Written evidence submitted by the Commonwealth Local Government Forum (CLGF) and the Local Government Association of England and Wales (LGA)
A STRATEGY FOR LOCAL GOVERNMENT ENGAGEMENT WITH ZIMBABWE
Introduction
This paper seeks to set out a strategy for enhanced international engagement in support of local government and restoring essential local services and infrastructure in Zimbabwe. The envisaged measures are to be co-ordinated by the Commonwealth Local Government Forum, CLGF (among Commonwealth members) and the Local Government Association of England and Wales, LGA (international and within United Cities and Local Governments, notably European partners) working in partnership with the responsible national local government association in Zimbabwe, the Urban Councils Association of Zimbabwe, UCAZ. This work will involve local government staff and resources as well as international donor funding, both from bilateral and multilateral sources, including the World Bank's Multi Donor Trust Fund (MDTF).
At present urban and rural local government in Zimbabwe are subject to different acts and legislation. There currently exists a separate Association of Rural Districts of Zimbabwe and discussions are at an advanced stage with UCAZ to establish a united Zimbabwe Local Government Association (ZILGA). ZILGA is already operational in shadow form as the process develops.
Political Background: Reasons for Engagement
In contrast to the political difficulties at national level, local government in Zimbabwe received a democratic mandate at the 2008 local elections which resulted in widespread victories for the MDC. The party took power in almost all urban councils and many rural councils (traditionally controlled by ZANU-PF), often by overwhelming margins (e.g. 46 of 48 wards in Harare went to the MDC). There is therefore a strong case that local government in Zimbabwe should be viewed as separate from central government and be accorded proper legitimacy and support from donors in line with its democratic mandate so as to maintain the grass roots momentum for democratic change.
This argument is re-enforced by the fact that Zimbabwe local government has significant responsibilities for local infrastructure and delivery of essential services, including running local health clinics and providing primary healthcare, critical in combating infectious diseases such as cholera. As a result some of the humanitarian and related support by UNICEF and NGOs e.g. essential chemicals for water purification, has been made available to local government.
At national level a number of international donors including the EU, Swedish SIDA and Canadian CIDA, have already been providing funds to the Urban Councils Association of Zimbabwe, UCAZ. A key priority is training of councillors, given that some 90% of these were newly elected in 2008 and lack experience. UCAZ, with support from CLGF/LGA, is also seeking to access funds for local government from the MDTF.
International involvement to date
With the political and other difficulties in Zimbabwe in the period 2002-03, which resulted in Zimbabwe's suspension and subsequent departure from the Commonwealth in late 2003, many international local government partnerships, notably between councils in Zimbabwe and councils in Canada and the UK, were disrupted and discontinued.
The LGA and CLGF, have both maintained their links with UCAZ and continued a local democracy enhancement project initiated in mid 2003 with funding from the EU and the UK. This project was undertaken in cooperation with UN Habitat and involved support for UCAZ and a number of urban councils (both MDC and ZANU-PF); it sought to assess the effectiveness of council governance and service delivery structures and to develop change plans to deal with problems identified. The project included an innovative methodology of international local government peer reviews, involving the city managers and mayors of external partner councils. It was thereby also instrumental in maintaining Zimbabwe local government's international links. On its conclusion in 2008, the project received a highly positive evaluation and the EU and other donors subsequently allocated funding to implement the change plans and expand the work to other councils. Other local governments in the SADC region, for example in Zambia, are moreover keen to deploy the same methodology in their own countries.
In view of its existing commitment to Zimbabwe and in response to the democratic nature of the 2008 local elections, the CLGF Board agreed in late 2008 and again in 2009 to intensify support for local government in Zimbabwe and a number of CLGF missions visited the country, including a needs assessment team in February 2009 with experts from South Africa and the UK. This identified critical needs faced by local government in Zimbabwe, especially staff skills shortages at all levels- senior managerial, professional, skilled and semi-skilled. In response CLGF has accordingly sounded out several of its members, including in Australia, Canada, India and South Africa, about a coordinated programme of support. It has further consulted with a range of Harare-based international donors and stakeholders, including the ministers of local government and international cooperation of the Inclusive Government.
