PUBLIC POLICY

IN ZIMBABWE
ECOZI MEMBER CAPACITATION POLICY ADVOCACY RESEARCH & REVIEW

TRAINING CONSULTANT: DR GETRUDE D. GWENZI

UNIT OBJECTIVES
 A thorough understanding of the opportunities that exist for influencing
the policy process
 A critical element in the success of any advocacy effort is a thorough
understanding of the local policy process
 What you can realistically expect to achieve at the policy level
 Gain familiarity with definitions of public policy and stages of the
policy cycle.
 Relate basic concepts to policies that affect your work/ programming
PUBLIC POLICY VS SOCIAL POLICY
Public policy can be described as “a course of action” taken by a
government or policy maker, which most often results “in plans
and actions” and effects “on the ground” – or lack of them.
 “a policy does not become a public policy until it is adopted by
some government institution”.
Social policy is the study of social welfare and the social
services
social policy public policy
POLICY CYCLE
PROBLEM IDENTIFICATION
 How do certain problems become policy issues?
 How does a problem get on a governmental agenda? Why do some problems not achieve
agenda status?
 At this stage, CSOs can influence agenda setting by recommending problems basing from
their experiences.
 There is need for CSO to give loud voice in influence
 There is need for research based evidence
POLICY FORMULATION
 A policy framework sets out a set of procedures or goals, which might be used
in negotiation or decision-making to guide a more detailed set of policies, or to
guide policy change.
 A good framework explains the objectives, principles and policy issues .The
roles of public and private sector should be clearly defined in the framework
 The participation for CSOs or pressure groups is minimal to some extent as
legislators are primary participants at this stage
 Through lobbying and advocacy CSOs can influence the quality of discussions
by legislators at this stage
POLICY IMPLEMENTATION
 Also known as policy administration
 What is done to carry into effect or apply adopted policies
 CSOs through programming help in the implementation stage
 CSOs play watchdog role in holding authorities accountable and responsible for the quality of
implementation- adherence to agreed targets and objectives
POLICY EVALUATION
 This entails activities intended to determine what a policy is accomplishing,

whether it is achieving its goals, and whether it has other consequences.

 This stage is also considered as the Policy review stage
 CSOs through reports should justify the impact of a policy
 CSO provides a watchdog role and through shadow reports (formal review of that state report
prepared by a coalition of civil society organizations)
 Key questions: Who is involved? Who is advantaged and disadvantaged by a policy? What are
the consequences of policy evaluation? Are there demands for changes in or repeal of the
policy? Are new problems identified? Is the policy process restarted because of evaluation?
CONCLUSION
 Identify the political constraints and opportunities and develop a strategy for engagement

 Inspire support for an issue action by building consensus within citizens for active citizenry

 Create new ways of framing an issue or policy narrative

 Inform the views of others in the community

 Share expertise and experiences to improve and, add, correct or change policy issues

 Hold policy makers accountable

 Evaluate and improve own activities, particularly regarding, service delivery provision. Being exemplary will
make civil society more credible in the eyes of the public
RESEARCH
METHODS FOR
POLICY ANALYSIS
POLICY ANALYSIS VS EVALUATION
Policy analysis is done to improve or legitimate the practical
implications of a policy

Program evaluation is done when the policy is fixed or

unchangeable

Policy analysis is done when there's still a chance that the policy
can be revised. Evaluation comes after interventions from the
policy have already been carried out
ROLE OF CSO ADVOCATES
 research based evidence for policy change or formulation

Research Planning Table

Topic/Research Sources of Methods of Who is When should

Question information data collection responsible data be
available
 Identify the issues you are most concerned with
 Collect the relevant information about them
 Subject the issues to a thorough analysis

Problem analysis framework

Issue Consequences Causes Solutions

Sub issue 1
Sub issue 2
Sub issue 3
PROBLEM TREE ANALYSIS
 Works well with groups
RAPID FRAMEWORK
 Developed by the Research and Policy in Development (RAPID) team at the Overseas
Development Institute (ODI)
 helps develop an understanding of the policy and political influences on a particular issue, as
well as identify key stakeholders and policy actors.
 understanding power relations within the sector: who makes decisions about education policy?
How are those decisions made?
 COST BENEFIT ANALYSIS
(CBA)
 can be both quantitative and qualitative

 What is the value of the policy? (not only economic value)- this
is an ethical question
 who benefits from and who pays for the proposed
interventions; which social and political factors shapes the
policy and its outcomes
CBA STEPS
 Describing costs and benefits – identifying and describing costs and benefits;
 Attributing costs and benefits – analysing the contribution of the intervention to achieving the
observed outcomes;
 Comparing costs and benefits – analysing the relationships between costs and benefits.

