when issues of remuneration are discussed.
EVOLUTION OF REWARD STRATEGY
13. Hall (1996) notes that the traditional psychological contract whereby employees
join the organisation, become loyal and perform well in return for ever-greater rewards
and job security, has been replaced by a new contract based on continuous learning and
identity change, guided by the search for what employees feel is best for them. Heger
(2007) also notes the paradigm shift and further highlights that the turbulent and complex
business environment has resulted in an ambiguous and contradictory career signals
where employees act in self-defence by not planning their career and development
around the organisation.
14. In light of the changing psychological contract, Inn and Crowel (2015) warn that
these winds of change will ultimately sweep the current business environment. There is
therefore, an increasing need to build the talent pipeline through accelerating skill
development and managing employee career growth through a more flexible mind-set
that empowers employees for career self-development. Together with the changing
contract, the new career goal focuses on psychological success, where the feeling of
pride and personal accomplishment comes from achieving one’s most important goals in
life (Hall, 1996).
15. In addition, Sejen and Yates (2011) warn that, as the economy continues to
recover, organisations should expect their top talent to start looking elsewhere for career
opportunities that will satisfy their needs for career growth, development and
advancement. While the recovery of the economy is good for business, organisations
should be strategically prepared to deal with the adverse impact of widening labour
market opportunities such as turnover intentions (HCI, 2011). In the end organisations
should continuously review their terms of pay and benefits to be able to attract and retain
personnel.
16. In analysis, the author hastens that an evolving reward strategy can to a certain
degree attract and retain skilled manpower as outside competition from other
organisations may limit the freedom of changing a structure to meet the needs of every
employee. This should not tempt organisations to be overwhelmed by outdated pay
structures that fall far below employee expectations and uncompetitive. Organisations
should guard against expecting returns from employees whilst clinging to outdated pay
and benefits structures.

THE STATE OF BOTSWANA DEFENCE FORCE

17. Though classified under public service, Botswana Defence Force does not fall
under the jurisdiction of the Public Service Act. However, by virtue of being fully funded

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by the Botswana government, it remains a government department under the

administrative authority of the Defence Council and the operational superintendence of
the President through the arm of the Commander.
BOTSWANA DEFENCE FORCE’S PECULARITY
16. By its nature, military work involves sacrifices that do not only impact on the
serviceman only but his family as well. It entails frequent travels, long schedules of
assignments, strict adherence to rules and procedure and risk inherent in executing such
missions. Such challenges may bring varying levels of work related stress to different
individuals. Depending on personal circumstances, employees may prefer autonomy,
work-life balance and to see a direct link between their job impact and recognition. While
the content and context of work may be fulfilling and challenging to some employees, it
may put pressure on others resulting in workplace related stress.
17. Owing to the above, it is pertinent for the total rewards of the organisation to factor
such circumstances especially social support and wellness initiatives. However, as
Botswana Defence Force adopts the public service pay structure, very few can be tailored
to suit the military operational environment. Despite the challenge, the organisation
continues to explore and implement programmes and strategies that serve to address
employee meaningful needs. Carl Forsling (2014) argues that “the military shouldn’t pay
any more than it needs to in order to keep the number and quality of people it requires.
However, it should allow the services more flexibility to experiment with incentive
structures and compete for the best people”.
18. The author proposes that military duty goes beyond qualification or skill acquired
but encompasses sacrifice, patriotism, and loyalty elements which should be rewarded to
a greater extent. Military as national service, deserves a special place in remuneration
structures of any government in recognising the soldiers’ perseverance and sacrifice for
the country.
THE BDF CURRENT REMUNERATION STRATEGY
19. Beyond the government, which can be assumed to provide the basic form of
financial security, there are various allowances which rewards employees for technical
expertise they extend in the course of their duty. This extends to professional expertise
rendered by various professionals within the BDF. The forms of pay that may be regarded
to be intrinsic include medical attention at the expense of the organisation and provisions
for contributory pension and medical aid as offered through employment as a public
servant of Botswana government. There is also a provision for free housing including
subsidies of utilities such as water and electricity.
20. The Botswana Defence Force has over the years encountered difficulties in the
management of development and reward system as a result of the duplicity of the
superintendence on remuneration and conditions of service (Lt Gen. GG Galebotswe,
2016). The current situation has led to marked reliance on the control of the Directorate
of Public Service Management in terms of remuneration and the general conditions of

