Written evidence submitted by Action for Southern Africa (ACTSA)

 

January 2010

 

1. ACTSA welcomes the opportunity to contribute to the inquiry by the International Development Committee into the assistance provided to Zimbabwe by the UK's Department for International Development (DFID).

 

2. ACTSA has long campaigned for democracy and development for Zimbabwe. ACTSA is the successor organisation to the Anti Apartheid Movement which campaigned actively in the UK for Zimbabwe to achieve democracy and liberation. ACTSA liaises closely with civil society organisations in Zimbabwe, as well as those active on Zimbabwe in Britain and Europe. ACTSA works in particular with the trade union movement in Britain, Zimbabwe and South Africa on Zimbabwe.

 

3. The situation in Zimbabwe did not simply arise. The problems the country now faces are rooted in the policies and actions of the Mugabe led government, failures of the UK Government, international institutions and the complicated history of Zimbabwe. To be able to move forward with effective support for the people of Zimbabwe we need to understand why Zimbabwe is in the social, political and economic crisis that it is today.

 

4. The Lancaster House agreement paved the way for democratic elections, but did little to help the new Zimbabwean Government redress the gross economic and social inequalities that resulted from white minority rule. Crucially it entrenched property rights for ten years and laid down that land could only be compulsorily acquired if it was under-utilised and if 'adequate compensation' was paid. All other land exchanges had to take place on a 'willing seller, willing buyer' basis.

 

5. Zimbabwe did however make significant strides in social provision and economic development in the period after independence. Between 1980 and 1990, real spending on health more than doubled, on primary education it nearly tripled, infant mortality fell from 88 to 61 per 1000 and literacy levels increased dramatically. These were great achievements for newly independent Zimbabwe. Set against this however there are the massacres in Matabeleland in the 1980s. Some attribute these to the desire of Zanu PF to eliminate all opposition; others see them in part as a response to the threat of destabilisation by the apartheid regime of South Africa.

 

6. In 1990 the World Bank imposed a Structural Adjustment Programme on Zimbabwe which eroded its social and economic gains and led to a popular mobilisation against the Government led by the trade unions. Despite the sweeping policy prescriptions urged by the IMF and World Bank, redistribution of land was not advocated.

 

7. The Government of Zimbabwe/Zanu PF's response to growing popular opposition has been two-pronged: Increasing repression of the democracy movement and a dramatic escalation of anti-imperialist rhetoric aimed at re-evoking the aspirations of the liberation struggle. This has led to the instruments of the state, police, army, civil service, judiciary all being required to serve the interests of Zanu PF as "the party of liberation" and those opposing it being labelled as serving the forces of imperialism.

 

8. The Global Political Agreement (GPA) brokered by South Africa led to the formation of an Inclusive Government in February 2009. This government is marked by contestation and mistrust between the political parties. It has led though to an improvement in the economic situation and although there continue to be human rights violations these are not of the scale of 2008. There has also been some improvement in health and education provision.

 

9. A key challenge now is to assist Zimbabwe to recover; to rebuild its shattered economy, its health and education systems, agriculture and in tandem to support the establishment of effective functioning democracy. The task is to be both developmental and political.

ACTSA's views on the specific issues raised in the IDG inquiry

How DFID works with other donors, multilateral agencies and NGOs to deliver assistance:

10. DFID has played a key role in ensuring a reasonably effective response to the humanitarian crisis. It is seeking to play a key role in stabilising the Zimbabwe economy and support economic recovery. It recognises the need to support democratic renewal but this aspect of its Zimbabwe programme seems less developed. ACTSA believes DFID needs to consider both what it does and how it does it recognising every act in Zimbabwe is likely to be considered a political act. ACTSA supports working in collaboration with other donors, multilateral agencies and ngos. There is a need to avoid duplication and to promote coordination and lesson learning. There is a clear need to ensure efficient delivery of aid. There is a risk however that such an approach can be perceived as donors coming together to determine what should done; that the donors have formed a power bloc and impose "solutions" and priorities in the guise of advice. It is unclear how DFID seeks to influence the stance of multilateral agencies. DFID does engage in dialogue with ngos both local and international in Zimbabwe but what of wider civil society? For example, work with the trade union movement. ACTSA believes DFID in Zimbabwe should seek to have a stronger relationship with the independent trade union movement, led and coordinated by the Zimbabwe Congress of Trade Unions (ZCTU). There is also the sensitive issue of whether work with civil society is largely with international ngos with local and regional civil society groups relatively marginal. It is unclear who informs and influences DFID policy and priorities on Zimbabwe.