 Quantitative: all costs and benefits in monetary terms

 Qualitative: relationships between costs and benefits are considered.
 COSTS??
 Resources used, both financial and
non-financial, and any negative
outcomes resulting from the policy
 Benefits include positive outcomes
achieved and negative outcomes
avoided in the short-term (during
the life of the policy intervention
and longer-term).
 Whose benefits and costs are
considered?
 consider outcomes for the broader
community, for the organisation
receiving funding, and for other
organisations, including
Government departments.
 EVIDENCE BASED APPROACH

(EBA)
a more rational, rigorous and systematic approach to policy analysis
 policy making should include a rational analysis/assessment using evidence to
inform policy
 An evidence based policy would rely heavily on research, which would see the
most viable strategy being adopted
 In other jurisdictions academia and research institutions play a key role in
influencing the research agenda, this has not been the case in Zimbabwe.
 Policy research tends to be reactive and evaluative in nature.
PUBLIC POLICY
FRAMEWORKS
 Rational model-linear model of policy making which assumes that there is a logical sequence
in policy making, starting with problem definition, through analysis of alternatives, to decision
implementation and review. Policymakers are persuaded by the most accurate option
 Incrementalist model-policymaking does not follow any clear movement towards
predetermined goals but rather a series of steps in which policies are gradually modified,
hence incrementalism. Conservative decision making
 Knowledge utilisation model-views knowledge as cumulative and has to be incorporated into
process through an ‘enlightenment’ process. Accumulated research findings gradually alter
decision makers’ perception about the problems that a policy should address
 Garbage can model-appreciates that solutions that might have been discarded at previous
levels might remain in the policy making system as occasionally some problems would surface
that they can solve
PUBLIC POLICY MAKING IN ZIMBABWE
strong link between political enviroment and policymaking
centralised and top-down, initially social welfare and
nation building considerations were priority - socialism
neo-liberal policies (ESAP)
GNU period (from 2009)
New dispensation policies
Private vs public interests
INSTITUTIONAL FRAMEWORKS
 The assumption is that policy is being formulated in response to public pressure from the
various stakeholders
 The respective Government Ministry initiates the consultative process and produce a draft
policy
 The draft policy would be submitted to the respective Cabinet interMinisterial Committee -
Ministry of Primary & Secondary Education (MoPSE)
 The Cabinet Inter-Ministerial Committee discusses the draft, suggests areas for improvement
to the Ministry, after which the revised report would be submitted to a full Cabinet meeting
 Once Cabinet is satisfied and approved the policy, it would then be launched
 Cabinet is the highest approval authority for policies in the country
EDUCATION
POLICY IN
ZIMBABWE
ACTIVITY

Key issues in
Zimbabwean
education policy
OVERVIEW OF EDUCATION POLICY
FRAMEWORKS
 Education for Sustainable Development (ESD)
 Continental Education Strategy for Africa [CESA] (2020-2030)
Constitution of Zimbabwe
Education Amendment Act (No. 15 of 2020)
Circular 35 of 1999 (pregnant learners)
Early Childhood Development Policy
Non-Formal Education Policy (2015)
National Disability Policy (2021)
 GAPS IN EDUCATION POLICY
 Inconsistencies between domestic and international legal provisions

 Article 28 of UNCRC affirms the right of the child to education and the State’s duty to ensure primary
education is free and compulsory.

 Article 11 of the ACRWC states that every child has the right to an education, to develop his or her
personality, talents and mental and physical abilities to their fullest potential.

 Section 75 of the Constitution: (1) Every citizen and permanent resident of Zimbabwe has a right to basic
state funded education, including basic adult education.

