Professional Documents
Culture Documents
2006 - 2010
“Broad Based Wealth and Job Creation through
Citizenry Participation and Technological Advancement”
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October 2009
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Table of Contents
Acronyms ............................................................................................................. 7
Executive Summary .................................................................................................. 10
Introduction ............................................................................................................... 24
1. Overview ................................................................................................................... 24
2. Methodology.............................................................................................................. 25
3. Field Work ................................................................................................................. 26
4. Data Analysis............................................................................................................. 27
5. Report Outline ........................................................................................................... 27
PART 1: MACROECONOMIC PERFORMANCE AND POVERTY
REDUCTION ............................................................................................................ 29
1. Macroeconomic Performance .............................................................................. 30
1.1 Introduction and Overview ...................................................................................... 30
1.2 Macroeconomic Performance .................................................................................. 30
1.3 Structural reforms .................................................................................................... 33
1.4 Assessment of Macroeconomic Key Performance Indicators ................................. 33
1.5 Outstanding Challenges and Recommendations ..................................................... 36
2. Poverty Reduction Performance.......................................................................... 39
2.1 Introduction and Overview ...................................................................................... 39
2.2 Analysis of Poverty Trends ..................................................................................... 39
2.3 Economic Growth and Poverty Reduction .............................................................. 40
2.4 Pro-poor Budget Allocations and Expenditure ........................................................ 40
2.5 Budget Implementation ........................................................................................... 42
2.6 Performance of Selected Poverty Indicators............................................................ 43
2.7 Outstanding Challenges and Recommendations ..................................................... 44
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ACRONYMS
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Executive Summary
1. Main Findings
1.1 Macro-Economy
1. During the three years under review (2006-2008), real GDP growth rate averaged 6.1
percent, which was below the FNDP target of 7 percent per annum. Notwithstanding this
outturn, real GDP growth rate improved from 5.2 percent in 2005 to 6.2 percent in 2006,
6.3 percent in 2007 and 5.7 percent in 2008. Single digit inflation was achieved at 8.2
percent and 8.9 percent in 2006 and 2007, respectively. Inflation in 2008 rose to double
digits ending the year at 16.6 percent. Interest rates also remained high, averaging 26.4
percent.
2. Export earnings grew by over 100 percent to US$ 4,876 billion in 2008 from US$ 2,178
billion in 2005. In this regard, Gross International Reserves build-up improved from 1.5
months of import cover in 2005 to 2.2, 2.5 and 2.8 months of import cover in 2006, 2007,
and 2008 respectively. The FNDP target of 2.5 months of import cover was, thus, met in
2007 and 2008.
3. The external debt position during the review period remained within sustainable levels and
was aided by external debt relief and budgetary support. However, total external debt
increased from US$ 1,569.5 million at end-2006 to US$ 2,267.2 million at end 2008. The
increase was mainly on account of the rise in private and parastatal debt and Government
contracting concessional loans.
4. During the review period, efforts were made to implement structural reforms under the
Private Sector Development (PSD) as part of the Government’s Public Service Reform
Programme. However, positive change remained marginal in spite of PSD. Some of the
noteworthy developments included the establishment of the Citizen Economic
Empowerment Commission (CEEC).
5. In an effort to enhance efficiency in the public service delivery system, the FNDP sought to
improve the quality, efficiency, cost effectiveness and delivery of services through the
implementation of Public Expenditure Management and Financial Accountability
(PEMFA) Programme; Public Service Management (PSM); and Decentralisation.
Although the National Decentralisation Policy was approved in November, 2002 and
subsequently launched in August, 2004, the Decentralization Implementation Plan (DIP)
has not been approved by Government. The delay in the approval of the DIP has affected
fiscal decentralization, which has important implications on the pace of FNDP
implementation at the local level.
6. Domestic revenue as percent of GDP averaged 17.2 percent in the review period, thus,
surpassing the FNDP period average of 16.8 percent. In 2006, domestic tax revenue as a
percentage of GDP stood at 16.4 percent and this was above the FNDP target 16.2 percent.
In 2007, domestic revenue as a percentage of GDP stood at 18 percent on account of
exceptional performance of company tax and the widened personal income tax base.
7. During the first half of FNDP implementation, Government endeavoured to keep budgetary
releases to priority sectors such as health, education, energy, agriculture, infrastructure and
water and sanitation above 95 percent of budgetary allocation. In the review period, 91.8
percent of the approved budget was released to the priority sectors. However, releases to
infrastructure, another strategic sector in the FNDP, averaged only 71.3 percent, which was
far below the FNDP target.
reduction in poverty levels were from Lusaka and Copperbelt provinces. Central, North-
Western and Luapula provinces registered marginal reductions in poverty levels, while
provinces where poverty was on the increase were Western, Northern, Eastern and
Southern.
2. The structure of growth has been oriented to a few sectors, which are also capital intensive
and, thus, labour saving, which has reduced their contribution to FNDP’s goal of
employment creation. Moreover, it is clear that there are low linkages between the earnings
from those sectors that have registered growth with those, like agriculture, that house the
largest number of poor people. The low level of economic diversification in Zambia
significantly contributes to this state of affairs.
1.3 Agriculture
1. During the period under review, growth in the agricultural sector declined from 2.2 percent
in 2006 to 0.4 percent in 2007 and dwindled further to 0.1 percent in 2008. This was due to
unfavourable weather conditions in the country coupled with late distribution of inputs and
constant outbreak of livestock diseases.
2. The total budget in the three year period for the agriculture sector was K1,243.1 billion,
against the total FNDP projections of K1, 542.3 billion. Out of the total budget, K 1,370.6
billion was actually released. This reflected 85.5 percent releases of the FNDP projections.
3. One noteworthy result of the agriculture sector is the huge gulf between what was budgeted
for in the FNDP and the actual expenditure, revealing clear indications that the Plan
provided very little guidance to Government’s expenditure pattern in this field during the
review period. Some of the sectors that were billed as high priority in the FNDP received
the least financing. Such strategic budget lines as irrigation development, agriculture
infrastructure, livestock development and agricultural marketing received marginal funding
in spite of their having been identified in the FNDP as priority. Fertiliser Support
Programme (FSP), on the other hand, did not only receive the largest share of the
agricultural budget in the FNDP but also netted larger than both the budgeted and released
funds during the review period.
4. The food security situation in Zambia has remained very critical in recent years and appears
to have deteriorated significantly in the last three years. This is mainly due to high poverty
levels undermining productivity; unfavourable agricultural practices; high dependence on
rain for food production vis-à-vis the limited attention given to the irrigation programme;
inadequate market access; declining use of improved agricultural technologies; droughts
and floods during some seasons; and the multi-dimensional impacts of HIV and AIDS,
which includes labour shortages and poor dietary intake. Production of maize has also in
most years under review failed to match national demand.
1.4 Energy
1. The energy sector performance in the review period was unsatisfactory with growth
registered at minus 1.2 percent as at end 2008. This was due to, inter alia, failure in
meeting the targets for new electricity generation capacity; inappropriate pricing for
energy; high oil importation bill; insufficient processing and storage as well as
establishment of strategic fuel reserves.
2. Notwithstanding the challenges in the Energy sector, there were several important positive
developments in the sector. They included the rehabilitation and up-rating of generation
plants and the continuation of rural electrification. There have been significant differences
between the provisions of the FNDP and what was actually included in the annual energy
sector budget during the review period.
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consistently been below FNDP annual targets due, in part, to MFNP annual financial
ceilings that have been lower than the projected FNDP expenditures.
2. During the period under review, the total FNDP financing projection for the Roads and
Bridges sub-sector programmes was K2,636.23 billion for both Government and donor
funds. The actual budgetary allocation during the review period was 30 percent more than
what is provided for in the FNDP. The total budget releases amounted to K2,130.5 billion,
representing 81 per cent and 62 per cent of the FNDP projection and the budget allocations,
respectively.
1.7 Health
1. During the period under review, and as one of the priority areas in the FNDP, the health
sector received an average of 10 percent of the national resource allocation. The sector
registered remarkable progress in achieving maternal health and safe motherhood as
demonstrated by the drop in the MMR to 499 deaths per 100,000 live births in 2007 from
729 per 100,000 in 2002. This makes it likely for the country to achieve the MDG 5 of
reducing MMR to 162 per 100,000 live births by 2015.
2. There have been increasing investments in safe motherhood, including facilities for
Emergency of Obstetrics Neonatal Care (EmONC).
3. The Under-Five Mortality rate reduced from 168 per 1,000 live births in 2002 to 119 per
1,000 live births in 2007, exceeding the 2010 target of 134 per 1000 live births.
4. The 2007 Zambia Demographic Health Survey (ZDHS) preliminary findings showed an
HIV prevalence rate of 14 percent for adults aged between 15-49 years, from 16 percent
observed in 2001/2002. Malaria prevalence levels slightly reduced from 373 per 1,000
population in 2002 to 358 per 1000 population in 2007.
from 70.1 percent in 2004 to 63.9 percent in 2006. In terms of regional access, Copperbelt
and Lusaka had the highest percent of population accessing safe water and Western
Province had the least. Compared between rural and urban, 43 percent in the rural areas
had access to safe water as compared to 88 percent in urban areas.
1.11 Environment
1. The total allocation under the FNDP for both core and non-core programmes for the
Environment sector amounted to K171.93 billion. Against this budget, Government
released a total of K18.79 billion (i.e. only 10.92 percent of the FNDP projected figure).
Hence, there is a significant gap between the FNDP financing projection and the actual
budget and actual releases. This outturn is, in part, due to the large donor component in the
projection of the financing in the FNDP. The difference between the projections and the
actual funding has meant that the sector was unable to meet most of its targets.
2. Inadequate financing to core programmes resulted in uneven allocation of funds. For
instance, of the K7.39 billion released in 2007, K3 billion was allocated to one activity
only, namely, the Forest Development Credit Facility. The remaining K4.39 was thinly
distributed among eleven other sector programmes.
1.12 Governance
1. Due to the multitude of institutions involved in the Governance Sector, it has not been
possible to isolate individual programmes and determine how they have been funded.
Notwithstanding this constraint, it is noteworthy that, during the period under review
(2006-2008), Government allocated K598,837,359 to the Governance sector against the
target of K1, 129, 207, 579, 621, representing 53 percent. Out of this amount, 89 percent
was reported to have been spent.
2. At the level of KPI measurements, the sector failed to report on most indicators due to the
absence of data. It is, nevertheless, clear that there still remain major challenges regarding
access to justice for all and accountability and transparency in national systems are yet to
be improved upon as there continues to exist serious capacity weaknesses in bodies that are
mandated to provide accountability and transparency in public sector management.
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in 2008. The HIV funds released for workplace programmes in each ministry are not
always fully reflected.