 

11. DFID should not support agencies such as the IMF and World Bank imposing solutions on Zimbabwe. DFID should seek to use the influence it undoubtedly has with the IMF and World Bank to ensure their policy toward Zimbabwe is based on a commitment to support poverty reduction. To further transparency and accountability DFID should publish its advice and requests to the IMF and World Bank on Zimbabwe.

 

DFID's contribution to the provision of humanitarian aid:

12. ACTSA believes that DFID in Zimbabwe has in challenging circumstances supported an informed and effective humanitarian response. ACTSA believes the provision of humanitarian aid must be based on meeting need and not party political affiliation. DFID and others must be robust in asking the UN system to strongly communicate this to the Government and political parties in Zimbabwe.

 

13. The humanitarian situation is currently easing although three million may still require food assistance. Humanitarian assistance should avoid seeing Zimbabweans as passive recipients of aid. It should seek to build up self reliance, community organisation and responsibility.

 

The effectiveness of DFID's support for delivery of basic services:

14. DFID is right to be increasing its support for the restoration of basic services. ACTSA recommends this be done through publicly accountable means, through support for public sector provision and it be done in ways that strengthen those working for the restoration of democracy and respect for human rights. ACTSA is concerned that there may be moves from some donors to support the privatisation of basic and public services in Zimbabwe. This could be experienced by people including the Government of Zimbabwe as aid conditionality. Based on the views expressed to us ACTSA does not support the privatisation of public services in Zimbabwe.

 

15. ACTSA is supportive of the view expressed by the Zimbabwe Congress of Trade Unions (ZCTU) that international assistance should be provided to the Government of Zimbabwe to improve service delivery. We concur with the view of ZCTU that such support should be provided on a transparent, accountable basis and that it must be clearly demonstrated that funds are spent on the purposes provided.

 

The impact of DFID's funding for health and HIV, and its support for orphans and vulnerable children:

16. ACTSA notes that Zimbabwe has reported the greatest decline in southern Africa of the percentage of population who are estimated to be HIV positive. If true, this is to be celebrated. Given the context of Zimbabwe there is some doubt on this estimate. ACTSA welcomes a focus by DFID on women and health and supports calls for more support in this area. We are concerned by increasing violence toward women in Zimbabwe including rape with impunity and urge DFID request the UN and others take up this urgently to reduce and prevent such attacks (see for example the recent report by Aids Free World 'Electing to Rape: Sexual Terror in Mugabe's Zimbabwe').

17. In ACTSA's view leadership is required at all levels on HIV/AIDS which challenges stigma and discrimination and develops both policy and an approach which is inclusive. There must be an emphasis on prevention, on sensitive and appropriate support for people living with AIDS (PLWA) and support for people affected by HIV/AIDS.

18. ACTSA believes the most effective way of providing for the safety and welfare of orphans and vulnerable children is through an integrated approach supporting the parents' and/or carers' or communities efforts to look after them. DFID should also consider support for the elderly who may now have child care responsibility. DFID should continue its support for the multi-donor Programme for Orphans and Vulnerable Children through UNICEF and ngos. This programme should include social and psychological support for those affected.

19. ACTSA calls for even greater efforts to reduce, indeed eliminate mother to child transmission of HIV and requests DFID give this higher priority and encourage such as UNDP, Unifem and UNICEF to do the same.

20. ACTSA and ZCTU have co-operated in providing sanitary protection for Zimbabwean women through the Dignity! Period campaign. This need was identified as a priority by the ZCTU Women's Committee. ZCTU and its structures have demonstrated an ability to identify and meet the priorities Zimbabwean women have identified in health and this is something DFID could seek to develop in discussion with ZCTU.

 

Strategies for rural development:

21. Land is a key and unresolved issue in Zimbabwe. The issues are who owns, controls and benefits from the land. A comprehensive response is required that deals with land title, historic injustices of land ownership, sustainable livelihoods and poverty reduction. Dealing with land must involve improving the situation of farm workers and DFID should liaise closely with the General Agriculture and Plantation Workers Union of Zimbabwe (GAPWUZ) who organise and represent farm workers. DFID and other donors should not impose models of tenure and agricultural practice. There are calls for a land audit (including from the trade union movement). What is required is a process which has support from all parties, is time limited, which produces recommendations for implementation and which monitors and reports on progress. DFID/ the UK Government should provide funding to support a transparent and accountable process of land reform which deals with historic injustices and supports Zimbabwe's development.

