IMPLEMENTATION OF THE NATIONAL DECENTRALISATION

SALIM KAUNDA - HEAD OF RESEARCH AND ANALYSIS

WEDNESDAY 31

JANUARY 2018

COMMITTEE ON LOCAL GOVERNANCE, HOUSING AND CHIEFS AFFAIRS

PARLIAMENT LUSAKA

IMPLEMENTATION OF THE NATIONAL

DECENTRALISATION POLICY IN ZAMBIA

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IMPLEMENTATION OF THE NATIONAL DECENTRALISATION POLICY IN ZAMBIA

1. The regulatory and legal framework governing the implementation of the

decentralisation policy and whether or not the frameworks are adequate

n Since independence, Zambia has been committed to the principle of

decentralisation as a primary vehicle for attaining the vision of a democratic

and developmental state.

Decentralisation

Secretariat

Figure 1: Common Aims of Decentralisation

DECENTRALISATION

and accountability

Increased community

participation

Improved service

delivery at lower

implementation levels

Source: Adapted by Policy Monitoring and Research Centre (PMRC), 2014

Introduction

QUESTION 1

POLICY MONITORING AND RESEARCH CENTRE

IMPLEMENTATION OF THE NATIONAL DECENTRALISATION POLICY IN ZAMBIA

n Government has undertaken substantial preparatory work to

facilitate the implementation of the decentralisation process.

n This work has included:

a) Establishing a clear policy position on decentralisation,

b) Sensitizing the public and

c) Setting up of implementation structures at all levels, - has laid

a firm foundation for implementation of the policy.

IMPLEMENTATION OF THE NATIONAL DECENTRALISATION POLICY IN ZAMBIA

n Decentralisation in Zambia is backed by various key pieces

of legislation, regulation and Institutions as depicted below.

DECENTRALISATION

C) DECENTRALISATION

POLICY

B) DECENTRALISATION

SECRETARIAT

A) CONSTITUTIONAL

BACKING

D) SEVENTH NATIONAL

DEVELOPMENT PLAN

E) CIRCULAR NO 10

OF 2014

F) NATIONAL BUDGET

POLICY MONITORING AND RESEARCH CENTRE

IMPLEMENTATION OF THE NATIONAL DECENTRALISATION POLICY IN ZAMBIA

National Constitution

n The principle of devolution is strengthened by the Constitution of

Zambia (Amendment) Act No. 2 of 2016, which provides for the system

of local government based on democratically elected councils.

Decentralisation Secretariat

n The government through Cabinet Oice (Decentralisation Secretariat)

is developing systems to ensure eective nationwide supervision and

co-ordination programme to facilitate smooth implementation of the

decentralisation process in general and the Circular No. 10 of 2014 in

particular.

The Decentralisation Policy 2013

n The Decentralisation policy is a guide to transference of authority,

functions and responsibilities to lower levels of governance.

Circular No 10 of 2014

n The Circular served as notice of Government’s intention to commence

the devolution process, outlined milestones achieved, implementation

modalities and phasing of the devolution process. It also provided

direction on the institutional framework for the decentralised system of

government at all levels

POLICY MONITORING AND RESEARCH CENTRE

IMPLEMENTATION OF THE NATIONAL DECENTRALISATION POLICY IN ZAMBIA

Seventh National Development Plan (2017- 2021)

n It is Important to note that Fih National Development Plan (FNDP) and

Sixth National Development Plan (SNDP) were aected by inadequate

implementation of the decentralisation policy.

n The Decentralization policy provides the principles of implementation of

the 7NDP and therefore full implementation of the decentralisation policy

is a critical condition of success for the implementation of the 7NDP.

The 2018 National Budget

n In the 2018 National Budget, , Government commits to ensuring that

finances required to provide front-line public services and infrastructure

projects at provincial and district level are deconcentrated to provincial

administration.

*Therefore - The regulatory and legal framework governing the implementation

of the decentralisation policy is visible and adequate to some extent. The main

challenge is adequate implementation.