 Contrary Article 6 of the Education Act stipulates that it is the objective that tuition in schools in
Zimbabwe be provided for the lowest possible fees consistent with the maintenance of high standards
of education.
 The exclusion of learners on the basis of failure or inability to pay school fees amount to
discrimination as prescribed under S56 of the Constitution and Secretary’s Circular 3 of 2019.
 Inclusive education policy
 The United Nations Children's Fund in Zimbabwe have reportedly found that the number of
school children who are not in school due to chronic poverty has more than doubled since the
COVID-19 pandemic hit. Before the pandemic, 21% of Zimbabwe's children were not in
school. This number has now risen to 47%.
 Basic education must be affordable to all, and the exclusion of learners for non-payment of
fees/ hiking of fees is thus contrary to the statutory instruments.
 Need to expressly set out the measures the State will undertake to progressively realise the
right to free basic education-government should develop the National Plan of Action to show
how it will progressively provide the right to education.
GAPS IN EDUCATION POLICY...
Morale and motivation in the teaching profession remain urgent challenges due to low

remuneration of teachers

Lack of priority for rural education

Need to expedite the finalisation of an inclusive education policy. Only 10% of children with

disabilities have access to primary school education (Deaf Zimbabwe Trust, 2022)
GAPS IN EDUCATION POLICY
COVID-19 exposed the inadequacy of the Zimbabwean education sector: prolonged school

closures, lack of access to adequate digital learning platforms

In March 2020, the Ministry of Primary and Secondary Education adopted alternative learning

methods to ensure continuity of education for all learners e.g. radio and television
programmed lessons, WhatsApp and online lessons, e-learning libraries and printing of books
targeting remote learners.
GAPS IN EDUCATION POLICY
 During school closures only a few learners, in particular, elite public and private school
learners had access to alternative learning while the majority of learners had no access.
 Learners from poor families were most affected as parents and guardians failed to pay for
online lessons and were unable to provide the gadgets to facilitate for online learning
 School infrastructure development: in need of rehabilitation of old school buildings and
construction of more classrooms and schools
OPPORTUNITIES...
 Investing in school infrastructure development
 Alternative learning methods e.g. pushing for a digital education policy
 Improvements for education provisions for Orphans and Vulnerable Children (OVCs) and
learners with disabilities,
 Improvements in Early Childhood Education (ECD)
 Teacher capacitation
PUBLIC FINANCE
MANAGEMENT FOR
POLICY ADVOCACY IN
EDUCATION SECTOR
Lessons from Auditor General's Report (2020)
OVERVIEW
 The Auditor General is mandated to submit an audit of State Enterprises and Parastatals to the
Minister responsible for finance and economic development (for presentation through
parliament) in terms of Section 309(2) of the Constitution of Zimbabwe read together with
Section 10(1) of the Audit Office Act [Chapter 22:18], for each financial year.
 This report provides an overview and insights into the dynamics characterising financial
governance and management of public funds (resources), and is therefore a useful tool and
reference for stakeholders on the use of public funds by government.
OVERVIEW...
 Management of public funds is governed primarily by the Constitution of Zimbabwe and
provisions of the Public Finance Management Act [Chapter 22:19]. Central Government uses
cash accounting basis for Appropriation Accounts and accruals accounting for Fund Accounts.
 Treasury has adopted the International Public Sector Accounting Standards (IPSAS) as its
reporting framework for Central Government which should be fully implemented by 2025
according to the implementation road map.
AVAILABLE AUDIT REPORTS
 Currently, the available audit report is for the year 2020 and the one for the year 2021 is
statutorily expected by June 30, 2022.
 Further, the Auditor General has published a performance (Valua for Money) audit assessing
the extent to which the Ministry of Primary and Secondary Education (MoPSE) was
registering, monitoring and supervising schools and independent colleges to ensure that there
is quality education and also to proffer audit recommendations for improvement, where
necessary.
KEY GOVERNANCE ISSUES
 The report highlights a number of governance issues that considerably impact on the
performance of the education sector.
BUDGET UTILISATION &
CONTROL
 The total allocated budget which comprised Voted funds including Unallocated Reserves for
31 Ministries and Commissions was $156 301 950 605.
 The Ministries and Commissions utilised $129 291 025 122 resulting in a total underspending
of $27 010 925 483.
 The underutilisation of the budget was mainly due to non-release of funds by Treasury,
government recruitment freeze and non-commencement of projects occasioned by Covid-19
restrictions and lockdowns.
UNAUTHORIZED EXCESS EXPENDITURE ON
UNALLOCATED RESERVES