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service. This is in clear contrast to the provisions of the Botswana Defence Force Act
gives that responsibility to the Defence Council as entrenched in the law. This has given
birth to a highly skewed and disproportionate reward system, a product resultant from this
dual control.
21. The writer maintains that this an undesirable environment where two authorities
are expected to determine the conditions of service of a single entity with the DPSM
inclined to public servants and paying little consideration to military exigencies. The
Defence Council on the other hand has played minimal role in the improvement of the
conditions of service for the military.
THE UNBALANCED REWARD SYSTEM
22. It should be pointed out some of the teething problems of unbalanced reward
system are intra-originated in a case of trying to close possible gaps leading to inequitable
reward system and at times at odds with directives from the Directorate of Public Service
Management. It has become typical to find an Officer earning three or more allowances
for the same course on top the basic salary.
23. On the other hand, another Officer of the same rank or even senior, will be earning
only the basic salary on the basis that the degree acquired by the Officer is not recognised
as special skill as per different circulars on pay. In a disciplined force, this is not an ideal
situation for exercising command and control.
24. It is evident that the total rewards as addressing the conditions of service within
the employment relationship should be aligned to the organisational strategy, culture and
the people management strategy. Organisations should widen their scope of
understanding on what brings about that discretional effort, engagement and the
willingness to stay with the organisation. Contrary to the classical believe that people work
for money, research has proven that preferences differ due to divergent needs of people,
their cultural orientation, generational cohorts and geographical location. According to
Rynes & Cable (2003) the utility of monetary rewards and the organisational image can
be best utilised for attraction of prospective employees and job applicants. The results of
a research study by WorldofWork (2010) also reveal that tangible rewards are important
for attraction whereas career and development opportunities, work-life, performance
based rewards and supervisor characteristics are important for motivation and retention.

25. The relationship between total rewards, retention and engagement is best summed
up by Heneman (2007) in suggesting that the shift from pay and benefits to total rewards
has enabled organisations to successfully combine compensation, employee benefits,
work-life balance, personal recognition and career development into the whole value
package therefore linking elements that attract, retain and engage employees into one
comprehensive component. Snelgar et al (2013) regard base pay as the most important

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aspect of the total rewards necessary for attraction while they preferred non-cash rewards
and recognition as appropriate for intrinsic motivation. As a global workforce research by
Towers Watson (2012) reveals, people work for money, but they even work more for
meaningfulness in their lives. These new research findings further prompt organisations
to shift from the transactional form of relationships into a more relational form that account
for employees’ well-being in the employment relationship (Corporate Leadership Council,
2004).
26. The writer emphasises that an unbalanced reward system is a recipe for
demoralising the workforce which has the potential to lower productivity, loyalty, honesty
and bring into question issues of patriotism in the instance of a disciplined force.
Therefore, every member should have intrinsic motivation as underpinned by a balanced
reward system that recognise all employees across the board. The need to consider the
contribution of every employee beyond qualifications in the BDF is a pressing matter as
role players in the overall success of the organisation’s mandate.
THE CHALLENGES IN THE BOTSWANA DEFENCE FORCE
27. The challenges of development and retention in the Botswana Defence Force are
varied and historically linked to a less dynamic pay and benefits structure. The Botswana
Defence Force it can be argued that it has a remuneration structure suggested by
Heneman (2007) of pay and benefits which balance work-life, career development and
personal recognition though highly skewed from one individual to the other. This has
created disparities of high proportions as evidenced by salary differentials and
opportunities accorded some members of the Defence Force. Such unbalanced reward
system has a bearing on retention and the morale of personnel.
THE LACK OF EQUITY IN PAY AND BENEFITS
28. The value system of the organisation for a fair and equitable conditions of service
has been submerged in an unbalanced pay structure that does not recognise command
and control. In many instances it is common for junior personnel to earn almost double of
their seniors. Military as infused in command responsibility have been compromised as
highly salaried personnel are expected to take orders from their lowly paid senior
personnel. The situation is compounded by the introduction of several allowances which
can be paid for the same qualification thrice or more to reward specialised skills. The
percentile of the allowances was never taken into consideration as they allowances are
independent of the other. This has led to some employees getting close to ninety percent
of the basic pay as allowances off shooting total earnings to double salary.
This ratio of basic salary versus allowances is unjustified by any reward system measure.
“Employee perceptions of equity and inequity are equally important and should be
carefully considered when a company sets compensation objectives. Employees who
perceive equitable pay treatment may be more motivated to perform better or to support
a company's goals, (Kent Romanoff).