2. The most recent HIV prevalence among the adult population (15-49 years) has reduced
from 15.6 percent in 2002 to 14.3 percent in 2007. The number of HIV infected pregnant
women who received antiretroviral drugs to reduce mother to child transmission increased
from 25,578 in 2006 to 35,314 in 2007 and 45,000 in 2008.
3. The number of adults and children with advanced HIV infection receiving antiretroviral
therapy increased from 81,030 in 2006 to 206,000 by September 2008, representing an
increase of 60.6 percent.
4. Paediatric ART uptake increased significantly. Of the 29,100 and 40,000 estimated infants
and children under 15 years in need of ART, 13.7 percent and 33 percent were on ART at
the end of 2006 and the end of 2008, respectively.
2. Main Recommendations
2.1 Macroeconomic Area
1. Government’s annual budget should closely follow the prioritisation of the FNDP and
ensure that allocations to the Plan’s core programmes are adhered to so as to reflect the
level of FNDP goals.
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2. There is need to have clear definition and revision of Key Performance Indicators in order
to effectively monitoring FNDP resource utilisation and programme/project
implementation. In the same vein, there is need to prioritise and provide adequate resources
for critical surveys, MISs and policy relevant research that would provide the requisite data
and information that supports effective M&E.
3. For economic growth to translate into employment creation and poverty reduction, it has to
be broad-based with strong linkages to those sectors that accommodate the majority of the
poor. Pro-poor focus should, therefore, focus primarily on agriculture and agro-based
industries and the provision of financial resources that support pro-poor growth, e.g. the
lowering of lending rates for small-scale farming businesses.
4. There is need to prioritise the putting up of infrastructures in rural areas in order to attract
investment to those areas and to subsequently empower the people to make a transition
from poverty.
5. There is need to revisit the conditions for allocating funds under the Citizens Economic
Empowerment Programme in a manner that positively discriminate in favour of the poor. In
particular, more resources should be allocated to priority agriculture programmes, focusing
on, inter alia, irrigation support.
6. Annual budget allocations should be based on the prioritised programmes of a sector under
the FNDP and not on short term objectives, guided by the unique needs of a particular area
rather than standardising/uniform sharing of resources.
7. There is need to put in place mitigating measures in order to lessen the impact of external
shocks introduced by the global economic crisis. The diversification of the economy away
from mineral dependence is particularly important in this respect
8. There should be more debt oversight authority extended to Parliament. This with upscale
closer monitoring of how loans are being applied, based on the country’s debt management
strategy. With this in mind, Government’s external debt policy should be anchored upon a more
comprehensive view of fiscal risks arising from the broader public sector and the economy as a
whole. The development of a Debt Policy and Strategy is cardinal in this regard.
9. There is an urgent need for Cabinet to approve the Decentralisation Implementation Plan.
This would speed up fiscal decentralization and ensure that local authorities are better
funded and better capacitated to collection revenue and better deliver their delegated
mandates.
10. There is need to upscale MPSAs’ absorptive capacity for budget execution/programme
implementation. This calls for carefully tailor-made capacity enhancing training
programmes.
2.3 Agriculture
1. The current situation where funding to agriculture is skewed towards Fertiliser Support
Programme (FSP) and Food Reserve Agency (FRA) should be reviewed to ensure that
more funding is equally released for other important programmes. In the same light, the
Budget Lines for FSP and FRA should be separated and detached from the core MACO
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budget to ensure better focus and targeting. Similarly, Government should urgently
examine the implications of continuing implementation of the FSP in its present design.
2. The Irrigation Development programme should be revamped to align it to the expectations
of the FNDP. In this regard, the decision to transfer the funds from MACO to the CEEC
should be reversed as a matter of urgency so that resource allocation and application should
be for the intended purposes.
3. A more balanced approach to livestock development should be put in place in order to
ensure that sufficient funds are equitably utilised on both cattle as well as small livestock
programmes.
4. There is need for a pragmatic policy approach to increase livestock production through
improved cattle restocking and expansion and well capacitated extension services. Apart
from restocking cattle, there is need to step up other livestock, which are less prone to
disease outbreaks. All animal restocking should be preceded by measures against diseases.
5. Modalities for operationalising the Aquaculture Development Strategy should be
developed. This should include improvements in fish management; better targeting
resources. The funding the Fisheries Development Plan should be increased for both
improved contribution of the sector to overall fish production as well as enhanced benefits
from it by participating households.
6. Government should promote, through the creation of an enabling environment, the
development (mainly by the private sector) of bio-fuels and other alternative sources of
energy. This should entail MACO and MEWD harmonising their policies on food and bio-
fuel production
7. land administration should be streamlined, focusing on faster processing of land
allocation/titles; decentralisation of land administration; and enhanced capacity to open up
land for different uses through improvement of land surveys.
8. MACO, as the lead government institution in the sector, should initiate the process of
revising the FNDP Key Performance Indicators with a view to adopting more appropriate
indicators for reporting on performance and impact.
2.4 Energy
1. There is need to act decisively on the priority of power generation and transmission in view
of the national (and regional) power deficit. The development of the Investment Plan for
the electricity sector is recommended, which should go hand-in-hand with the
implementation of the Electrification Master Plan.
2. There is need to ensure that electricity tariffs are cost-clearing taking into account,
nevertheless, the need to ensure that the management of the inevitable periodic price
adjustment is sensitive to the need to avoid undue stifling of economic activities that could
have far reaching adverse effects to the larger economy.
3. The current focus on the development of Mini-Hydro Stations should be stepped up,
focusing on the identification of more potential areas that could be developed; and the
promotion and consolidation, through the extension of special incentives, of private-sector
participation in the development of the mini-hydros.
4. The country should create capacity to stock at least 3-month national oil import cover
through the rehabilitation of existing storage facilities and the construction of new ones.
5. There is need to develop good inter sectoral linkages to secure effective implementation of
programmes in the Energy sector. Synergies with sectors such as agriculture, tourism,
environment, industry, science and technology and manufacturing are particularly
important in this regard.
6. There is need to strength the Energy Sector Advisory Group (SAG) to secure more
inclusive and consultative platform for stakeholders engagement on decisions pertaining to
the energy sector
7. There is need to strengthen the Management Information System in the Energy sector
through the establishment of the integrated management information system. The
strengthening of the Energy SAG should be undertaken to make it more inclusive of the
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other stakeholders and allow it serve as an important M&E tool for resource application
resource and resource tracking.
8. Given the increasing cost of energy and the opportunities being offered by more
environmentally-friendly options, there is need to look at alternative energy sources,
focusing on instituting well-funded research on alternative energy sources such as bio-fuel,
solar, wind, etc. In this regard, there is need to develop environmentally sustainable
investment framework in renewable energy sources.
2.7 Health
1. There is urgent need to train, recruit, and retain adequate and appropriate staff at all levels
of the health sector, focusing on improving the availability of an appropriate mix of human
resources; strengthening systems for human resource management, planning, and
development; and enhancing the regulatory role of certification and registration of health
professionals.
2. There is need for Government to put in place an attractive incentive structure for the
recruitment and retention of health personnel especially in rural areas.
3. There is need to improve the ability of Health System to deliver a free package of basic
health interventions, such as assisted deliveries, emergency obstetric care and integrated
management of child illnesses.
4. Focus on health infrastructure improvement should focus on the rehabilitation of the
existing facilities rather than on the expansion of the network. This calls for, inter alia, the
up-scaling of preventive maintenance supported by an enabling policy and clear
Maintenance Guidelines.
5. Gender mainstreaming in the health sector should be scaled up, focusing on conceptual
understanding of gender and the linkages between gender and health.
6. There is need to strengthen the HMIS capacity to monitor health sector performance in
Zambia. To do this, there is need for concerted effort to secure the availability of relevant,
accurate, timely, and accessible health care data that effectively supports the planning,
coordination, monitoring, and evaluation of health care services In the same vein there is
need to design a system that will work towards the full integration of health sector
indicators in performance audits, supportive supervision, and accreditation activities at
provincial, hospital, and district levels.
7. There is an urgent need to develop and maintain a well coordinated, reliable, and
transparent procurement and supply system that is acceptable to all stakeholders, including
Cooperating Partners. This calls for the development and enforcement of procurement
management Regulations and Guidelines at all levels, based on the national tender
procedures as guided by FAMS regulations and the newly established Zambia Public
Procurement Authority (ZPPA).
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3. Government should make concerted efforts to reduce the disproportionate exposure to the
HIV and AIDS pandemic by women through civic education and support towards the
strengthening of law enforcement.
4. There is need to work towards the reduction of gender-based violence (GBV) against
women and girls, focusing on improved service delivery for victims; improved monitoring
and reporting on GBV; and community mobilization to ensure communities take charge in
prevention of GBV. To complement this, there is an urgent need to domesticate
international human rights instruments, particularly those that have important gender
dimensions.
5. GIDD should positively respond to the FNDP provision and immediately develop and
implement a comprehensive gender training programmes in all government ministries and
institutions. This should include capacity enhancement for all Gender Focal Points (GFP),
focusing on the imparting of gender mainstreaming skills.
6. There is need to establish an effective M&E mechanism within GIDD, which is well
coordinated with, and aligned to, the different sectoral/national M&E systems. Improved
collection and analysis of gender disaggregated data is essential at this level.
2.11 Environment
1. There is need to strengthen cross-sectoral linkages and collaboration in the protection,
management of the environment and sustainable utilisation of natural resources.
2. There is need to enhance national and regional-level coordination of environmental policies
and interventions. This should be enhanced by the domestication of international
environmental conventions into national laws and local programmes.
3. All sectors, in particular those in charge of energy, agriculture, environment, health, and
water need to develop capacity to manage and coordinate undertaking of environment and
climate change interventions, which involves collecting evidence to inform policy and
interventions formulation, vulnerability and adaptation assessments, and mitigation
analysis.
4. There is need to enhance the process to derive benefits from provisions of the Conventions
and Kyoto Protocol on carbon markets. This will result in embracing cleaner energy supply
and energy efficiency, thus, reducing costs, making production more competitive, as well
as tapping on the clean development mechanism.
5. There is need to strengthen the national disaster response system and risk management
through, inter alia, integrating climate risk management into the implementation of FNDP
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programmes. This should be aimed at developing the resilience capacity for the structures,
in particular the community, and putting in place the appropriate infrastructure for an
integrated, coordinated and comprehensive response to cyclical disaster such as drought,
floods and disease outbreaks.
6. There is need to develop a comprehensive Public Participation and Awareness Programme
that aims to promote public involvement and a sense of responsibility for the environment.
This should include the use of environmental education methodology to publicize the
vulnerability of the environment to human actions.
