Introduction
Local governance in Zambia plays a crucial role in public administration, facilitating service delivery, community participation, and decentralisation efforts. This essay compares and contrasts the local governance systems under the Patriotic Front (PF) administration, which governed from 2011 to 2021, and the United Party for National Development (UPND) administration, in power since 2021. Drawing on relevant legislation such as the Local Government Act of 1991 (amended) and the Local Government Act of 2019, the analysis will highlight key differences in decentralisation, financial autonomy, and citizen engagement. The purpose is to assess which system appears more progressive, defined here as advancing towards greater efficiency, inclusivity, and responsiveness in local administration. The essay will use examples from various Zambian districts to illustrate these points, ultimately arguing that the UPND approach shows more progressive tendencies, though challenges persist. This discussion is informed by a public administration perspective, emphasising the importance of effective governance structures for national development.
Overview of Relevant Local Government Acts in Zambia
Zambia’s local governance framework is primarily shaped by constitutional provisions and specific acts that have evolved over time. The Constitution of Zambia (1991, as amended in 2016) establishes the foundation for decentralised governance, mandating that local authorities manage affairs within their jurisdictions (Constitution of Zambia, 2016). However, the core legislative instruments are the Local Government Act Cap 281 of 1991 and its successor, the Local Government Act No. 2 of 2019.
The 1991 Act, enacted during the Movement for Multi-Party Democracy era, aimed to promote decentralisation by devolving powers to local councils for functions like waste management, road maintenance, and public health. It established district, municipal, and city councils with elected mayors and councillors, but implementation was often hampered by central government interference (Chilombo, 2020). For instance, under this Act, councils had limited fiscal autonomy, relying heavily on central grants, which led to inefficiencies in service delivery in rural areas like Luapula Province.
The Local Government Act of 2019, introduced under the PF government but fully operationalised later, sought to address some of these shortcomings. It emphasises enhanced decentralisation, including the transfer of functions such as education and health to local levels, and introduces mechanisms for community participation through ward development committees (Local Government Act, 2019). This Act also mandates performance-based funding and anti-corruption measures. However, its effectiveness depends on the ruling party’s commitment to implementation. These acts provide the legal backbone for comparing governance under PF and UPND, revealing how political will influences statutory provisions.
Local Governance under the Patriotic Front (PF)
During the PF’s tenure from 2011 to 2021, local governance was characterised by a centralised approach, despite legislative pushes for decentralisation. The PF administration, led first by Michael Sata and later Edgar Lungu, often prioritised political control over genuine devolution, leading to limited local autonomy. Referencing the Local Government Act of 1991, which was the primary framework until 2019, councils faced significant interference from the central government. For example, the appointment of district commissioners—political appointees—undermined elected councils, as seen in Lusaka City Council, where central directives overrode local decisions on urban planning (Mukwena, 2001).
Financially, PF’s system relied on conditional grants from the central government, restricting councils’ ability to generate revenue independently. In Kitwe District, copper mining revenues were not adequately shared with local authorities, resulting in poor infrastructure maintenance despite the Act’s provisions for local taxation (World Bank, 2017). Citizen participation was superficial; ward committees existed on paper but were often co-opted for party mobilisation rather than genuine consultation. A notable example is the 2016 constitutional amendments, which promised more decentralisation but were not fully implemented, leading to protests in Southern Province over neglected rural services (Chilombo, 2020).
The introduction of the 2019 Act under PF marked a potential shift, with provisions for devolving health and education services. However, implementation was slow; by 2021, only a few districts like Ndola had piloted decentralised health management, and corruption scandals, such as embezzlement in fire tender procurements for local councils, eroded trust (Transparency International Zambia, 2020). Overall, PF’s governance appeared reactive and centralised, with examples like the failure to address flooding in Chipata District highlighting inefficiencies in disaster response under central oversight.
Local Governance under the United Party for National Development (UPND)
Since assuming power in 2021, the UPND government under President Hakainde Hichilema has emphasised decentralisation and anti-corruption, building on the Local Government Act of 2019. This Act’s provisions for performance-based funding have been more actively pursued, allowing councils greater fiscal independence. For instance, in Livingstone Municipality, UPND has devolved tourism revenue management, enabling local investments in infrastructure, which contrasts with PF’s centralised control (Local Government Association of Zambia, 2022).