 The approved budget for Unallocated Reserve as per the Appropriation (2020), Act, 2019 was
$1 394 632 000.
 However, Ministry of Finance transferred to line Ministries a total of $102 085 420 418,
resulting in unauthorized excess transfers of $100 690 788 418.
 The excess expenditure is still to be condoned by Parliament in terms of Section 307 of
Constitution of Zimbabwe.
DUAL PAYMENTS
 Dual payments amounting to $9 384 085 were made to suppliers in 2020 resulting in fruitless
expenditure.
 This was in contravention of Section 59 (17) of the Public Finance Management (Treasury
Instructions), 2019 which requires Directors of Finance to institute a system of internal checks
to guard against dual payments.
 Refunds for the double payments were still to be received at the time of concluding the audit
in 2021.
NON-DELIVERY OF
PROCURED ASSETS
 The Ministry of Primary and Secondary Education had also not taken delivery of two hundred
and sixty (260) blankets and kitchen utensils procured for the refurbishment of teachers’
hostels. Failure by paid contracted suppliers to fulfil their contractual obligations is a cause for
concern.
ASSET REGISTERS
 Section 100 (1) and (5) of the Public Finance Management (Treasury Instructions), 2019
requires Ministries, Departments and Agencies to record all the assets and maintain an updated
Manual and a Public Financial Management System (PFMS) Asset Register.
 Together with two other ministries, the Ministry of Higher and Tertiary Education, Science
and Technology Development had assets worth $31 161 392 procured in 2019 and 2020 not
recorded in their Assets Registers, whilst other Ministries did not maintain Manual or PFMS
Assets Registers.
MINISTRY OF PRIMARY AND SECONDARY
EDUCATION

 The total allocated funds for the audited year were $19 221 759 325, the total expenditure was
$16 292 361 066 and the total underspending amounts to $2 929 398 259.
 The Ministry did not upload revenue amounting to $1 212 442 into the Public Finance
Management System (PFMS). The aforesaid revenue was in respect of educational fees from
Independent Colleges, purchase of tender documents, treasury orders, recovery of telephone
charges and Public Service Commission penalties.
IMPLICATIONS
 There are notable financial reporting disparities that compromise the overall performance
tracking of public funds.
 Given resource constrains within the country, such practices further entrench the delivery of
educational services.
 The ability of key stakeholders to bring government to book is severely compromised.
 Non-release and delayed release of funds by treasury has dire implications for service delivery
given the high inflationary environment in the country.
 Measuring the performance of government based on the national budget allocations becomes
fruitless as significant portions of the said budget are not utilised as intended.
IMPLICATIONS...
 The misuse of funds intended for vulnerable populations has grave implications for
educational outcomes as it compromises the capacity of such population groups to support the
educational and welfare needs of children under their care.
 A culture of tolerance towards non-complying contractors undermines the delivery of services
particularly given the high inflationary environment.
 There is therefore an urgent need for educational policy stakeholders to step up their public
funds oversight roles to curtail the identified vices, capacitate and promote the expected public
funds management values and practices in government.
BREAK AWAY
SESSIONS: MEDIA
ENGAGEMENT
1) The power of numbers: networking for impact
2) Digital advocacy: New media
3) Digital advocacy: Traditional media
NETWORKING FOR IMPACT
 Points to consider for discussion:
 What is a network?
 What are the benefits of a network?
 What is advocacy?
 How can you use your present networks for advocacy?
 Communication, decision making, collaboration (not competition)
 Main task: Consider the free education policy intended for 2023 and discuss how you can plan
an advocacy campaign around it. What issues will you include in your campaign? How will
you mobilise resources?
DIGITAL ADVOCACY (NEW MEDIA)
Points to consider:
 How do you use social media to communicate issues in education? e.g. websites, Twitter,
blogs, Facebook, Instagram, webinars, etc
 What is the vision of your advocacy group? What is your main message? How do we convey
it? What are the key elements of your message? Is it uniform across all platforms?
 How do we know if our vision/message is working? Can we be effective?

Main task: Consider the impact of not updating the education policy for 40 years after
independence and craft a brief message for social media to advocate for regular policy reviews
and changes.
DIGITAL ADVOCACY:
TRADITIONAL MEDIA
Points to consider:
What traditional media tools can you use in advocacy? e.g. newspapers, radio, magazines,
television, print publications, billboards?
How would you communicate your message to different stakeholders?
Main Task: Draft a mini-brief based on inclusive education targeting traditional media
platforms.