2.12 Governance
1. There is need to strengthen the linkages and collaboration between institutions and various
stakeholders that dispense or are instrumental in the dispensing of justice to the people. The
aim should be to strengthen their capacity to administer or contribute to the administration
of justice for all. This should include the development of sufficient courts and recruit
adequate personnel to enhance the administration of justice. The consolidation of the
autonomy of the Director of Public Prosecutions should be part of this. Complimentary to
this is the decentralisation of the Judicial Complaints Committee as well as civil litigation.
2. There is need to modernise the administration of justice through the introduction of
electronic systems in case flow management, databases, etc.
3. The Ministry of Justice should strive to domesticate all international conventions and
covenants on human rights to which Zambia has acceded.
4. There is need to establish an effective mechanisms for prevention of corruption in public
bodies, focusing on the following:
(a) Creation of efficient and effective procedures for investigations and
prosecutions by oversight bodies such as the Anti Corruption
Commission (ACC), OAG and Drug Enforcement Commission
(DEC)
(b) Cultivate collaborative and consultative mechanisms with
stakeholders towards curbing corrupt practices.
(c) Put in place mechanisms that would expedite the processing and
disposal of complaints against state institutions.
5. Give Parliament and its Committees more legislative and budgetary roles in ways that
would enhance its oversight functions over the Executive.
6. Government should support capacity improvements in the implementation of the
Constitution and related legal provisions, focusing on the following::
(a) Exploration of factors that impede the smooth implementation of the
provisions of the Constitutions, particularly those that relate to
human rights.
(b) Support of initiatives that target the protection of social, cultural and
economic rights of Zambian citizens.
(c) Addressing Gender and Human rights by supporting government and
Civil Society initiatives to ensure gender equality through advocacy
and support to legislative changes in line with the Constitution and
CEDAW.
7. There is need for capacity enhancement for securing transparency and accountability in
public sector management: This should include the following:
(a) Support the strengthening of public finance management, targeting
carefully-selected institutions that possess the capacity to generate
and disseminate timely information on the public budgeting and
expenditure processes.
(b) Foster inclusive participation that provides effective, practical
support to addressing inequalities and promote inclusion of
vulnerable people, including women.
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Introduction
1. Overview
Zambia launched the Fifth National Development Plan (FNDP) in 2006. This followed a long
spell following the adoption of structural adjustment programme (SAP) in the mid-1980s. The
return to National Planning followed the realisation that even in a liberalised economy,
development planning is necessary for guiding priority setting and resource allocation. In this
regard, The FNDP has, since 2006, remained Zambia’s development planning and resource
programming tool. As the Government facilitates the Mid-Term Review (MTR) of the FNDP, it
is important to recognise that the Plan is not independent of other public planning instruments
and processes such as the National Vision 2030, the Medium Term Expenditure Framework
(MTEF), and the Annual National Budget. The Annual Government Budget remained the
primary instrument for implementing the FNDP. Thus, while the FNDP has provided the
overall framework and specific programmes within the context of the projected resource
envelope, the Annual Work Plans for respective sectors actually guided, and continue to guide,
specific interventions. In this regard, all the activities that have been implemented annually
were expected to primarily focus on the realisation of one or more of the FNDP’s objectives
during the 2006-2010 period.
During the implementation of the FNDP thus far, the overall coordination of the
implementation of the Plan has rested with MFNP with the full participation of line ministries,
other government institutions, civil society, and international Cooperating Partners. The
Planning and Economic Management Department (PEMD) in MFNP remained the focal point
for FNDP coordination, monitoring, and evaluation. Existing departments in sectoral ministries
constituted the FNDP’s main implementation organs.
This MTR ought to be understood in the context of the virtue of monitoring and evaluation
(M&E) and how these two processes are expected to improve the prospects for the attainment
of the FNDP goals. Firstly, M&E provides essential data and insights for drawing lessons,
priority setting and informed review of FNDP implementation processes. Secondly, it offers the
assurance that resources, including donor funds, are used for agreed purposes. Thus, the FNDP
has purposely been designed as a results-based instrument that focuses on agreed targets and
results. The Plan has incorporated a system to monitor outputs, outcomes, and impacts so that
resources can be strategically managed and progress tracked. This MTR, on the other hand,
aims to determine the degree to which the set targets and expected outcomes/impact have thus
far been realised during the first half of the Plan period. Thus, evaluation is expected to
complement monitoring in that, when signals from the monitoring processes suggest that the
FNDP is going off track, the recommendations from this MTR should help to point out the
causes and suggest corrective measures.
With regard to the institutional framework for FNDP monitoring and evaluation, PEMD in
MFNP has remained responsible for the coordination, supervision, and management of all
elements of the monitoring system, including the consultative bodies, the consolidation and
production of reports, and the coordination of analytical work undertaken. The Central
Statistical Office (CSO) is the key institution in the provision of statistical data. At the centre of
the technical arm of the M&E institutional framework for FNDP monitoring is MFNP. Within
this, the Monitoring and Evaluation Unit, established in 2001, has a number of vital functions,
including coordinating the regular monitoring and evaluation of all Government and donor
supported projects and programmes; facilitating the development of M&E guidelines for use by
sectors ministries, NGOs and other stakeholders; and designing and developing national
systems and databases for monitoring and evaluating projects, programmes, and national
policies. At sectoral level, line ministries have been expected to be the major providers of
information. In terms of coordination, the institutional framework has included the existing
horizontal coordination bodies such as the NDCC, PDCC, and DDCC, as well as the SAGs.
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SAGs, comprising members from the Government, civil society, NGOs, and Cooperating
Partners were, by design, expected to have a major role to play in the monitoring of FNDP
progress. It is SAGs that are expected to provide forums for sharing of results from various
monitoring exercises. Under the FNDP, each SAG is expected to meet at least quarterly to
discuss the results of various monitoring exercises being undertaken in the sector and review
progress towards meeting the FNDP targets. In this way, dialogue among the major
development stakeholders was expected to be institutionalised. At district and sub-district
levels, for example, the monitoring system is expected to be open to the participation of
relevant stakeholders. In particular, it is expected that these actors will provide synergies in
monitoring and evaluating the FNDP, utilising qualitative data and participatory approaches.
Civil society organisations, through their participation, have been expected to share their
findings, which were expected to feed into the Government information systems. So far, the
M&E function has worked fairly well. At sector level, annual progress reports that encompass
sector performance on actual programme implementation are produced and consolidated into
the FNDP Annual Progress Report.
2. Methodology
This MTR Report provides an assessment of the performance of the FNDP mid way in its
implementation. The focus is to ascertain the degree to which the set targets and expected
outcomes are being realised. In undertaking the consultancy, the overall approach was
analytical, dynamic, interactive and highly participatory. Thus, the Report is based on
information gathered through desk review of relevant literature and interviews with key
implementing agencies in Lusaka and in all the nine provinces. In this regard, the report is a
reflection of the views and perspectives of many stakeholders. This is appropriate given that the
process of developing the FNDP was itself participatory in nature.
In undertaking the MTR, a multi-faceted approach was used that incorporated systematic
enquiry and analysis of the FNDP. The overall approach was analytical, dynamic, interactive
and highly participatory. This was found to appropriate given that the process of developing the
FNDP was itself participatory in nature. The process therefore included the following:
Although the quantitative data remains important, the key focus was on qualitative analysis. In
this regard, a favoured approach was one which is predominantly analytical over one that is
primarily descriptive; one that is more interpretative and less judgemental.
The primary focus of the MTR was on the seven expenditure priority sectors of the FNDP,
namely, Agriculture, Infrastructure, Health, Education and Skills Development, Water and
Sanitation, Public Order and Safety, and Energy. In addition to this, the exercise attempted to
include a broad analysis of progress in other sectors of the FNDP. This included a review of the
mainstreaming of crosscutting issues as outlined in the ToR for the Mid Term Review. It was
also felt imperative to assess the responses (positive or otherwise) from various stakeholders
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(especially the primary beneficiaries) to development initiatives and interventions that are
critical to the success of the FNDP. This helped in the analysis of the factors contributing to the
achievement of FNDP objectives or those that inhibited progress of FNDP programmes and
activities. To the extent possible, there was an attempt to determine the consequence of
unanticipated outcomes and impacts of the FNDP.
The review drew on existing macroeconomic and institution-based frameworks such as the
following:
(a) the Macroeconomic Sector Advisory Group (SAG);
(b) the PEMFA Working Group;
(c) the Financial Sector Development Plan Working Groups; and
(d) the Budget Execution Monitoring Committee.
(e) Monetary Policy Committee of the Bank of Zambia
(f) the Medium Term Expenditure Framework (MTEF) Committee at MoFNP and
(g) the Central Administration Sectoral Advisory Group
3. Field Work
Working in two teams, fieldwork was conducted in a framework shown below. Each team was
assigned particular sectors (focusing on the seven priority sectors) while ensuring that quality
assurance during the Fieldwork was divided into two teams. Team A covered Southern,
Luapula, Northern, and Eastern Provinces. Team B visited Central, Copperbelt, North-Western,
Western, and Lusaka Provinces. For each province, two districts were included, namely, (a) the
district that houses the provincial headquarters; and (b) a district that is less urban in character.
In the light of the above, it is noteworthy that this MTR is not an external one but one
undertaken by different arms of Government through collaborative effort of various
stakeholders under the Coordination of the Ministry of Finance and National Planning. A team
of sector specialists was constituted to come up with an initial draft that was discussed at wider
stakeholders’ forum comprising Cooperating Partners, quasi-government institutions, the
private sector, Faith Based Organisations, Civil Society Organisations, Members of Parliament
and Civic and Traditional Leaders. At the tail end of the process, an External Consultant was
retained by MFNP to finalise the MTR, taking on board the comments received from various
stakeholders on the Draft MTR. The final output has culminated into this Final Mid-term
Review of the FNDP.
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TEAM A TEAM B
4. Data Analysis
Data was collected, compiled, and treated using popular economic frameworks for assessing
development impact. This ensured that progress achieved at this half-way point of the FNDP
implemented theoretically was articulated and documented in a pragmatic and meaningful
manner. Some of the analytical dimensions included:
The analysis drew on modern development theories such as: social theories of development;
structural theories and neo-classical theories. The analysis sought, to the extent possible, to
establish both direct and indirect links between growth and development within the context of
the FNDP and broader national aspirations.
5. Report Outline
This MTR has five Part. Part 1 begins with Chapter 1 on Macroeconomic and present’s the
country’s economic performance and the associated policy regime. It shows the overall
performance of the Zambian economy over the Mid-term Review (MTR) period (2006-2008).
