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Governance and Public Services Delivery in Zambia Governance and Public Services Delivery in Zambia OSSREA Documentation Centre P. O. Box 31971 Addis Ababa, Ethiopia GOVERNANCE AND PUBLIC SERVICES DELIVERY IN ZAMBIA Editors: Jotham C. Momba Mwamba D. Kalabula © Ossrea 2007 Published by UNZA Press for Ossrea. Zambia Chapter ISBN 9982-03-045-0 CONTENTS Preamble Jotham C. Momba Zambia's Electoral System in Perspective 5 Laurent C.W. Kaela Citizenship, Democracy and Politics of Exclusion: The Challenges Facing the Mwanawasa's 'New Deal' Government 19 Neo Simutanyi Rolling Stones: ACrisis for Democracy 26 Friday E. Mulenga Enhancing Local Government: Lessons From Bilateral Cooperation 36 Peter K. Lolojih Administrative Reforms and the Search for Efficient Delivery of Public Service: the Challenges Facing Health and Educational Boards 44 Moderate M. Momba Local Governance and Urban Economies: What Role for Urban Markets in Zambia 53 Wilma S. Nchito The Impact of Privatisation in Resuscitating Zambia's Economy 62 Kamini Krishna Economic Development in Relation to Poverty and Social Services Delivery 69 Davidson Chilipamushi Financial Mismanagement in the Zambian Public Sector: The Case of Presidential Housing Initiative 81 Nessan Ronan The Impact of Cost Sharing on Demand for Basic Education in Zambia 90 Charles M. Subulwa Cooperating Partners and the Delivery of Educational Services to Children with Special Educational Needs in Zambia: ESSPIII Case Study 99 Darlington M. Kalabula Preamble Jotham C. Momba University of Zambia Introduction The papers constituting the chapters for this book came out of a number of local workshops that have been held by the Zambia Chapter of the Organisation for Social Science Research for Southern and Eastern Africa (OSSREA). The focus of the book is on issues of governance and provision of public services in Zambia. The significance of this focus is against the backcloth of the high levels of poor delivery of public services in most African countries. The literature attributes this state of affairs to several factors. Among these are issues related to poor governance, low level of economic development, which in turn could be attributed to poor management of the economy. This, therefore, means that the political and economic environments are important in understanding the role of the state in the provision of public services. These chapters, therefore, deal with the provision of public services in Zambia and the context of the political and economic environment in the provision of public services in the country. Political Environment of Service Delivery Governance as Gumisai Mutume observed would refer to the 'various processes relating to leadership, such as policy-making, transparency, the protection of human rights, and among the public, private and civil sectors in determining how power is exercised.' The nature of governance does to a great extent have an impact on the development prospects of a country. Hence literature on service delivery makes a clear link between governance and service delivery in the sense that an important link exists between the way a country is governed and its prospects for economic development. For example. Wassib Harrib. President of the Arab Centre for the Rule of Law and Integrity based in Beirut, argues that democracy is support of development in the sense that it allows citizens to participate in democratic life and in the process allows them access to information concerning government policies and by so doing can hold their government accountable for achieving set goals and 'an accountable government is more likely to stay course in pursuit of these goals.1 It is therefore critical to understand the nature of governance in order to have full appreciation in assessing the nature of service delivery in Zambia. Thus the first three chapters, by Laurent C. W. Kaela, Neo Simutanyi and Friday E. Mulenga deal with the political environment specifically with the issue of democratic governance. Since the collapse of the Cold War, issues of governance have been given great promise in affecting the ability of the African state. The chapter by Kaela deals with issues related to the electoral system. Issues relating to elections have generated a great deal of political conflict in Zambia. The past two post-one party elections, in 1996 and 2001 were disputed and challenged in the courts. It is in this context that the issue of elections becomes very important in understanding problems of governance in Zambia. Kaela's chapter therefore is to discuss the most fair electoral system. He discusses and compares the current electoral system with the proportional representative system. Similarly the chapter by Mulenga is an attempt to show that the democratic political culture among political players is still low. One of the major factors about the nature of Zambian politics is the absence of strong ideological divide to provide a basis on 2 OSSREA - Zambia Chapter which different political parties are formed. This has led to a situation where politicians' choices of political parties is based on the chances that a political party has to form a government. Hence as Mulenga has appropriately observed, political opportunism has been a major characteristic of Zambian politicians who keep shifting from one political party to another. The chapter by Simutanyi focuses on issues of citizenship. Simutanyi's central argument in this chapter is that while the issues of democratic participation and human rights have emerged as fundamental aspects of African politics, the process of democratisation has not, however, resolved the issue of the right of citizenship. He argues that African governments, including Zambia have tended to use citizenship against opponents and members of national minorities. Decentralisation of State Institutions and Public Service Delivery Another aspect of attempts at improving the quality of governance with the great relevance for service delivery has been the various attempts at strengthening the capacity of the state institutions to deliver public services through administrative reforms. The reforms have been undertaken to enhance the capacity of state to deliver services efficiently. Administrative reforms have been attempted in several African states to improve the efficiency and capacity of the state institutions to provide public services. In Zambia the post-one party regime came up with an administrative reform programme, an important component of which was the decentralisation of structures and services. Decentralisation as a reform programme is in line with the growing worldwide sentiments towards greater devolution. Writing for the European Centre for Development Policy Management (ECDPM), Jean Bossuyt and Jeremy Gould argue that 'decentralisation holds great potential for development, in particular poverty reduction as it creates 'space' for people to effectively participate in the decision making process'. This in turn makes the state institutions more likely to become more responsive and accountable to the needs of the people.2 Similarly, John Harries argues that the'more governmental authority is devolved to local bodies, the better informed government will be about the specifics of local circumstances, the more accountable it will be because it will be vulnerable to citizens' pressure'.3 The chapters by Peter Lolojih and Moderate Momba deal with the issue of decentralisation. The chapter by Lolojih looks at the several attempts made at reforming the local government authorities in order to make them more responsive to local need, from as early as in 1965, one year after Zambia became a sovereign state to 1991, and the latest intervention in trying to make the local authorities effective in public service delivery. Moderate Momba specifically focuses on health and Boards that were created with the coming in of the Chiluba regime in line with the decentralisation policy. This was part of the overall Public Service Reform Programme (PSRP). In a way, the chapter by Momba provides a useful link between the analysis of the administrative and political structures and processes and the impact of the state institutions to provide services to the citizenry. On the other hand, Wilma Nchito's chapter delves into an important economic activity of local authorities in Zambia. Running council markets is an important role of local authorities. One of the functions of councils is to provide market services. This also serves as a source of funds for councils. Wilma discusses the problems that these markets face. The Economic Environment and Public Service Delivery As alluded to earlier, economic development is an important precondition for a country to provide public services. In fact, it has been argued that economic development is an important precondition for the ability of any state to provide public services. As the literature on Jotham C. Momba, Preamble 3 economic development indicates, economic development involves economic growth that is accompanied by fundamental structural changes in the economy. Structural changes include among others an increase in the standard of living of the majority of citizens. Thus as Malcolm Gilles and others argue, economic growth is necessary because it is economic growth that can act as a precondition for structural changes in the economy. Without economic growth, there would be no resources to provide these public services4. Yet the major problem that has faced most African countries has been slow or no economic growth taking place. This subsequently has adversely affected the
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