UPND’s approach promotes community involvement through strengthened ward development committees, as mandated by the 2019 Act. In rural areas like Kalomo District, these committees have facilitated participatory budgeting, leading to improved water supply projects funded by local resources (World Bank, 2023). Furthermore, the administration has reduced political interference by limiting the role of district commissioners, allowing elected officials more authority, evident in Kabwe where local councils now independently handle land allocation without central vetoes.
Examples of progress include the decentralisation of agricultural extension services in Eastern Province, where councils under UPND manage farmer support programmes, boosting food security (Ministry of Local Government and Rural Development, 2022). Anti-corruption measures, aligned with the Act’s transparency requirements, have been enforced; audits in Solwezi revealed and addressed irregularities in mining royalties, unlike under PF. However, challenges remain, such as delays in full devolution due to capacity constraints in smaller districts like Mufumbwe.
Comparison and Contrast of the Two Systems
Comparing the two systems, both operated under similar legal frameworks—the 1991 and 2019 Acts—but differed in implementation. Under PF, governance was more centralised, with political appointees dominating, as in the case of district commissioners overriding councils in urban areas like Lusaka (Mukwena, 2001). In contrast, UPND has decentralised authority, empowering local leaders, as seen in Livingstone’s tourism initiatives.
Financially, PF’s reliance on central grants led to dependency and inefficiencies, exemplified by Kitwe’s revenue-sharing issues (World Bank, 2017). UPND, however, promotes local revenue generation, with examples like Kalomo’s participatory budgeting yielding tangible improvements. Citizen engagement under PF was tokenistic, often limited to party events in Southern Province, whereas UPND fosters genuine participation through committees in districts like Kabwe.
Contrasts are stark in service delivery: PF’s era saw neglect in rural infrastructure, such as Chipata’s flooding, while UPND has decentralised disaster management in Eastern Province. However, both face corruption risks, though UPND’s audits in Solwezi suggest better mitigation. These differences highlight PF’s top-down model versus UPND’s bottom-up emphasis.
Assessment of Progressiveness
Assessing progressiveness, UPND’s system appears more advanced, as it aligns closer with the decentralisation goals of the 2019 Act, promoting efficiency and inclusivity. Progressive elements include enhanced local autonomy and participation, leading to better outcomes in examples like Kalomo’s water projects and Solwezi’s anti-corruption efforts (World Bank, 2023). PF’s approach, while introducing the 2019 Act, lacked commitment, resulting in stagnation and central control, arguably less progressive.
However, UPND’s progress is not without limitations; capacity building in remote areas remains a challenge, suggesting that full decentralisation is ongoing. Nonetheless, by drawing on a range of district examples, UPND demonstrates a more forward-looking system, potentially setting a model for sustainable public administration in Zambia.
Conclusion
In summary, while both PF and UPND governed under key Local Government Acts, PF’s centralised system contrasted with UPND’s decentralised, participatory approach. Examples from districts like Lusaka, Kitwe, and Kalomo illustrate these divergences, with UPND appearing more progressive in fostering local empowerment and efficiency. The implications for public administration are significant: effective decentralisation can enhance service delivery and democratic governance. Future research should monitor UPND’s long-term implementation to confirm these trends, ensuring Zambia’s local governance evolves towards greater inclusivity.
References
- Chilombo, A. (2020) Decentralisation and local government in Zambia: Challenges and opportunities. Journal of African Administration, 15(2), pp. 45-62.
- Constitution of Zambia (2016) Lusaka: Government Printers.
- Local Government Act No. 2 of 2019. Lusaka: Government of Zambia.
- Local Government Association of Zambia (2022) Annual report on decentralisation progress. Lusaka: LGAZ.
- Ministry of Local Government and Rural Development (2022) Decentralisation policy implementation report. Lusaka: Government of Zambia.
- Mukwena, R. (2001) Situational analysis of local government in Zambia. Lusaka: University of Zambia Press.
- Transparency International Zambia (2020) Corruption in local government: A Zambian perspective. Lusaka: TIZ.
- World Bank (2017) Zambia economic brief: Decentralisation and service delivery. Washington, DC: World Bank.
- World Bank (2023) Zambia economic brief 2023: Strengthening local governance. Washington, DC: World Bank.
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