This is followed by Chapter 2 on Poverty Reduction Performance. Part 2 of the Report reviews
the performance of the main economic sectors, beginning with Agriculture (Chapter 3); Energy
(Chapter 4); and Infrastructure and Transport (Chapter 5). Part 3, in turn, focuses on Social
Sector Performance, beginning with Chapter 6 on Education and Skills Development; Health
(Chapter 7); and Water and Sanitation (Chapter 8). Part 4 of the MTR examines Cross-cutting
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Issues that include Gender and Development (Chapter 9); Food and Nutrition (Chapter 10);
Environment (Chapter 11); Governance (Chapter 12); HIV and AIDS (Chapter 13); and Public
Safety, Law and Order (Chapter 14). Part 4 also includes Chapter 15 on the Summary of Sector
Performance against the Key Performance Indicators. This Part ends with Chapter 16 on
Regional Development. Lastly, Part 5 of the MTR focuses on the sector-wide aspects of FNDP
Management, Implementation and the Way Forward. Under this Part, Chapter 17 looks at
Management and Monitoring of the FNDP while Chapter 18 offers Overall Conclusions and
Way Forward.
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Macroeconomic Performance
1
1.1 Introduction and Overview
The main macroeconomic objective in the FNDP is to secure and sustain fiscal and financial
stability as well as deepen structural reforms to achieve economic growth. It is anticipated that
this will be achieved through accelerated pro-poor economic growth; sustained single digit
inflation; financial and exchange rate stability; viable current account position; and reduced
domestic debt to sustainable levels. With respect to the acceleration of pro-poor growth, the
primary focus of economic policy remains that of reducing poverty through the implementation
of policies that are both growth-oriented and pro-poor. The FNDP focus on pro-poor growth
aims to ensure that the poor participate in the development process. The main growth objective
is, therefore, twofold: (a) increase the overall growth rate to an average 7 percent; and (b)
ensure that growth benefits the poor. In the light of this, the key FNDP growth strategies
include supporting rural development, especially agriculture; encouraging stronger linkages
between agriculture and manufacturing, especially through upstream linkages to agro-related
processing; stimulating stronger tourism growth; and supporting the expansion of a strong and
diversified export base.
Notwithstanding the above, the 2006-2008 period also witnessed a number of challenges that
included the adiverse effects following the onset of the global economic crisis; high oil and
food prices; poor performance of the agriculture sector due mainly to adverse climatic
conditions; weak links in many cases between planned resources under the FNDP and actual
resource allocation; and ineffective monitoring of performance due, in part, to weak
management information systems.
During the three years under review (2006-2008), real GDP growth rate averaged 6.1 percent,
which was below the FNDP target of 7 percent per annum. Notwithstanding this outturn, real
GDP growth rate improved from 5.2 percent in 2005 to 6.2 percent in 2006, 6.3 percent in 2007
and 5.7 percent in 2008. (see Table 1.1).
The positive growth, although below the FNDP target of 7 percent, was mainly driven by
several sectors that included construction, mining, tourism, transport and communications, and
community social and personal services (see table 1.2). The below target outturn was mainly
attributed to lower than projected growth in the primary sector, which consists of major growth
sectors of the economy, particularly agriculture and mining. The average output growth for the
period in the primary sector was recorded at 0.8 percent. This slow growth was attributed to
the poor performance of the agriculture sector arising from low crops yields due, in part, to
unfavourable weather conditions, particularly during 2007 and 2008. It can, thus, be concluded
that FNDP’s priority of supporting pro-poor growth targeting agriculture and rural development
has not been realised. Consequently, rural poverty has not been reduced in any significant way.
Notwithstanding, the poor performance of the primary sector, the secondary and tertiary
sectors’ performance was generally satisfactory with the latter recording above the FNDP
targets primarily on account of the good performance of the tourism and transport
communications sectors.
The performance of the monetary and financial sector during the period under review was
mixed with fluctuations recorded in inflation and exchange and interest rates. Single digit
inflation was achieved at 8.2 percent and 8.9 percent in 2006 and 2007, respectively. This was
above the FNDP target of 5 percent (see figure 1.1). Notwithstanding this development,
inflation in 2008 rose to double digits ending the year at 16.6 percent. This rise in inflation was
attributed to the high international oil and rising food prices. Interest rates also remained high,
averaging 26.4 percent. Nevertheless, reduced Government borrowing aided the easing of
pressure on interest rates. However, access to financial services within the economy remained
poor, as the interest rates were still high for most borrowers.
The external sector performance was favourable with external debt servicing maintained within
sustainable levels and overall balance of payments remaining positive. The Balance of
Payments position in 2006 improved remarkably with an overall surplus of US$821.6 million,
compared to the deficit of US$115.8 million the previous year. This remarkable improvement
was attributed to improvements in current, capital and financial accounts. However, the surplus
narrowed to US$310.5 million and US$12.7 million in 2007 and 2008, respectively. The
decline was mainly on account of the widening current account deficit arising from reduced
trade surplus. Export earnings grew by over 100 percent to US$ 4,876 billion in 2008 from US$
2,178 billion in 2005. In this regard, Gross International Reserves build-up improved from 1.5
months of import cover in 2005 to 2.2, 2.5 and 2.8 months of import cover in 2006, 2007, and
2008 respectively. The FNDP target of 2.5 months of import cover was, thus, met in 2007 and
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2008. The favourable export earnings performance in the review period was a positive stride in
achieving the FNDP strategy of promoting export development as one of the economic growth
drivers. Nonetheless, the continued instability in the exchange rates may adversely impact the
export sector.
Figure 1.1: Inflation trends 2006-2008
25
20
15
10
Inflation rate
5
0
2005 2006 2007 2008
-5
Period
The external debt position in the review period remained within sustainable levels and was
aided by external debt relief and budgetary support. Regardless of this position, the total
external debt increased from US$ 1,569.5 million at end-2006 to US$ 2,267.2 million at end
2008. The increase was mainly on account of the rise in private and parastatal debt and
Government contracting concessional loans amounting to US$ 351.84 million over the review
period (see table 1.3). This is in spite of the fact that the FNDP projected that new borrowing
should not exceed US$60 million per annum (FNDP, pg 351). Although the borrowing was
done for priority sectors, this was way above the planned levels. Concern has been raised in
some quarters that unless the external debt stock is maintained within sustainable levels, the
country could slide back into the debt trap.
In an effort to enhance efficiency in the public service delivery system, the FNDP sought to
improve the quality, efficiency, cost effectiveness and delivery of services through the
implementation of Public Expenditure Management and Financial Accountability (PEMFA)
Programme; Public Service Management (PSM); and Decentralisation. The key achievements
under PEMFA have included the contracting of a firm to develop and piloting of Integrated
Financial Management Information System (IFMIS) in at least eight spending agencies.
However, progress in the implementation of this effort was delayed due to administrative
constraints. Other achievements were decentralisation of office of Auditor General to the
provincial level; support to Parliamentary Reforms; and enactment of Public Procurement
Authority Act.
As regards enhancing governance at local levels, although the National Decentralisation Policy
was approved in November, 2002 and subsequently launched in August, 2004, the
Decentralization Implementation Plan (DIP) has not been approved by Government. The delay
in the approval of the DIP has affected fiscal decentralization, which has important implications
on the pace of FNDP implementation in this area.
At the level of poverty reduction, Zambia has so far fallen short of meeting the set FNDP target
and, consequently, poverty levels have worsened in several regions, particularly those that are
more disadvantaged in the rural areas. Given this situation, the country is unlikely to meet the
Millennium Development Goal No.1 of “Halving the proportion of people living in extreme
poverty by 2015.” Most importantly, there are little indications from the progress registered
thus far that the FNDP theme of “Broad based wealth and job creation through citizenry
participation and technological advancement,” would be met.
1.4 Assessment of Macroeconomic Key Performance Indicators
1.4.1 Overview
Monitoring of progress of the FNDP macroeconomic targets, especially in terms of impact on
poverty and welfare of the population, has been done using the process and outcome key
performance indicators (KPIs). The mid term assessment of the macro-economic performance
indicators has revealed that little or no progress has been made in meeting the FNDP set
targets. Table 1.4 reveals this clearly.
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outturn impacted negatively on access to credit by private sector due to continued high interest
rates.
Table 1.4: Key Performance Indicators and progress made in Macroeconomic Sector
2006-2008
Baseline Value FNDP
KPI 2005 target 2006 2007 2008 Assessment
by
2010
1 Domestic Borrowing 1.95 <0.5 1.6 1.2 1.5 Not met
as % of GDP
2 Stock of Domestic 532.8 0 491.8 248 196.2 Improving
Suppliers Debt**
(ZK billion)
3 Annual Broad Money 5,842.0 - 8,476.9 10,707.0 13,044.3 -
Supply (ZK billion)
4 Budgetary releases
for Key Sectors as a
ratio of the allocation (a) 1.11 ≥1 1.05 0.93 1
a) Health (b) 1.16 ≥1 0.96 1.06 1
b) Education (c) 0.95 ≥1 0.91 0.74 0.91 Partially met
c) Energy (d) 0.98 ≥1 1.12 1.02 1
d) Agriculture (e) 0.84 ≥1 0.85 0.71 0.84
e) Infrastructure (f) 0.41 ≥1 0.84 1.00 0.91
f) Water and
Sanitation
5 Domestic Tax 17.3 >18 17.1 18.7 17.2 Not met, but
revenue as % of GDP improving
7 Debt Service to 6.8 - 1.7 1.4 1.2
Export Ratio
8 Number of Ministries 0 48 0 0 0 Not met
and Provinces
operating IFMIS
9 Percent of key Heads 73 >95 69.4 55.1 100 met
whose total actual
expenditures is
between 95% and
105% of total funding
10 Variance between - <20 15.6 15.6 14.4 Not met
original budget and
primary budgeted
expenditure across
budget key heads
Source: Ministry of Finance and National Planning
resultant improvements in the international gross reserves build up; and the effects of debt
cancellation that was delivered under Multilateral Debt Relief Initiative (MDRI).
Table 1.5: Summary of Domestic Debt Stock (K’ Billion), 2005 – 2008
End- %
End-Dec. End-Dec. End-Dec.
2008 Change
2005 2006 2007
Debt Category 2008/2007
Government Securities 6,983.70 7,827.41 7,595.28 8,026.51 5.7
Treasury Bills 2,088.64 3,261..99 3,416.36 3,280.40 (3.9)
GRZ Bonds 4,895.06 4,565.42 4,196.16 4,746.11 13.1
Domestic Arrears 532.84 491.88 248.17 196.25 (20.9)
(Capital) 335.45 340.40 132.74 23.94 (81.9)
(PE's & RDC's) 173.81 174.90 90.32 173.96 92.6
Pension Arrears 414.00 417.7 302.70 149.61 (50.6)
Awards & Compensations 87.49 92.50 158.01 143.30 (9.3)
Total Domestic Debt Stock 8,283.41 8,841.83 8,296.29 8,517.33 2.6
Source: Ministry of Finance and National Planning
Notwithstanding the above, two of the FNDP’s strategic sectors, Agriculture and Education,
received higher than the planned target of 95 percent of the budget allocation during the review
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period. However, releases to infrastructure, another strategic sector in the FNDP, averaged only
71.3 percent, which was far below the FNDP target. If this trend continues, the attainment of
several macroeconomic and social targets that are intimately linked to improved infrastructure
will not be achieved by 2010.
