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MDC is fully committed to devolution
Movement for Democratic Change (MDC)
April 26, 2012

One of the MDC's principal objects is to change the face of governance in Zimbabwe based on, among others, the following fundamental principles:

• checks and balances on the exercise of power;
• active participation of the people in governance;
• transparency and
• accountability of government to the people.

A critical aspect of the governance model that the MDC believes in for purposes of ensuring that these foundational principles are given full effect is the concept of devolution of power and functions.

The MDC believes that this concept and underlying principles of devolution must be recognised in the constitution, that being the founding document that governs the allocation of power within the nation-state.

From the outset, the MDC has, therefore, been the foremost advocate for the constitutional recognition of devolution. Whereas Zanu PF has half-heartedly approached the principle of devolution acknowledging devolution of functions only, the MDC has been forthright and stood firm in its advocacy for the devolution of both powers and functions.

The MDC believes that only a party and government that believe in the ideology and principles of devolution can be trusted to effectively and faithfully support and implement devolution.

Devolution of power and functions has always been a critical part of the MDC's governance model and the party is committed to ensuring that devolution is a key part of the constitutional framework for the country.

However, it is important to note that having the principles of devolution set out in the constitution and the implementation of devolution are two different things. A country might have beautiful constitutional clauses that describe the devolution of power and functions but without the requisite human agents that believe in and are committed to implementing devolution, the constitution-making exercise will remain an exercise in futility.

It is clear that of the political parties with a national reach only the MDC has the combination of the will, ideological foundation and human agents to make devolution a reality. Zanu PF has shown itself to be seriously uncomfortable with the concept of devolution.

Some of its agents writing on its behalf have stridently opposed the constitutional recognition of devolution. They are more interested in decentralisation, which is a different model of governance and the last 32 years of poor governance and underdevelopment in the regions has demonstrated that decentralisation is not the appropriate governance model.

On the other end of the scale there are those who seem to be advocating for federalism, which is also not the same as devolution. However, failure to give effect to devolution and failure to implement it in a manner that delivers results will only give rise to increased clamour for federalism and possibly secession, which the MDC does not believe in.

The MDC is keen to ensure that the three governance models are distinguished so that devolution is properly understood, supported and implemented without causing discomfort to anyone. Some of the opposition to devolution is based not on substance but on sheer ignorance and failure to distinguish it from federalism or secession.

Whilst devolution, decentralisation and federalism all involve the idea of central government giving up some of its powers and functions to other entities within the state, they are nevertheless different.

Decentralisation, which is the model that has been used in Zimbabwe until now, entails the retention of power and functions in central government. Central government makes key appointments, such as the Governor of the province and the Minister for local government retains legal and effective control over the provinces and local authorities.

There are no checks and balances on the President and Minister and powers have been routinely abused by appointing political cronies and unceremoniously removing elected local councils - particularly those local councils led by opposition parties.

Devolution entails the distribution of powers and functions, usually exercised at the national level, to entities at the provincial or local level. Devolution must be clearly distinguished from federalism wherein supreme power is divided between national government and state or provincial governments.

Federalism would entail that Zimbabwe is composed of different and distinct states, which is not the same as devolution where the unitary state is retained with certain powers and functions being devolved to the provinces.

Whilst the provinces are part of the unitary state, the MDC nevertheless believes that they must be given independence to handle provincial and local affairs. In terms of structure, the provinces will have their own elected assemblies (called Provincial Assemblies) and a governor. Critically, to distinguish it from decentralisation, the governor must not be appointed by the President but must be elected directly or indirectly by the people in the provinces.

The governor will have the power subject to approval by the provincial assembly to appoint an executive that will carry out the devolved functions. The provincial assembly itself will have the power to make legislation in certain areas that are not reserved for the national legislature.

The MDC recognises the importance of the principle of mutual cooperation which eliminates antagonism between the national Parliament and provincial assemblies. The party appreciates that through devolution, the national Parliament is legally and effectively exercising its authority through, and not losing, authority to devolved provincial assemblies.

The latter are not distinct and separate entities competing with the national Parliament but are agents through which the national Parliament has agreed to exercise its powers.

However, the higher authority of the national Parliament must be qualified by the principle, which may be expressed through law or by convention, which the national Parliament would not normally legislate on devolved matters without the consent of the devolved legislature. Therefore, the MDC will seek to engender cooperation rather than competition between the national Parliament or government and the provincial assembly or executive.

The MDC will endeavour to cover everything through legal instruments but it also recognises that where appropriate, particularly to regulate the relationship between the national and provincial government, this can be regulated by other arrangements such as memoranda of understanding (MOUs).

As has already been highlighted, devolution on paper is of no use unless it is effectively implemented. Such implementation cannot be properly effected without resources.

Therefore, the MDC strongly believes that the principle of devolution must be supported by the fair, efficient and equitable allocation of resources. One of the principal drivers of devolution is the inequitable allocation of resources and development from the centre. Some provinces have suffered from underdevelopment and it is important to ensure that resources are efficiently and equitably allocated to promote development.

The MDC is pushing for constitution bodies, such as the fiscal commission and the equalisation fund to ensure that regions receive equitable funding for development projects. The MDC is very clear that devolution can only make sense with adequate funding.

In conclusion, devolution is a principle whose time is long overdue. Development has been uneven across Zimbabwe. Power has been too centralised and there have been no effective checks and balances. The people have been remotely involved in governance, if at all. Devolution will facilitate people participation in governance at a local level.

But as we have said, devolution can only be implemented by a party that believes in that ideology. It can only be successful if it has human agents who are committed to giving effect to its principles.

Finally, it can only work out if the provinces are given adequate resources for implementation of their development projects. The MDC stands for all of the above and is committed to ensuring that devolution becomes a reality.

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