Discussions have also taken place within the global body representing local government, United Cities and Local Governments (UCLG) and it has been agreed that the LGA, working with CLGF, should take the lead in coordinating wider international support, notably with the Dutch and Swedish LGA's, which have maintained a strong interest in Zimbabwe
In July 2009, a Commonwealth roundtable was held in Johannesburg, attended by a range of local government, professional and civil society partners from Commonwealth bodies, including CLGF, SALGA and LGA, from inside Zimbabwe and from the SADC region. This agreed to develop a Commonwealth Special Programme for Zimbabwe, including in a wide range of social, economic, educational and other sectors. One of the suggestions is to provide fellowships for the Zimbabweans, especially those in South Africa and the UK, including work experience within local councils. This matter was raised with Commonwealth Heads of Government at their summit meeting in Trinidad in November 2009.
Core areas of support proposed
As a result of such activities and building on the various needs assessments undertaken, five core areas for short-to-medium term support have been identified for Zimbabwean local government;
1. Local Government input into the constitutional review process
Assistance/technical advice to UCAZ/ZILGA to ensure that local government's interest are incorporated in the current constitutional review process, drawing on relevant African and other international experience. A request for MDTF/other donor support is being sought and being followed up through DFID (UK) in Harare.
2. Councillor and staff training
In November 2009 CLGF/LGA provided materials/expertise for in-country councillor training using already earmarked EU/other funds. Thereafter it is planned to assist UCAZ/ZILGA develop an on-going leadership training and up-skilling/mentoring programme for both councillors and officials for which new funds will be required. Such training could potentially include courses and work placements undertaken in neighbouring countries, as well as involving relevant international exposure and interaction with peers from partner councils outside Zimbabwe.
3. Capacity-building for UCAZ/ZILGA
UCAZ/ZILGA has a key role in acting on behalf of local government in Zimbabwe. Capacity-building for UCAZ, aimed at strengthening its role as the national association of local government and providing advice on managing the merger leading to ZILGA is therefore a high priority. A three-year funding proposal has been submitted to the EU and some limited co-funding is available from VNG-Netherlands and other co-funding is being sought. It is expected that this will also involve providing UCAZ/ZILGA with the necessary capacity to make funding submissions to the MDTF on behalf of its members.
4. Council-to-council partnerships, targeted at meeting skills shortages and improving infrastructure and essential local services
As indicated above, needs assessments have shown critical shortages of council staff at all levels which is impacting on the ability of councils to deliver effective services and restore infrastructure. The LGA and CLGF are therefore meeting with UK Councils on 1 February to discuss ways in which local authorities in the UK can respond creatively and at little or no cost to the needs of their Zimbabwean counterparts. Some UK-Zimbabwe partnerships have continued in recent years, despite the difficulties and the LGA is keen to encourage the strengthening of such support where appropriate.
An immediate aim would be for partner councils to provide technical advice and if possible short term staff and other secondments to address critical skills shortages and improve infrastructure and service delivery. As necessary, and especially if MDTF and other donor support is available, this may also involve longer-term secondments of skilled volunteers and recently retired local government staff (e.g. engineers, planners, finance managers, city administrators).
Support could also involve partner councils taking on Zimbabweans (especially those in countries like South Africa and the UK) for short term work experience in specialised areas to give them professional exposure prior to taking on positions in councils back home. Thereafter, more medium term city-to-city partnership working on specific projects should be encouraged.
5. Community-based reconciliation
A key way to encourage political healing is for local councils to encourage community-based initiatives aimed at promoting reconciliation and community justice. In the short term this can be linked to the existing UCAZ EU funded 'City Diplomacy' programme which builds on the previous CLGF local democracy enhancement activity, drawing also on relevant experiences from other Commonwealth countries (e.g. Northern Ireland, Uganda, Sierra Leone, South Africa). A more expanded programme will also need to be developed and funded, possibly from MDTF resources.
Development Partner's Roundtable Meeting , Harare 18-19 February 2010
In association with UCAZ/ZILGA a meeting of Zimbabwean local government, their international local government partners and international donors will be held in Harare, 18-19 February 2010, at which both CLGF and LGA will be represented.
The aim of the event is to:
· Bring together ZILGA/UCAZ and existing and potential local government partners at technical levels to confirm priority areas of support and how partners can provide direct contributions, building on needs analysis undertaken in 2009. · Establish a joint mechanism for the effective coordination, management and implementation of assistance between ZILGA and its local government partners, based on the principles of aid effectiveness · Confirm existing and potential areas of cooperation and funding for the agreed priority areas of support between local government partners and interested development partners
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