2. Although the country’s (a) One important lesson learnt from the first half of FNDP
macroeconomic performance implementation is that, for economic growth to translate
recorded some measure of into employment creation and poverty reduction, it has
improvement in important to be broad-based with strong linkages to those sectors
respects, thanks to a combination that accommodates the majority of the poor. Pro-poor
of both external and internal focus should include agro-based industries and the
factors, the achievements have provision of financial resources that support pro-poor
not resulted in significant poverty growth, e.g. the lowering of lending rates for small-
reduction, in general, and scale farming businesses.
employment creation, in (b) The maximisation of value addition in agriculture,
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Provincial analysis of poverty trends based on the 2006 LCMS findings revealed that
significant reduction in poverty levels were from Lusaka and Copperbelt provinces. Central,
North-Western and Luapula provinces registered marginal reductions in poverty levels, while
provinces where poverty was on the increase were Western, Northern, Eastern and Southern.
As Table 2.1 above reveals, on average, poverty levels exceeded 70 percent in all provinces
except in Lusaka and Copperbelt.
2.3 Economic Growth and Poverty Reduction
Zambia has experienced sustained positive economic growth averaging 5 percent since 1999,
which has mainly been due to growth in mining and quarrying, construction, manufacturing as
well as transport, storage and communications sectors. This pattern of growth has had little
positive effect on the income levels of the poor who significantly depend on a sector
(agriculture) that is outside those that performed better. Agricultural performance during the
period under review improved from 2.2 percent in 2006; 0.4 percent in 2007; and 2.6 percent in
2008. Nevertheless, productivity has been on the decline. Moreover, 70 percent of agricultural
workers in Zambia are involved in informal agricultural activities. Thus, despite Zambia’s GDP
per capita increasing from US$635 in 2005 to US$934 in 2007, this positive growth has not
translated into significant reduction in poverty levels. Moreover, income distribution continues
to be skewed as the Gini-coefficient stood at 0.60 in 2006 (LCMS 2006).It is clear from the
foregoing that the growth experienced over the years, without complementary appropriate
resource targeting, has not been able to reduce the high levels of poverty in Zambia. (Table
2.2).
The structure of growth has been oriented to a few sectors, which are also capital intensive and,
thus, labour saving, which has reduced their contribution to FNDP’s goal of employment
creation. Moreover, it is clear that there are low linkages between the earnings from those
sectors that have registered growth with those, like agriculture, that house the largest number of
poor people. The low level of economic diversification in Zambia significantly contributes to
this state of affairs.
2.4 Pro-poor Budget Allocations and Expenditure
The areas identified in the FNDP for pro-poor public spending include, health, education,
agriculture (i.e. irrigation and livestock development), HIV and AIDS, rural infrastructure
development (i.e. feeder roads), rural financing and small and medium scale employment
promotion. The Plan has actually set expenditure targets for priority sectors of agriculture,
infrastructure, health, education and skills development, public order and safety and water
supply and sanitation. Under the agriculture sector, funding levels were targeted to rise from 5
percent of the domestic budget in 2006 to 9 percent by 2010. By 2008, however, funding to
agriculture stood at 5.8 percent of the domestic budget, representing only a minuscule increase
of 0.8 percent. This significantly explains the worsening poverty levels in rural areas that
depend on this sector for much of their livelihoods.
to 5.3 percent of the budget by 2009 and maintained in 2010. During the review period, total
releases to road sector amounted to K2, 130.5 billion, compared to the FNDP target of K2,
636.23 billion. In 2006 and 2007, the proportion of the domestic budget released to the road
sector was 3.4 percent, while releases for 2008 accounted for 4.2 percent. The expenditures to
this area, thus, seem to be on track.
In terms of spending on health, the FNDP targeted to raise the health sector expenditures for
both donors and Government from 10.6 percent in 2006 to around 14.1 percent by 2010.
During the same period, government spending would have to rise from 7 percent to 11.5
percent. The proportion of the domestic budget spent on health rose to 10.7 percent in 2007 and
dropped to 9.7 percent in 2008 respectively. For 2007, this represented an increase of only
0.1percent, while the 2008 outturn was a decline of 0.9 percent over the 2006 figure. FNDP
performance in the area of health during the review period has, thus, been below target.
Furthermore, the FNDP targets to increase spending on education and skills development to
22.4 percent by 2010, from 16.3 percent achieved in 2006. The proportion of the domestic
budget spending on education and skills development in 2007 and 2008 were 22.7 percent and
19 percent respectively. The outturn for 2007 was 0.3 percent above the end year while the
2008 achievement was a 2.7 percent increase over the 2006 figure. This was a generally
positive performance for the education sector.
Spending on water supply and sanitation from the domestic budget was envisaged to increase to
0.6 percent of the domestic budget by 2010 from 0.2 percent in 2006. Actual releases to the
water supply and sanitation sector accounted for 0.5 percent of the domestic budget in 2007.
From the foregoing, it can be concluded that the target of 0.6 percent in 2010 can be met if the
current expenditure levels are sustained with only marginal improvements.
The budget implementation data shows that that spending on priority and pro-poor sectors has
generally been satisfactory. Thus, achievement of the overall funding targets to these sectors
may be attained but there is still need for intra-budgetary re-alignment for more effective
results.
Figure 2.1: Releases as Percentage of Discretionary Budget for Selected Sectors, 2006 -
2008
25.00
20.00
15.00
Percentage
10.00
5.00
0.00
Health Water & Sanitation Education Social Protection Agriculture Infrastructure
(Feeder Roads)
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Figure 2.3: Percentage PRP releases against PRP budget allocation, 2006-2008
The bulk of the PRP allocations were meant for capital programmes especially for road and
other infrastructure development. Budget implementation over the period was, however,
affected by low absorption capacity on account of the slow pace of implementation of most
capital programmes.
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Performance of the social indicators has shown some improvements during the period under
review as demonstrated by positive outcomes for health, HIV and AIDS and Water Supply and
Sanitation. The Health Sector indicators of infant and maternal mortality rates declined from 95
per 1,000 to 70 per 1,000 and 729 per 100,000 to 449 per 100,000 between 2001-2002 and
2007. Similarly, the HIV prevalence rate declined from 15.6 percent in 2001-2002 to 14.3
percent in 2007, thereby exceeding the MDG target. In addition, access by households to
1
This is a proxy indicator for households with access to sanitary means of excreta disposal
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sanitary means of excreta disposal increased from 76.4 percent in 2004 to 85.5 percent in 2006.
(MLGH 2007).
The improvements in economic indicators during the period are largely a result of the
favourable macroeconomic environment and increased investment and economic activity in the
growth sectors (see Chapter 1). On the other hand, the poor performance of employment could
be attributed to high attrition rates due to among other factors; HIV and AIDS, brain-drain and
low recruitments in health, education and agriculture sectors. As for the Consumer Price Index,
the poor performance was mainly due to high food and non-food prices.
The favourable performance of social sector indicators is mainly due to consistent and high
investments in the sector, coupled with a supportive policy environment towards the
achievement of both domestic and global targets. Further, Government’s commitment and
leadership in the implementation and monitoring of programmes in the social sectors has had a
positive impact on social outcomes.
sector has also contributed to stagnation improve their position. Improved access to land
in household incomes for communities and credit could make a considerable impact on
engaged in the agriculture sector. rural poverty alleviation. The poor though they
lack collateral need credit for their basic
consumption and to finance working capital
(b) Infrastructure should be provided to rural areas to
stimulate the rural economy and improve
livelihoods.
3. Though most budget allocations to pro- (a) Pro-poor programmes should be clearly identified
poor sectors were on target, intra- in the priority spending sectors and allocated
budget allocations in some instances adequate funding to achieve desired poverty
were skewed toward one or two outcomes.
programmes in the sector to the (b) There is need to establish employment creation
detriment of other programmes, e.g. schemes such as the Multi-Facility Economic
agriculture sector. Zones (MFEZ) to address the high levels of
unemployment in the country.
(c) Efforts should be made to ensure adherence of
planned expenditure especially in health and
education and other pro-poor priorities.
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Part 2
3
Agriculture
3.1 Introduction and Overview
The main policy objective of the agriculture sector during the FNDP period is “to promote
increased and sustainable agriculture production, productivity and competitiveness in order to
ensure food security; employment and reduction in poverty levels.” The Plan envisaged
increasing resource allocations to the sector
FNDP AGRICULTURE KEY POLICY
from 1.6 percent of GDP to at least 2.3 percent OBJECTIVES
by 2010. During the FNDP period, the overall goal for the
agricultural sector is “to promote increased and
sustainable agricultural production, productivity and
In the light of the above objectives, the FNDP competitiveness in order to ensure food security;
priority areas in the agriculture sector include income generation; creation of employment
opportunities; and reduction in poverty levels.”
financing the control of pests and diseases; Governments’ focus was on the provision of rural and
provision of agriculture and integrated rural agricultural infrastructure, research and extension,
infrastructure; research and extension; and pest and disease control, agri-business and
cooperative development.
capacity building. The expected outcomes from these FNDP
programmes are the following:
During the period under review, growth in the (a) Attainment of food security for the majority
of households;
agricultural sector declined from 2.2 percent in (b) An increased contribution of the agricultural
2006 to 0.4 percent in 2007 and dwindled further sector to total foreign exchange earnings;
(c) Agricultural sector growth of 10 percent per
to 0.1 percent in 2008. This was due to annum from 2006 onwards;
unfavourable weather conditions in the country (d) Increased contribution of agriculture to
coupled with late distribution of inputs and GDP; and
constant outbreak of livestock diseases. (e) Increased incomes for those involved in the
agricultural sector
However, some crops such as rice, sunflower,
and mixed beans registered favourable growth.
To attain the FNDP objectives, Government embarked on the review of legal and institutional
framework of the sector. In this regard, the key policy measures undertaken included the
following:
(a) Formulation of a draft Cooperative Development Policy (CDP).
(b) Revision of legal framework governing the cooperative movement under the
Cooperative Societies Act of 1998.
(c) Review of Fisheries Act in order to bring it in line with current
developments in the sector;
(d) review of the agricultural marketing and credit acts in order to promote a
competitive, efficient and transparent public and private sector driven
marketing system for agricultural commodities.
(e) Formulation of Aquaculture (fish farming) Development Strategy aimed at
improving and promoting fish farming.
(f) Introduction of the Plant Breeder’s Rights Bill in Parliament aimed at
facilitating investment in Zambia Seed industry.
(g) Launch of the National Irrigation Policy and Plan (NIP) aimed at mitigating
the dependence on rain for agricultural production and harmonizing
increased investments in the irrigation sub sector.
