Governance became a buzz word in Zimbabwe’s civil society as it aptly captured the citizens, aspiration for a more democratic society, peaceful political environment, respect of human rights and above all improved economic livelihoods for the majority. While the deficits in Zimbabwe’s governance undoubtedly trace to the colonial or even pre-colonial systems of administration there is a lot that a free Zimbabwe could have done to improve governance and expand citizens’ access to decision making or influence policies. Indeed the constitutional reform was central in the democratization agenda whose primary focus was to address governance issues.

Masakhaneni Projects Trust (MPT) work and advocacy activities are mainly centred on governance; be it peace building, gender advocacy, improved community livelihoods or programmes on constitutionalism. With its focus on community level advocacy, MPT dwells mainly at local government governance issues.

Focusing on local government

There are many advantages of focussing on local government but for Masakhaneni it is the appropriate arena for local communities’ participation. Normally, it is the sub-national administrative institutions and systems which effectively determine local community governance, especially in rural communities where MPT concentrates its programming. Ordinary people interface with government on perhaps daily basis at local government level since it is that sphere of governance responsible for services delivery. For example, rural infrastructure like roads, clinics, some schools and even access to water sources and grazing areas is largely managed by local authorities.

Over the years, MPT has developed expertise and accumulated experience in local government administrative and processes issues. Its programming is based on this accumulated evidence of problems in structures of governance and areas that are drivers of community conflict or those practices that compromise food security and livelihoods, for example.

Most importantly are the constitutional provisions on both local government and traditional leadership which were previously governed through Acts of Parliament, hence rendering these institutions relatively weak, whereas in the 2013 Constitution both are provided for in the basic law. Nonetheless, there is still general lack of awareness of the constitution and in particular the provisions on local government and traditional leaders. MPT believes that local communities will continue to be short-changed by local authorities unless the former’s level of constitutional awareness is raised to the level they hold duty bearers accountable.

Community Participation and Governance

Our understanding of governance is that of a participatory and inclusive process, especially in key decision making like development plans and budgets. Actually, governance as a concept refers to ‘a set of rules, norms, procedures, practices etc. that determine who exercises power, for what purpose, and how this power is shared and eventually, who makes decisions for what and for whom and indeed, how these decisions are made (see Khan, 2005). In civil society organizations we tend to go beyond just governance but specifically to good governance. Therefore, in the Zimbabwean context the emphasis has been on good governance whose attributes include but not limited to “responsiveness, inclusiveness, participation, integrity, accountability and fairness” (see Graham, et al, 2003).

To achieve inclusivity and community participation therefore local communities should either directly or indirectly be involved in decision making in addition to being represented by elected representatives like councillors and legislators. Interestingly, the Constitution of Zimbabwe guarantees these rights but currently most communities do not enjoy these rights as they are not aware of them, hence the advocacy by MPT on constitutional awareness and governance issues.

It is our belief that once communities are engaged and can hold duty bearers accountable for their developmental plans, budgets, policies and services delivery then communities could achieve people-oriented and sustainable development. A common thread running across various communities in particular in the Matabeleland region is poverty manifesting itself in inadequate public infrastructure, food insecurity and general unemployment of the youths especially. Community development and by extension peace building and healing are possible where communities are participating in their governance.

Local Governance Challenges

Although local government is generally closer to communities and is the most appropriate arena to cultivate and mainstream citizen participation in decision making, this is not happening yet. Even public consultations on local council budgets are merely ritualistic as community engagement is not just low but also community views hardly find space in the bureaucratic process. Indeed local government offers immediate public services and hence should be more accessible and inclusive of citizen views, interests and decisions. For a number of reasons this is not happening in the manner it should ideally be.

The main challenge is of course the deficits in community involvement in decision making. This is the case in spite of progressive improvements in local government legislation culminating in the constitutional reform in 2013. Perhaps it could because the very concept of local governance in Zimbabwe remains premised on a colonially structured view that created weak and economically subservient economic role of local authorities towards central government. The new constitutional dispensation that strengthens local government is in a way undermined by tradition and old perceptions and practices. For example, almost five years after the new constitution, devolution of power remains on paper as re-centralization of local government is taking place.

Closely linked to the previously mentioned issue is the financial insecurity of local authorities. Still local councils both urban and rural lack financial independence as budgets must be approved by the relevant Minister. The same applies to key personnel appointments. It has been alleged that central government has manipulated that leverage to weaken and control local authorities to the detriment of development and community participation. Since by colonial design the local authorities were never meant to enjoy economic autonomy and wealth, the continued underfunding of local government and impoverishing of residents is ingrained in the system. But on their part, most local councils have engaged in corrupt practices further compromising services delivery.

Areas of Focus in Advocacy Work

Evidence from MPT interaction with various communities has taught us of a number of potential conflict areas in governance. For example, there are some communities that had for a long time experienced conflict of roles and hence thwarting governance as people generally misunderstood the roles of elected councillors and traditional leadership like chiefs, headmen or village heads, for example. Also, a number of people seemed not to appreciate the inclusive and participatory nature of local councils through VIDCOs and WARDCOs. It was and still is imperative for MPT through public meetings, workshops and focus group discussions to raise the level of awareness on these governance structures and how they should function ideally.

Perhaps some of the challenges shall persist until certain political stakeholders desist from politicizing traditional leadership roles and Chapter 14 of the Constitution is fully implemented. Meanwhile it suffices for MPT to raise levels of community awareness on governance issue both at local government level and broadly especially civic education on the Bill of Rights. Collectively all these instruments could nurture and strengthen governance, democracy and community participation in decision making which in itself is a hallmark of good governance.