By Michael Gwarisa
A new study has revealed that Zimbabwe’s devolution programme, though enshrined in the 2013 Constitution, has had limited impact on improving public service delivery, particularly for women and girls.
The report, titled A Critical Analysis of the Impact of Devolution on Public Service Provision in Zimbabwe: A Gendered Perspective on Access, Quality, and Affordability in Health, Education, and Water and Sanitation for Women and Girls, was launched by a consortium of civil society organisations with support from the International Development Research Centre (IDRC).
It highlights persistent challenges in healthcare, education, water, and sanitation, alongside the continued exclusion of women from decision-making platforms.
Speaking during a virtual meeting to discuss the report, hosted by the Women Academy for Leadership and Political Excellency (WALPE), Honourable Perseverance Zhou, a sitting Member of Parliament, underscored the urgency of ensuring that women are not sidelined in governance processes.
My constituents are actually all women in Zimbabwe,” she said. “When we talk about devolution, we must make sure women are included, because they are the ones most affected by poor services and unpaid care work.”
Former legislator Rusty Markham, who previously took government to court over delays in implementing the constitutional provisions of devolution, expressed deep frustration with the slow pace of reforms.
“I am going to be blunt, I am very disappointed in the priority given to the devolution bill,” he said. “Government does budget for the money, but no one has oversight of it. There are no parameters or rules on how you use that 5%. There’s no stakeholder engagement, no transparency, and no accountability.”
Section 264 of Zimbabwe’s 2013 Constitution provides for the devolution of power and responsibilities to provincial and metropolitan councils and local authorities. The principle is meant to bring governance closer to citizens, improve accountability, and ensure equitable access to essential services such as healthcare, education, water, and sanitation.
During the event, facilitator Lynette Manzini noted that devolution, when implemented effectively, can transform lives. She pointed out that women and girls bear the greatest burden when local services fail, whether it is walking long distances to fetch water, struggling to access maternal health services, or carrying the weight of unpaid care work.
[pullquote]The study, based on focus group discussions held across all provinces, an online survey that drew 232 responses, and interviews with key stakeholders, provides one of the most comprehensive gender-focused assessments of how devolution is working in practice.[/pullquote]
Findings from the report show that healthcare services remain inadequate, especially in rural areas where clinics are poorly resourced and shortages of basic drugs and equipment are common. Long distances to facilities, the high cost of services, and the migration of healthcare workers due to poor conditions have further weakened the system. Pregnant women, for example, often struggle to afford ambulance services when referred to hospitals. Education outcomes are also being compromised as girls face barriers to schooling caused by poverty, cultural attitudes, poor infrastructure, and a lack of menstrual hygiene facilities, all of which contribute to high dropout rates.
The situation in water and sanitation has also not improved significantly under devolution. Many women and girls continue to fetch water over long distances, exposing them to health risks and robbing them of time they could otherwise use for education or economic activities. The report concludes that devolution has done little to ease the burden of unpaid care work, which disproportionately falls on women and girls and limits their ability to participate fully in education, employment, and community leadership.
The research further highlights that patriarchal norms and weak institutional frameworks continue to exclude women from decision-making processes. While a small minority of participants reported significant inclusion in local governance, the majority said they were either excluded or only marginally involved. This lack of participation is compounded by legislative and institutional gaps, particularly the absence of a comprehensive Devolution Act to guide implementation. Without clear laws and transparent funding guidelines, communities remain in the dark about how much money is disbursed and how it is used. Funds have often been delayed, inconsistently allocated, and vulnerable to mismanagement.
Despite these challenges, the report also notes some progress. In areas such as Gweru and Mutare, community engagement has improved, with local authorities working more closely with development partners to address gender gaps in service delivery. Some clinics and schools have been built through devolution-linked funding, though these gains remain uneven across provinces and have not fundamentally changed the overall picture.
The report concludes that for devolution to achieve its intended goals, Zimbabwe needs clear laws, transparent funding mechanisms, and inclusive governance structures that prioritise women and girls. Without these, the constitutional promise of decentralised power risks remaining unfulfilled. Civil society organisations argue that devolution is not just a technical governance issue but a matter of social justice. Effective implementation could help address inequalities, strengthen public services, and give citizens greater control over decisions affecting their lives.
As Markham warned, delays in enacting a credible Devolution Act will continue to stall progress. “The devolution bill will affect all town and country planning, it will affect all ministries, from environment to women’s affairs. It has to be done, and done urgently,” he said.