(h) Launch of the Irrigation Development Fund (IDF) whose objective is to
mobilize irrigation funds to be disbursed to small holder farmers for
acquisition of irrigation equipment.
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Table 3.1: Budget Allocation and Releases for Core FNDP Programmes 2006-2008
(K billion)
Total 2006-2008
% %
Programmes as indicated in FNDP FNDP Budget Releases Releases / Releases /
Projection FNDP Budget
1. Irrigation development 177.4 43.8 23.5 20.0 53.6
2. Agriculture infrastructure & Land 151.9 27.4 15.2 10.0 55.4
development
3. Livestock development 194.4 46.3 49.5 25.5 106.9
4. Agricultural services & Tech 198.3 75.7 55.2 27.8 72.9
Development
5. Fisheries Development 56.3 38.0 30.5 54.1 80.2
6. Policy formulation and Coordination 67.6 49.8 43.0 63.6 86.3
7. Agric Marketing, Trade & 85.2 16.0 11.5 13.5 71.9
Agribusiness
8. Cooperative Development 12.6 21.2 13.1 103.8 61.6
9. Human Resources and Management 31.0 65.5 63.0 203.1 96.1
Dev
10. Fertilizer Support Programme 497.6 523.8 664.0 133.8 127.2
11. Strategic Food Reserves 130.0 335.5 400.2 307.9 119.3
TOTAL 1,542.3 1,243.1 1,370.6 88.9 110.3
Source: Economic Reports 2006-2008, FNDP 2006-2007progress reports and 2006 FNDP
One noteworthy result of the agriculture sector is the huge gulf between what was budgeted for
in the FNDP and the actual expenditure, revealing clear indications that the Plan provided very
little guidance to Government’s expenditure pattern in this field during the review period. Some
of the sectors that were billed as high priority in the FNDP received the least financing, a
phenomenon that definitely contributed to the worsening poverty levels in those areas,
particularly rural regions, which depend on agriculture for livelihood. Such strategic budget
lines as irrigation development, agriculture infrastructure, livestock development and
agricultural marketing received marginal funding in spite of their having been identified in the
Plan as priority areas and despite their holding promise for poverty reduction and,
consequently, improved social welfare of the larger segment of the poor. Fertiliser Support
Programme (FSP), on the other hand, did not only receive the largest share of the agricultural
budget in the FNDP but also netted larger than both the budgeted and released funds during the
review period. It is particularly noteworthy that the efficiency and effectiveness of the Fertiliser
Support Programme has remained questionable, which raises legitimate questions regarding the
rationale of its amassing such a disproportionate share of the agriculture sector budget. During
the field assessment, this MTR established that the FSP is not reaching the intended
beneficiaries due to leakages and poor targeting. In its current form, the FSP is likely to
undermine the overall performance of the agricultural sector and defeat the very purpose of the
FNDP in the agricultural sector, in general, and with respect to poverty reduction, in particular
to the extent that the majority of poor people depend on agriculture. In addition, the FSP’s
skewed support towards one crop (maize), important though it is the national staple food, has
distorted funding to the entire sector and continued to undermine the larger FNDP goal of crop
diversification. In addition, most cooperatives registered during the review period were
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agriculture-oriented principally because they want to benefit from subsidized inputs under the
FSP.
3.3 Programme Performance
3.3.1 Irrigation Development
In the period under review, the Irrigation Development Programme focused on infrastructure
development and irrigation support. Irrigation schemes in nine Farmer Training Institutes as
well as dams and weirs were constructed and rehabilitated throughout the country. A total of
nine irrigation schemes, three dams and one weir were completed, while works in 13 other
irrigation schemes were on going. A total of 3,885 hectares were brought under irrigation in
2007, which was below the target of 10,000 hectares. Whilst this is a critical area in the
development of the agricultural sector, the programme has been faced with a number of
constraints in terms of poor coordination; inadequate funding; weak absorption capacity by
some spending ministries and agencies; and poor coordination among responsible ministries
and cooperating partners. The disjointed efforts and inadequate coordination with beneficiaries
has affected ownership and utilization of irrigation infrastructure.
Monitoring of the activities under irrigation has been weak and this has adversely affected
successful implementation of programmes. With regard to funding, the MTR established that
much of the money failed to trickle down from the Ministry of Agriculture headquarters to
lower organs, a state of affairs that is explained principally by weak fiscal decentralization. In
2007, irrigation funds were moved to the Citizens Economic Empowerment Commission
(CEEC). In that year, there were no disbursements made to irrigation development
programmes. There are concerns that, under the current arrangement within CEEC, irrigation
development programmes may not be accorded the required attention to register positive
change in the sub-sector. This is because the funds under CEEC are administered as one pool
fund for any investment proposal. The progress achieved during the review period is presented
in the table3.2.
Table 3.2: Irrigation schemes 2006-2008
Province Location Project Name Status
Lusaka Chongwe Chalimbana FTI Irrigation demo Completed
Lusaka NRDC Irrigation Scheme Completed
Lusaka Cooperative College Irrigation Scheme Completed
Kafue Shantumbu Irrigation Scheme 30% Completed
Southern Monze Kanchomba FTI Irrigation demo on going
Monze Kanundwa Irrigation Scheme 60% Completed
Choma Ndondi dam Completed
Sinazongwe Kwenga Dam Spillway Surveyed
Namwala Kabulamwanda Dam Spillway Completed
Eastern Chipata Kacholola FTI Irrigation demo Completed
Chipata Mucheleka Irrigation Scheme 40%Completed
Lundazi Tigone Dam Completed
Western Mongu Namushekende FTI Irrigation demo Completed
Luapula Mansa Mansa FTI irrigation demo Completed
Milenge Mulumbi Irrigation Scheme 80% Completed
Kawambwa Kapaku Weir Completed
Northern Kasama Kasama FTI Irrigation Scheme Completed
Kasama Lukulu North Irrigation Scheme 50%
Mbala Chineke Irrigation Scheme 75%
Central Kabwe Kembe FTI Irrigation Demo Completed
Kapirimposhi Mulila Kazembe Irrigation Scheme Completed
Copperbelt Masaiti Masaiti FTI Irrigation Scheme On going
Kalulushi Chapula Irrigation Scheme On going
North Western Solwezi Kiyafukuma FTI Irrigation Demo On going
Solwezi Kiyafukuma FTI Irrigation Scheme On going
Solwezi Kalubamba Irrigation Scheme 60%
Mwinilunga Ikelenge Irrigation Scheme 40%
Source: Ministry of Agriculture and Cooperatives
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The condition of Farmers Training Institutes (FTIs) and small irrigation schemes were in bad
condition prior to the activities undertaken during the FNDP period. Since then, irrigation
demonstrations are being done in these FTIs and some small scale farmers are slowly beginning
to engage in irrigation focusing mainly on vegetable production.
In order to mitigate the impact of livestock disease outbreak, 1,037 animals were distributed to
beneficiaries in Southern Province while 252 heifers were distributed to 42 farmer groups in
Central Province as part of the 2007 Cattle Restocking Programme. In some provinces, the
cattle restocking programme was at a slow pace. However, no restocking was done in 2008 as
the funds allocated for this programme were not released. In addition to the cattle restocking
programme, Dairy farming was implemented in collaboration with cooperating partners such as
Agriculture Support Programme (ASP), GART, and Heifer International. Land O’ Lakes
constructed milk collection centres most of which were linked to dairy processors.
on all fishery areas aimed at enforcing regulations such as the fish ban and monitoring of
fishing gear. However, there are indications that, over the years, the number of fishers and
fishing gear has increased resulting in greater fishing pressure and the subsequent decline in
catch per unit effort, (Bangweulu Frame Survey, 2007).
During the review period, a number of trade transactions involving non-traditional agriculture
commodities were carried out, with primary agriculture (consisting of crops such as cotton,
tobacco, tea, coffee, and maize) generating foreign exchange amounting to US $605.7 million.
Floriculture export earnings amounted to US$243.5 million while Horticulture contributed
US$96.6 million (figure 3.1).
For primary agriculture export earnings, coffee faired quite well as it generated significant
foreign exchange. However, the country could not meet the high demand for this commodity as
production levels had declined. Export earnings from the maize tremendously increased by 441
percent. This could have been higher had the ban on export, especially in 2008, not been
effected. For cotton, the export earnings declined due to reduced national production and
unfavourable international prices. These developments negatively impacted on the FNDP
objective of increasing the agricultural sector’s contribution to foreign exchange from 3 -5
percent to 10-20 percent.
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The main nutritional problems prevailing in the country are protein energy malnutrition,
presenting as stunting among children and micronutrient deficiencies, particularly iron
deficiency. Malnutrition has also continued to occur even when access to food is sufficient.
Factors influencing nutrition status include access to safe water and sanitation, feeding
practices, maternal hygiene, and morbidity and HIV and AIDS. These factors pose a challenge
to food utilization as clean water is essential for proper food preparation, while poor sanitary
conditions increases the risk of exposure to disease, reducing the conversion efficiency of food
by the body. Access to safe drinking water during the review period was heavily compromised
by recurring drought conditions and poor water management and weak implementation of
policies relating to water and sanitation. The repercussions have been far reaching: Poor access
to water and sanitation leads to exposure to harmful and potentially life-threatening micro-
organisms, which have been a major contributory factor to mortality and morbidity from
diarrhoea and other intestinal disorders, particularly among children. It is estimated that at least
80 percent of all sicknesses in the average poor country can be traced back to unsafe water,
directly or as a breeding ground for diseases and insect vectors. The frequent outbreaks of
cholera during the rain season in Zambia are a reflection of the limited provision of safe
drinking water in both rural area and the unplanned settlements of urban centres.
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HIV and AIDS, which is an underlying factor of household food insecurity in Zambia given the
pandemic’s high prevalence level, will continue to pose various threats to household food
security, particularly where the loss or incapacitation of the breadwinner in a family puts
pressure on household income through medical expenses, reduced income and time spent in
caring for the sick. With regards to the treatment of the pandemic, the efficiency of ART
interventions has also been compromised when the target population is drinking
contaminated/polluted water.
Limited opportunities for income generation have worsened poverty levels, in general, and food
insecurity, in particular. In Zambia, the poor are net buyers of food and data indicates that, on
average, food constitutes more than 80 percent of total expenditure for this group, which would
even be higher in the absence of food assistance. The most vulnerable groups include
households that are headed by the elderly, those that host orphans, those with a disabled
member, and those that are either female-headed or child-headed. This is because they usually
have lower income per capita and are less involved in income generation activities, making
them more susceptible to high food price shocks that characterised part of the period under
review.