Prospects for a closer development relationship between DFID and the Government of Zimbabwe:

22. Since the formation of the Inclusive Government, there has been some improvement in the economic and social conditions in the country. ACTSA believes that DFID should engage with this government to support its efforts to re-build the economy, improve the delivery of vital public services and build democracy. ACTSA, based on the views expressed to us by key partners and contacts, believes such support must be targeted, very much at social development ministries and the rebuilding of the economy. There is a tension, which should come first, increased DFID support or an improvement in democratic practice? ACTSA believes any benchmarks must come from the Global Political Agreement as this is a document signed by the political parties and the SADC mediator, South Africa. ACTSA suggests DFID should both increase its support for ministries such as health and education and make it clear that such support for the Government and any further increase in support is dependant on the implementation in full of the Global Political Agreement. DFID/UK Government also need to ensure that SADC member states are well informed on what DFID/UK Government is doing in Zimbabwe.

23. ACTSA firmly believes it is Zimbabweans who must be able to freely decide their priorities, without internal intimidation or external interference. When there are clear signs of progress on the restoration of democracy and the people of Zimbabwe can hold their government to account, then the UK should seek to increase their support and mobilise further support from the European Union and financial institutions. Concrete signs of progress could include:

· Resolution of the outstanding issues in the Global Political Agreement including the process of appointments of key government officials including the Governor of Reserve Bank of Zimbabwe, Attorney General, Deputy Minister of Agriculture and ambassadors.

· Stopping of political violence including the cessation of arbitrary arrests of trade union leaders, civic leaders, human rights activists, journalists, lawyers, and MDC members; the unconditional dropping of politically motivated charges facing political prisoners, human rights activists and lawyers; and the disbanding of militia bases in rural communities.

· Cessation of inflammatory reporting in the broadcast and print media; putting in place legislative and media reform.

· Respect for the rule of law and court orders; stopping the State's interference i.e. one political party's interference with the judiciary.

· Cessation of politicisation of humanitarian aid and threats to ngos involved in such work.

24. ACTSA believes that in the changing context of Zimbabwe it is important that DFID engage with the Inclusive Government and any democratically elected successor. It is important in this process that DFID develop and maintain a strong relationship with civil society in Zimbabwe and Britain. ACTSA believes that DFID in Zimbabwe should hold regular consultations with the Zimbabwe trade union movement led by the ZCTU and its close associates, the Zimbabwe Chamber of Informal Economy Associations (ZCIEA) and the Labour, Economic Development and Research Institute of Zimbabwe (LEDRIZ). DFID should push that international support to the Inclusive Government is provided on a transparent basis and monitored by civil society organisations including the trade unions. ACTSA also believes that DFID should consult British civil society organisations including ngos and the trade union movement on its policy and priorities for Zimbabwe.

Zimbabwe's relations with its regional neighbours and their impact on economic recovery and development:

25. The solution to the crisis in Zimbabwe has to come from Zimbabwe, facilitated and encouraged by the region. The Southern Africa Development Community (SADC) is leading, on behalf of the African Union, on Zimbabwe and SADC has agreed that South Africa mediate on its behalf. South Africa is hosting an estimated three million Zimbabweans. SADC's mission to the 2008 Presidential election concluded that the election did not meet SADC's agreed standards for the conduct of democratic elections. The region wants a resolution to the crisis of Zimbabwe. SADC members have provided assistance to Zimbabwe following the formation of the Inclusive Government and urged the African Development Bank, the IMF, the World Bank and western donors to support the Inclusive Government financially. It is reported that South African business is increasing its investment in Zimbabwe. Investment by the private sector from across the region in Zimbabwe could assist economic recovery. It is important to ensure however that assets are not sold off too cheaply, that investment does assist in reducing poverty, produces decent jobs and does not prop up an undemocratic elite. In the aftermath of the 2008 Presidential election the trade union movement across the region refused to unload a Chinese ship with arms for the Government of Robert Mugabe. DFID should support Zimbabwean civil society, including the trade union movement, informing and engaging in dialogue with civil society across the SADC region. DFID/UK government should also consider support for regional civil society structures such as the Southern Africa Trade Union Coordinating Council. (SATUCC).

26. There is considerable interest in Zimbabwe in Britain. DFID should recognise and welcome this and consider providing support to improve contact and understanding between organisations including trade unions, communities in Britain and Zimbabwe engaged or wishing to engage in twinning and linking based on support for democracy and development.

27. In supporting recovery for Zimbabwe DFID/UK Government should ensure that the possible contribution of the Zimbabwean diaspora is considered. If conditions on the ground permit return then the major obstacle could be loss of their job in the UK and their immigration status. ACTSA urges the UK Government to consider supporting those Zimbabweans who may wish to return to be able to do so on a secondment basis with the right to return to the UK.