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29. The lack of clarity on job descriptions and evaluation is seeing Botswana Defence
Force paying a section of its personnel superfluous salaries for qualification more than
for competencies that are measurable. The misjudgement has created artificial scarcity
in some areas without empirical proof that a certain skill is required at what quantum and
level across units. This is an internally and externally induced mismatch as both the
Botswana Defence Force and Directorate of Public Service Management has run parallel
remuneration structure for the same personnel. The lack of clarity of the role DPSM on
conditions of service for members is self-created as that is set out in the BDF Act as the
sole responsibility of the Defence Council.
30. The author suggest that by any measure, Botswana Defence Force could be one
of the few militaries with such a high salary disparities of personnel in the same or lower
rank which does not arguer well for exercise of command and control. This calls for
reforms in pay and structure which is inclusive and takes cognisance of the job of every
member.
DIRECTORATE OF PUBLIC SERVICE MANAGEMENT CONTROL
31. It can be postulated that it appears to be a historical omission that has been in
practice since the formation of the military by the DPSM to have by default been
determining the conditions of service of military members whereas that is the preserve of
the Defence Council. By extension the military command failed to exert that foothold on
‘uncivilising’ conditions of service from the control of public service to militarise the reward
system. In law, the determination of the responsibility is unambiguous as the drafters of
the BDF Act made a distinction that the Defence Council is mandated over the
superintendence of conditions of service for members of the military. The BDF Act
stipulates that the control and direction of the BDF vests in the Defence Council (section
8). Subject to the other provisions of the Act, the conditions of service for the BDF ought
to be determined by the Defence Council.
32. The dual management has impacted on retention in the BDF as the DPSM
and BDF are determining conditions of service from conflicting points. The DPSM
could be addressing the general public service in initiating a reward system, the
military is grappling with internal dynamics that are solely experienced in military
duty. It has become contentious for military personnel to easily make claims to
accrue what essentially are public service benefits and may have little relationship
with military working conditions in a quest to augment military pay. The complexity
is also internally generated where the military administration deliberately
discriminate on some pay and benefits prescribed by the DPSM.

33. The current case of military nurses who sought a determination from the
High Court on the non-payment of overtime allowance as stipulated by the DPSM
directive is a case for reference (Mmegi Newspaper, 2016). Such action has a
bearing on retention and morale of a group of employees. It is a creation of a
reward system that has over the years failed to provide a fair and equitable
compensation for personnel. The implementation of certain remuneration benefits
from DPSM whilst excluding others has led to disparities in earnings across rank,

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qualification, years of service and deployment. The remuneration also fails to

consider command and control which is the primary tenet of Botswana Defence
Force and any military elsewhere.
34. In the analysis of the involvement of DPSM in considering pay and benefits of
the military, the author disputes their involvement as a default that has had
negative impact on the total reward strategy of Botswana Defence Force. This is
a legal issue that is justified to advocate for that DPSM should reserve the
determination of conditions of service to the Defence Council as prescribed by law.
It is measured argument to suggest that DPSM has been acting outside its
jurisdiction as there no instrument that entrenches it with such powers.
REVIEW ON CONDITIONS OF SERVICE
35. With all the above evidence of the challenges of development an d retention
in the BDF, the 2013 consultancy on Conditions of Service for members is
expected to cover all the grey areas and set out a balanced remuneration structure
that will curb attrition and uncoordinated development of personnel (Daily News,
July, 2013). The report should inter-alia address pay disparities, command
responsibility, job profiling and personnel development. The long term solution
should be found to retain personnel by further considering the current market pay
in relation to BDF pay and benefits. “Today’s military compensation includes pay
and allowances; in-kind benefits like health care, education, shopping privileges,
and housing; and deferred benefits such as retired pay, retired health care, and
veterans benefits (Capt. PB Brenaan).” It is a salient point to note that the BDF
should by a certain degree close the differentials in earnings with that of the market
whilst also understanding that it can marginally compete with the private sector as
a public institution. The over-compensation of certain qualifications which are not
primary by nature of military duties is another area the consultancy should address
in order to rationalise job requirement versus pay and benefits.
36. The basic requirement for remuneration package should be considered.
They include income distribution through narrowing of inequalities, increasing the wages
of the lowest paid employees, protecting real wages (purchasing power), the concept of
equal pay for work of equal value. Even pay differentials based on differences in skills or
contribution are all related to the concept of equity. The other objective of the
consultancy report should be compensate employees who have displayed loyalty
in terms of long service.
Such differentials in pay and benefits based solely on the years of service can be
an incentive as a retention tool to hold on to experienced employees and as a way
of compensating those who become the last to leave the organisation. Military is
not a short term job and requires a sustained years of training coupled with on -job
training to build competencies of both staff and military leaders. As a way of
incentivising soldiers to stay for longer period in the military it could become
necessary that a pay structure linked to years of service be introduced as a way
of managing attrition in the middle years of service.