Low production and productivity in the agricultural sector has also contributed to food
insecurity during the review period. Although a larger percentage of the population resides in
rural areas and their major livelihood is said to be crop and livestock production, a larger
proportion of them still depend on marketed output for their food requirements. The identified
causes of this include low access to, and use of extension services; untimely access to the right
inputs, particularly fertiliser; inadequate mechanisation for drought power; poor access to good
quality seed; dependence on rain-fed agriculture; limited agricultural skills; and reluctance to
engage in crop diversification due, in part, to preference for maize that has been encouraged by
policy decisions. Drought has also negatively affected the conditions for grain production and
livestock development in some parts of Zambia (particularly the southern half of the country),
damaging soil fertility, water availability and biodiversity.
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remain unaddressed. The matrix below identified the main outstanding challenges and offers
recommended courses of action to address the problems.
Outstanding Challenge Recommendation
Improvement in Resource Allocation and disbursement Patterns
The annual budget allocations have not (a) Government’s annual budget should closely
matched the FNDP annual projections. The follow the prioritisation of the FNDP and
over-emphasis on some programmes ensure that allocations to the Plan’s core
(mainly FSP and FRA) to the exclusion of programmes are adhered to so as to reflect the
all other programmes has affected overall level of FNDP goals.
performance of the sector. There is also (b) The current situation where funding is skewed
significant resource wastage and towards FSP and FRA should be redressed so
misapplication on personnel-related that more funding is released for equally
expenditure such as allowances at the important programmes.
expense of real investments (c) The Budget line for FSP and FRA should be
separated and detached from the core MACO
budget to ensure better focus and targeting
(d) There is need for a deliberate policy on public
investments in agriculture infrastructure and to
separate the personnel emolument component
and allowances from capital expenditure
budgets
Efficiency of the Fertiliser Support Programme (FSP)
The FSP has performed badly with respect (a) Government should urgently examine the
to resource targeting and monitoring of its implications of continuing implementation of
impact the FSP in its present design. Specifically, the
programme should be revisited with a view to
making it more efficient and beneficial to both
government and the agricultural sector at large
and not just benefiting a few farmers.
(b) There is need to implement the
recommendations made by all previous audits
of the FSP to allow the Programme achieve
food security and contribute to economic
growth
Hastening of Legislative Reforms
Delayed implementation of policy and legal There is an urgent need to finalise all the enabling
framework such as the Cooperative pieces of legislation that are required to effectively
Development Policy (CDP), Agricultural implement the interventions that are needed
Marketing and Credit Act, Agricultural towards the realisation of the FNDP objectives
Credit act, Plant Breeder’s rights Bill and
Aquaculture Strategy has had a negative
effect on the performance of the sector.
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4
Energy
4.1 Introduction and Overview
The goal of the energy sector in FNDP is to ensure reliable, affordable and environmentally
sound energy for sustained social and economic development.
The energy sector performance in the FNDP ENERGY - KEY POLICY OBJECTIVES
The objective of the energy sector is to meet the energy
review period was unsatisfactory with challenge by increasing options and exploitation of Zambia’s
growth registered at minus 1.2 percent indigenous energy and human resources for sustainable
development. The policy objectives include:
as at end 2008. This was due to, inter (a) Biomass: To ensure environmentally sustainable
alia, failure in meeting the targets for exploitation of the biomass resource by ensuring efficiency
new electricity generation capacity, through better management and introduction of new
technologies such as biomass gasification and use of bio
appropriate pricing for energy, oil fuels.
importation, processing and storage as (b) Electricity: To expand both generation and transmission
well as establishment of strategic fuel capacity and increase access to electricity by the majority of
the population.
reserves. Nonetheless, there were (c) Petroleum: To ensure adequate, reliable and affordable
several important positive supply of petroleum products for all sectors of the economy.
(d) Coal: To increase the contribution of coal as energy source
developments in the sector. They in the national energy mix.
included the rehabilitation and up- (e) Uranium: To promote the exploitation of uranium as an
rating of generation plants; the energy resource for social and economic development.
(f) Renewable Energy Sources (RES): To increase the
continuation of rural electrification utilisation of RES by addressing the barriers to their wider
with the aim of increasing the number access.
of rural households with access to (g) Rural Energy Provision: To increase access to affordable
energy in rural areas, to reduce poverty and promote
electricity; and the phasing out of economic growth.
leaded petrol. (h) Energy Efficiency and Management: To promote the
efficient use of energy resources and promote substitution
where it is more economically and environmentally
The major policy development in the beneficial.
energy sector was the review and (i) Household Energy: To reduce dependence on wood fuel
and ensure sustainable provision of affordable, reliable
approval of the National Energy modern energy services to rural and urban households as a
Policy (NEP). NEP was reviewed to means of raising productivity and standards of living.
take into account new developments (j) Energy Pricing: To ensure that energy prices reflect costs of
providing energy and also take into account principles of
and to sharpen the focus of the sector to fairness and equity.
make it more responsive to the
demands of both the social and productive sectors of the national economy. In addition, the
Rural Electrification Master Plan was adopted.
4.2 Budget Performance
A total of K 285.9 billion for the Energy sector was projected as FNDP budget for 2006-2008,
covering both GRZ and donor contributions. The GRZ contribution was put at 149.3 billion. Of
this projected GRZ contribution, K139.2 billion (or 93.2 percent) was actually budgeted for
during the three years under review. Total releases for the period, at K164.7 billion, was
actually above both the GRZ budget and the FNDP actual projection (see Table 4.1). This
demonstrates that, for the Energy sector, Government more than met its planned budget during
the period under review.
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Table 4.1: FNDP Budget, Budget and Releases for the Energy Sector (2006 – 2008)
(K billion)
Budget GRZ Releases
Programme FNDP Target allocation
GRZ Donors Total GRZ Amount Percentage
of release
Energy Sector Reform 1.3 4.5 5.8 1.1 0.7 63.63
Electricity Generation and 7.7 30.4 38.1 0.3 0.2 66.66
Core programmes
Notwithstanding the above budget performance, several issues have been noted. There have
been significant differences between the provisions of the FNDP and what was actually
included in the annual sector budget during the review period. In addition, although the sector
has a sizeable donor component of about K136.6 billion for the review period, capturing donor
releases and expenditure has been problematic, hence there is no analysis to compare what is
coming from cooperating partners and its impact on the programme implementation.
The MTR established that performance has generally been unsatisfactory. For example, while
the electricity generation and transmission line development is allocated K 7.7 billion in the
FNDP for the period under review, only K0.2 billion was released. Considering the currently
increasing demand for electricity that has already surpassed supply, the poor investment in new
generation capacity threatens one of the FNDP’s objectives, namely, “to expand both
generation and transmission capacity and increase access to electricity by the majority of the
population.” Similarly, the strategic petroleum reserves programme, although having been
ranked third priority in the Plan, has received much lower allocations and releases than the
Planned projection. In contrast, the management of the petroleum sub-sector and rehabilitation
of infrastructure programme received releases above 100 percent. If this trend continues, it is
unlikely that FNDP objectives in this area will be met by 2010 although the sector has thus far
received more than the planned allocations.
are on schedule. Furthermore, in a bid to ensure stable and reliable supply of petroleum
products, Government decided to cushion the fuel pump prices, reduced excise duty; and
rehabilitated strategic storage reserves throughout the country. Below is the review of the
performance at different levels in the Energy sector.
Other developments included the identification of a developer for Kalungwishi hydro power
station and the rehabilitation of some mini hydro power stations resulting in 45 percent increase
in generation from mini hydro power stations. In addition, a privately-owned Zengamina mini
hydro power station with a capacity of 0.75 Mw in North-Western Province was launched in
the review period. A 220kv transmission line interconnection between Livingstone in Zambia
and Katima Mulilo in Namibia was commissioned during the review period. Electricity supply
in Western Province was also reinforced via the upgrading of Sesheke sub-station.
Furthermore, 33kv transmission line interconnection between Zambia (Chama) and Malawi
(Mzuzu) was commissioned in 2008 . This resulted in cleaner energy from hydro power being
provided to rural areas, which is expected to reduce dependence on wood fuel for a large
segment of the Zambian population, particularly those in rural areas.
Notwithstanding these developments, the magnitude of what has to be done means that most of
these new generation plants may not be commissioned by the end of FNDP in 2010. The low
electricity pricing, at 3.6 US cents/kWh, was considered too unattractive for new investment in
electricity generation. This means that the problem of electricity deficit still remains a
challenge for the energy sector.
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with high international oil prices, which affected stability of pump prices. Government made an
effort to stabilize prices through provision of a subsidy and, subsequently, reduction of excise
duty on petroleum products. The rehabilitation of petroleum storage strategic reserves at
TAZAMA in Ndola was also undertaken during the review period.
Out of the above KPIs, only two were reported on in the 2007 FNDP APR while others had no
data due to inadequate and unreliable data sources in the sector. At the moment, the only
reliable source of data on some indicators depends on CSO Household Surveys such as the
LCMS which are not conducted regularly.
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4.5 Outstanding Challenges and Recommendations
The performance rate of the energy sector during the review period was mixed but, generally,
there has been little positive development during this period. A number of challenges remain
unaddressed. The matrix below identified the main outstanding challenges and offers
recommended courses of action to address the problems.
Outstanding Challenge Recommendation
1. There is low investment in the (a) There is need to act decisively on the priority of power
Energy sector, particularly at the generation and transmission in view of the national (and
level of electric power generation regional) power deficit.
and transmission. (b) There is need to develop the Investment Plan for the
electricity sector, which should go hand-in-hand with the
implementation of the Electrification Master Plan.
(c) There is need to ensure that electricity tariffs are cost-
clearing taking into account, nevertheless, the need to
ensure that the management of the inevitable periodic
price adjustment is sensitive to the need to avoid undue
stifling of economic activities that could have far
reaching adverse effects to the larger economy.
(d) The current focus on the development of Mini-Hydro
Stations should be stepped up, focusing on:
o Identification of more potential areas that could be
developed
o Promotion and consolidation, through the extension
of special incentives, of private-sector participation
in the development of the mini-hydros.
2. There is a slow pace in the The political will and capacity to implement the Rural
implementation of the Rural Electrification Programme should be enhanced
Electrification Programme
There is clear indication of (a) There is need to carry out a detailed review of planning,
institutional and capacity resource application and management, and
limitations in the Energy sector implementation capacity in the sector, including the
that should be identified and Ministry in charge of Energy.
addressed. The weak resource (b) There is need to undertake a comprehensive Skills Audit
planning and application frailties of the energy sector with a view to identifying human
(including poor resource capacity needs.
reporting/tracking of donor (c) There is need for ZESCO to strive to meet the
money); inadequate linkages with performance targets set by the Energy Regulatory Board
other sectors/stakeholders (ERB) and where capacity constraints within the utility
collectively suggest serious parastatal are observable, these should be addressed as a
capacity challenges. matter of urgency.