POLICY MONITORING AND RESEARCH CENTRE

IMPLEMENTATION OF THE NATIONAL DECENTRALISATION POLICY IN ZAMBIA

n Assessment of the progress that has been made towards the completion of the

devolution of the functions to the councils and whether or not the decentralisation

process is on course

Source: Decentralisation Secretariat

QUESTION 2

Process and Timelines for Implementation

of Decentralisation in Zambia

POLICY MONITORING AND RESEARCH CENTRE

IMPLEMENTATION OF THE NATIONAL DECENTRALISATION POLICY IN ZAMBIA

n Although the policy states that Government will realign functions

and linkages of central, provincial, district and sub-district governance

structures with matching resources, the reality of this has not been seen thus far.

n There have also been delays in the implementation of the policy from the 90’s

to date. These delays need to be investigated. (In the 70s Dan Munkombwe was

minister of decentralisation)

n The creation of several new district councils and one province goes to demonstrate

Government’s commitment to deliver quality services that are easily accessible to

the people. The number of districts in Zambia increased from 72 in 2012 to 103

in 2014. However, this is not a guarantee to successful decentralisation for

increased community participation and improved service delivery. In most

cases, the districts have been created but not given power or authority for

decision-making and resource mobilization.

n Establishment of Ward Development Committees (WDCs)

POLICY MONITORING AND RESEARCH CENTRE

IMPLEMENTATION OF THE NATIONAL DECENTRALISATION POLICY IN ZAMBIA

3. Whether or not the councils have the capacity to eectively preform the

devolved functions.This should be clearly elaborated

n We are aware that Government is planning specifically designed training courses

for Council stas to prepare for the new functions. These will be organised by the

Ministry of Local Government and Housing as well as other training providers such

as National Institute for Public Administration or the University of Zambia.

Local Council Government

POLICY MONITORING AND RESEARCH CENTRE

IMPLEMENTATION OF THE NATIONAL DECENTRALISATION POLICY IN ZAMBIA

PMRC conducted a mini survey with 7 Councils randomly selected and the results

are displayed in the matrix attached.

Local Council Survey Question

Answers & Results

1. Does the council have copies of the

Decentralisation Policy?

n100% Response

2. As a council, do you have clear

understanding of what your role is in

the successful implementation of the

decentralisation policy?

nThe majority of Councils have

understanding of the decentralisation

policy as well as its parameters of

implementation.

n Some lower level sta are just aware of

the Policy and not details and provisions

nNo deliberate move has been put

in place by councils to sensitize the

lower level sta members on the

decentralisation policy.

3. Have any functions been devolved to

this council?

About 75% responded with Airmative

POLICY MONITORING AND RESEARCH CENTRE

IMPLEMENTATION OF THE NATIONAL DECENTRALISATION POLICY IN ZAMBIA

Local Council Survey Question

Answers & Results

4. If yes, what powers have been

devolved to you as a council from the

central Government?

nManaging the devolved functions in

terms of administration and reporting

nThe provisional Administration oice

will take charge of all government

projects in 2018 that is contracting the

contractors

nOthers listed Early Education, Social

welfare

nCouncil sta are participating in more

planning meetings with the Ministry of

Local Government

5. Does your council have the capacity

to eectively perform the devolved

functions (scale of 1 to 5)

n Given the resources that are finances,

the councils are able to carry out their

new functions

nThe Average score was 3.7%

IMPLEMENTATION OF THE NATIONAL DECENTRALISATION POLICY IN ZAMBIA

Local Council Survey Question

Answers & Results

6. If yes, have the devolved new

functions been accompanied by

capacity building / adequate Finances?

nThere is Inadequate Financing

nThere is Inadequate Capacity Building

7. What challenges are you facing as a

council in the implementation of the de-

centralisation policy

n Resistance

nStrain on council financial resources

nDual reporting system

nThe presence of the District

Commissioners (DC) oice-

nDual reporting system- this system

is making it diicult for the councils to

completely carry out their roles because

the devolved departments report to both

the councils and the provincial heads.

nThe partial devolution of just

administrative roles and not fiscal

decentralization is posing a challenge

to the councils since they have limited

funds to run the planned projects of the

devolved departments.