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37. The Consultancy report should further introspect the delinking of Botswana
Defence Force salary structure from the Public Service. This will should address
the issue of the peculiarity of military duty from the general public service in
compensating soldiers with the expected responsibilities and areas of o peration.
The military by nature takes some freedoms enjoyed by the civil staff and as such
consideration should be given to that aspect. The sense of pride and compensatory
attribute this will create should have a positive contribution as a retention stra tegy
with the BDF positioned as a special public institution. Pay represents by far the
most important and contentious element in the employment relationship, and is of
equal interest to the employer, employee and government (ILO Report, 2013).
38. The author believes that the consultancy should aim for an equitable and
fair structure in determining the new conditions of service in order to eliminate
unreasonable differentials between personnel of same rank or even lower. The
need for a pay structure that aligns itself to the nature of military duty will go a long
way in motivation and retention of military personnel. As a professional military the
basis of development and retention strategy should benchmarked by international
standards in order to reach desired state of readiness in personnel reward and
welfare.

CONCLUSIONS
39. In order to maintain discipline, the development and retention strategy should
emphasise on maintaining command and control to deal with issues of higher positions
in the hierarchy attracting lower incentives against high responsibilities (Para 20).
40. The challenges of remuneration and retention in Botswana Defence Force
are historically rooted and a deliberate process with implementable solutions need
to be initiated in order to maintain discipline, morale and as a retention tool for
personnel. The strengths and weakness of the current pay and benefits structure should
further be evaluated to meet the current personnel skills requirement and deployment to
enhance productivity and sense of organisational belonging. Military administration
should further avoid piece meal implementation of conditions of service as it can result in
distortion of the remuneration as varying circulars and directives on pay and benefits are
implemented in dissonance. This will curb disgruntlement of personnel who otherwise
currently believe the remuneration structure benefits a minority (Para 26).
41. The introduction and implementation of internally originated circulars on the
improvement of conditions of service should be sanctioned by the Defence Council to
avoid duplication and at times abate conflicting reward system to achieve equity and
consistency. This will lead to a proficient and fair pay and benefits by minimising
probability of exposing the system to unjustifiable differences. The development of
personnel requires consistent monitoring with a clear career path for every employee.
Retention could be achieved by development of individuals supported by an equitable
and fair pay structure that recognises command and control. In the end, this calls for a
robust and competitive remuneration structure that will made the Botswana Defence
Force an employee of choice. The echoes of military being a national service without

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equivalent compensatory rewards will leave Botswana Defence Force vulnerable to

attrition that otherwise is manageable within the resources available (Para 30).
42. The powers vested on the Defence Council on the superintendence of conditions
of service for military personnel should be exercised in the context of the BDF Act to close
on gaps currently interplaying as a consequence of the Directorate of Public Service
Management having appropriated such powers from the lawful authority. The legal
standing of Defence Council is not in dispute and will reduce ‘civilising’ conditions of
service for military personnel. It is a Command responsibility for the BDF to see that this
direction is pursued to move the BDF from the control of DPSM (Para 34).

RECOMMENDATIONS

43. Having seen how the remuneration challenges in the BDF and possible effects on
retention of personnel in general, the writer therefore recommends that:
a. Command and Control should be a basic determinant of pay and benefits
(Para 39).

b. BDF must come up with an equitable and fair new pay structure (Para 40).

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c. The Defence Council regain its powers to determine conditions of service

for military personnel (Para 42)

Gaborone --------------------------
______ June 17 1501

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