A senior lecturer at Zimbabwe Open University has criticised the implementation of devolution in Zimbabwe, describing it as inconsistent, underfunded and lacking political will.
Tobias Guzura was speaking at the annual National Residents’ Summit hosted by the Bulawayo Progressive Residents Association (BPRA), held under the theme Rethinking and Reclaiming the Social Accountability Agenda for Improved Decentralised Service Delivery.
Zimbabwe’s Constitution, under Chapter 14, provides for the devolution of powers and responsibilities to provincial and metropolitan councils. Section 301 states that at least 5% of national revenues should be allocated to provinces and local authorities.
But Guzura said the disbursement of devolution funds through the national budget falls short of the constitutional intent.
“The funds are not coming timeously, the funds are not adequate, thus at the end of the day service delivery is affected,” he said.
He argued that the release of funds appears discretionary, with no clear timelines for when local authorities should expect transfers.
“The inter-governmental fiscal transfer is hazy. There are no timelines as to when local authorities should expect the funds. The Minister of Finance disburses them as and when they feel it is necessary,” he said.
Guzura also questioned the operational status of provincial and metropolitan councils elected in 2023, saying they have yet to convene or make decisions on development priorities.
“In the 2023 elections we elected provincial councillors. Where are they?” he asked.
“Have we heard of any single provincial or metropolitan council sitting, discussing issues, coming up with resolutions and deciding on their budgets and programmes? That clearly shows that the political will to implement devolution seems to be absent.”
He said it remains unclear who determines how devolution funds are allocated at provincial level if councils are not sitting.
“It’s the third year and councillors have never sat as provincial or metropolitan councillors,” he added.
Guzura criticised Statutory Instrument 170, saying it reflected a top-down approach and lacked grassroots consultation.
“The Statutory Instrument was designed without grassroots consultation. Standards were set by central government,” he said.
While some have cited infrastructure development as evidence of progress, Mr Guzura dismissed this as insufficient, particularly in Matabeleland.
“We are proud as a nation that drills and erects boreholes in urban areas in the 21st Century,” he said, questioning whether such projects reflected meaningful devolution.
He warned that the operating space for local authorities has become more constrained since the adoption of the 2013 Constitution.
“The political environment is no longer permissive of ingenuity by our local authorities. They have no space to be innovative and bring out ideas,” he said.
Guzura identified the absence of enabling legislation as a major obstacle to implementation.
“The Constitution is there, but when implementation gets to the ground, we need Acts of Parliament. You cannot implement directly from the Constitution,” he said.
He argued that without legislation defining operational parameters and responsibilities, provincial councils cannot function effectively.
He also said heavy reliance on central government transfers continues to weaken local authorities, many of which are struggling financially.
“We are waiting for devolution funds to do anything because there is limited revenue-generating capacity at local level. Many local authorities are actually in the red,” he said.
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