IMPLEMENTATION OF THE NATIONAL DECENTRALISATION POLICY IN ZAMBIA

Local Council Survey Question

Answers & Results

7. What challenges are you facing as a

council in the implementation of the de-

centralisation policy

n One of the challenges that local

authorities are facing is the inactiveness

of the decentralization secretariat.

There is more of decentralization

directives from cabinet and less from the

secretariat.

nLack of a clear road map concerning

decentralisation policy. Coordination

in terms of budgeting, there was no

directive in terms of budgets which were

submitted but not followed

8. What needs to be put in place to ensure

smooth implementation of the decen-

tralisation policy?

nThere is need to harmonize the

provisions of the policy in relation

to fiscal decentralization, reporting

channels of the devolved departments

and hiring of sta for devolved

departments. There is need for more

resources to be channelled to the council

in order for them to implement planned

projects and provide oice space for the

devolved departments.

IMPLEMENTATION OF THE NATIONAL DECENTRALISATION POLICY IN ZAMBIA

Local Council Survey Question

Answers & Results

8. What needs to be put in place to en-

sure smooth implementation of the de-

centralisation policy?

nThere is need for the local government

commission to distribute the revised

realization of decentralisation.

n There is need for the decentralization

secretariat to build capacity of the

councils in their eorts to implement

the decentralization policy.

ni. The local commission should quickly

oicially transfer of sta for devolved

departments to local authorities in

writing so that the sta might start to

report to the local authorities fully.

nii.

for

devolved funds in order for the local

authorities to implement planned

activities.

niii. The local government commission

should quickly put mechanisms to

resolve the misunderstanding of roles

involving the devolved departments

between the local authorities and the

POLICY MONITORING AND RESEARCH CENTRE

IMPLEMENTATION OF THE NATIONAL DECENTRALISATION POLICY IN ZAMBIA

Known challenges faced in the implementation of the Decentralisation Policy

According to engagements with the Decentralisation Secretariat, some of the major

challenges faced in the implementation of the decentralisation policy include the

following;

1. The Context is which the policy is being implemented

n Strong overarching legacy of centralisation (resistance) aecting institutions and

mind-sets at all levels. In some cases and locations, there is a general resistance

or reluctance to change and this is evident in the lack of willingness by various

oicers to be involved in the decentralization process.

n Widely held poor image of Councils in Human Resource Management (HRM) and

service delivery. Councils across the country have a poor image of poor service

delivery,

2. Complexity

n Decentralisation reform covers a wide scope and depth of functions and actors as

already stated. Interrelationships between objectives and outcomes typically are

not immediately visible to most actors.

POLICY MONITORING AND RESEARCH CENTRE

IMPLEMENTATION OF THE NATIONAL DECENTRALISATION POLICY IN ZAMBIA

3. Programme management

n Extensiveness and depth of scope posses substantial programme management

challenge for limited DS structure

4. Inadequate financing and insuicient capacity building.

5. Limited coordinated eorts to implement the policy.

n Lack of a clear road map concerning decentralisation policy. Coordination in terms

of budgeting, there was no directive in terms of budgets which were submitted but

not followed.

Local Council Government

POLICY MONITORING AND RESEARCH CENTRE

IMPLEMENTATION OF THE NATIONAL DECENTRALISATION POLICY IN ZAMBIA

Recommendations

n PMRC airms that with eective implementation, well-defined responsibilities,

definite functions, and distinct lines of authority and communication, Government

may attain the set objectives of increased community participation and improved

service delivery through decentralisation.

Therefore Government must ;

1. Strengthen the M&E mechanisms set to monitor the eectiveness of the policy

progressively.

2. Reinforce institutional and individual capacity building for exceptional

performance.

3. Review objectives, strategies and implementation plan of th e policy

4. Ensure financial resources are available for activities and functions to be

carried out while reinforcing and building capacity for revenue collection.

(Broaden the revenue collection base for councils)

Unlocking Zambia's Potential

Response to this presentation can be sent to:

info@pmrczambia.net

Policy Monitoring and Research Centre (PMRC)

Plot No. 36c Sable Road, Kabulonga, Lusaka, Zambia

Private Bag KL 10

Tel: +260 211 269 717 | +260 979 015 660

www.pmrczambia.com

THANK YOU

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