3. There is a significant gulf (a) There is need to align the GRZ budget allocations with
between the planned the priorities and interventions provided for in the FNDP
interventions under the FNDP (b) There is need to avoid transferring resources away from
and the expenditure pattern in the planned capital investments/developments to
Energy sector. management and personnel-related expenditures as this
has the adverse effect of making the sector fail to meet
the FNDP targets despite the fact that it has been
receiving more than the resources envisaged under the
Plan.
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4. There is inadequate national (a) The country should create capacity to stock at least 3-
storage capacity of petroleum month national oil import cover through the rehabilitation
products. This has threatened the of existing storage facilities and the construction of new
capacity of the country to stock ones.
sufficient reserves that may be (b) Government should explore alternatives to the current
required during periods of energy setup of the petroleum sub-sector management and
crisis/scarcity. The current setup procurement with an eye on minimising the cost incurred
of procurement and management by the State.
of the petroleum sub-sector have
introduced an unjustified fiscal
on Government
5. There are weak linkages between There is need to develop good inter sectoral linkages to secure
the energy and other sectors. effective implementation of programmes in the Energy sector.
Consequently, the needed Synergies with sectors such as agriculture, tourism,
coordination and synergies environment, industry, science and technology and
required for enhanced manufacturing are particularly important in this regard.
performance by the sector are
absent.
6. There is weak engagement There is need to strength the Energy Sector Advisory Group
between Government and sector (SAG) to secure more inclusive and consultative platform for
stakeholders stakeholders engagement on decisions pertaining to the
energy sector
7. It is difficult to effectively assess (a) There is need to revisit the Energy sector’s M&E system
performance of the sector due to and develop comprehensive/appropriate KPIs that are
the absence of appropriate KPIs required for the measurement of the different dimensions
and inadequate/inappropriate data of the Energy sector performance under the FNDP.
sources (b) There is need to strengthen the Management Information
System in the Energy sector through the establishment of
the integrated management information system for the
Energy sector.
(c) The strengthening of the Energy SAG should be
undertaken to make it more inclusive of the other
stakeholders and allow it serve as an important M&E tool
for resource application resource and resource tracking.
8. The donor input into the Energy There is need for the Energy sector to fully integrate donor
sector is poorly reported and, inputs in their activities and develop mechanisms for better
consequently, it has been difficult reporting and tracking of the input of cooperating partners.
to quantify the extent of external
inputs in the sector beyond the
GRZ resources.
9. The cost of energy is threatening (a) Given the increasing cost of energy and the opportunities
to adversely affect the realization being offered by more environmentally-friendly options,
of the FNDP objectives in this there is need to look at alternative energy sources,
sector focusing on instituting well-funded research on
alternative energy sources such as bio-fuel, solar, wind,
etc
(b) As a rejoinder to (a) above, there is need to develop
environmentally sustainable investment framework in
renewable energy sources.
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5
Infrastructure and Transport
5.1 Introduction and Overview
In order to create an environment and investment climate consistent with the socio-economic
development objectives, Vision 2030 recognises the need for Zambia to develop and maintain
productive and social infrastructure and services such as roads; storage facilities, rail network,
energy, communication systems,
FNDP INFRASTRUCTURE AND TRANSPORT KEY
education, training and health facilities, POLICY OBJECTIVES
public utilities and other services. Vision Throughout the FNDP, the following have been identified as
2030 further notes that the performance of the major challenges to overcome:
(a) Poor State of Infrastructure through development and
the agricultural sector in general has been rehabilitation;
hampered by the poor state of feeder roads (b) Poor Funding for Infrastructure including for
and other communication infrastructure, maintenance and rehabilitation and through Public
Private Partnerships
lack of rural electrification, inadequate (c) Accelerate Reforms in the sector, especially in civil
credit facilities, poor agricultural aviation and water transport
(d) Improve Private Sector Participation in the development
marketing systems and fluctuations in and operation of infrastructure.
rainfall patterns. (e) Improving Capacity to Undertake Works particularly
amongst local companies
(f) HIV and AIDS Mainstreaming.
The Infrastructure and Transport sector in (g) Gender Mainstreaming, particularly assisting Women in
the FNDP comprises nine programmes rural areas and lessening their burden in the collection
consisting of policy, infrastructure of firewood, water and taking produce to the market on
foot.
management and development in the areas (h) Reducing the incidence of Vandalism and bring
of road transport, air transport, rail awareness to local communities to address vandalism
transport, water transport, planning and (i) Development of a clear policy on Housing Construction
information management systems,
housing, and public buildings. Within the road transport sub-sector, specific programmes were
formulated for the development of roads and bridges. The public buildings programme, one of
the three sub-sectors of the Infrastructure and Transport Sector of the FNDP, includes housing
(for Government staff, other residential developments etc); and buildings (public office blocks,
sports infrastructure, health facilities, museums etc).
The government is currently undertaking the second phase of the 10-year ROADSIP II
programme (2004-2013), which represents spending totalling $1.6 billion.2 ROADSIP II has
four main objectives: to bring the core road network (40 113 km of which over half are
classified as trunk, main and district roads and the remainder as feeder, urban and parks roads)
into serviceable condition; to strengthen the technical and managerial capacity of the new road
authorities; to create employment opportunities in the road sector; to improve road safety and
environmental management in the road sector through the establishment of procedures and
guidelines. Under this National Public Private Partnership (PPP) policy the government of
Zambia has set out to facilitate for the provision of infrastructure and effective delivery of
social services through Public Private Partnerships (PPPs) in order to ensure that there is
2
The Infrastructure and Transport sector in the FNDP comprises nine programmes consisting of policy, infrastructure management
and development in the areas of road transport, air transport, rail transport, water transport, planning and information management
systems, housing, and public buildings. Within the road transport sub-sector, specific programmes were formulated for the
development of roads and bridges. The public buildings programme, one of the three sub-sectors of the Infrastructure and Transport
Sector of the FNDP, includes housing (for Government staff, other residential developments etc); and buildings (public office
blocks, sports infrastructure, health facilities, museums etc).
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The main focus of the Infrastructure and Transport sector under the FNDP is to rehabilitate and
maintain roads, storage facilities, rail network, energy, communication systems, education,
training, health facilities and public utilities. Some of the specific policy objectives included the
following:
(a) to develop Public Private Partnership policy
(b) to facilitate housing infrastructure development
(c) to support infrastructure planning and monitoring
(d) To facilitate infrastructure management and development
(e) To construct national stadia
(f) To facilitate urban market development and information management systems.
During the review period, the general performance of the sector was satisfactory. The road
subsector’s performance was fair with all targets met except for the maintenance of the
unpaved roads. During this period, the road sub-sector continued implementing programmes
under ROADSIP II. The aim was to bring the core road network of 40,113 km into serviceable
condition; strengthen the technical and managerial capacity of the new road authorities; create
employment opportunities in the road sector; and improve road safety and environmental
management in the road sector through the establishment of procedures and guidelines. The key
milestone in the rail sub-sector was the commencement of construction of the Chipata-Mchinji
rail line and the commissioning of feasibility studies for five other railway routes. To improve
air transport infrastructure, rehabilitation of airports and aerodromes was undertaken
countrywide.
Water transport, despite its inherent advantage of being the cheapest mode, is not fully
developed to realize its potential due to lack of equipment to dredge canals and waterways;
inadequate handling equipment at harbours; and insufficient technical expertise to manage the
sector. The construction and rehabilitation of public buildings included mainly the construction
of one stop border facilities, office buildings, hospitals, sports infrastructure, markets, and
schools. The policy on Public Private Partnership (PPP) was approved to attract private sector
participation in public infrastructure construction. In addition, the National Council for
Construction has been undertaking certification for contractors and developed an action plan to
strengthen the local construction industry.
actual budgetary allocation during the review period amounted to K3,433.28 billion, which was
30 percent more than what is provided for in the FNDP. The total budget releases amounted to
K2,130.5 billion, representing 81 per cent and 62 per cent of the FNDP projection and the
budget allocations, respectively. The local and foreign components released were 41 per cent
and 59 per cent respectively.(see table 5.1).
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Public buildings programmes under the Ministry of Works and Supply include health
infrastructure (e.g. hospitals), sports infrastructure, museums and many other facilities. The
budget allocations for public buildings were generally lower than the FNDP projections during
the review period. This part of the report will not give a complete assessment of the
performance of the public buildings programme because there is considerable infrastructural
works being budgeted for and carried out directly under different sectors/ministries of the
FNDP. Due various constraints and for ease of presentation, this report has not combined all the
infrastructure/buildings assessment in this one section. Figure 5.1 shows the allocation of
resources to the public buildings sub-sector.
200.00
180.00
160.00
140.00 FNDP Tar get
120.00
Budget ed
100.00
Releases
80.00
60.00 Act ual Expendit ur e
40.00
20.00
-
2006 2007 2008
Source: FNDP and Ministry of Finance and National Planning 2006, 2007 and 2008 Financial Report
Figure 5.1 shows clearly that the FNDP targets for public buildings during the review period
were almost twice the levels of funds budgeted (in yellow book) during each of the years 2006,
2007 and 2008.
An important Government initiative in the Roads sub-sector related to the acquisition of road
maintenance equipment from China for use country-wide targeting specifically the rural areas.
In the light of some positive developments in the roads sub-sector, there has been reduced
travel time for the transportation of goods and passengers on rehabilitated trunk, main and
district roads. However, the rural feeder roads remain poorly funded, a state of affairs that has
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negatively affected the FNDP target of reducing rural poverty as this type of infrastructure is
key to the realisation of this goal.
During the period under review, Government continued the construction, rehabilitation and
maintenance of buildings. Under Public Buildings, designing and preparation of tender
documents and supervision of the construction and rehabilitation of public major works were
undertaken. These were carried out for Defence, Health, Education, Public Order and Security
and Science and Technology sectors. The construction of various hospitals and health centres in
Lumwana, Chongwe, Samfya, Chiengi, Sitoti, Kapiri-Mposhi and Kaputa commenced. With
regard to provision of office accommodation, the completion of the Freight Terminal and
Passenger Control buildings at Chirundu Border Post and Government Complex office block in
Lusaka eased the pressure on Government office space.
The major activities undertaken using donor resources were the American-funded health care
projects namely, Paediatric Ward and TB Ward in Dambwa; Mukuni Police post and Maramba
VCT Centres in Livingstone, and State Lodge VCT Centre in Lusaka. The other job that was
completed is the Centre for Infectious Disease Research in Zambia (CIDRZ) project. Some
projects under the Auditor General’s Office for constructing office blocks were undertaken
under PEMFA.
The major achievements in the public buildings sub-sector have been Chirundu border and
Katima Mulilo border infrastructure. These one-stop border facilities are expected to enhance
smooth movements of passengers and cargo across national boundaries. The completion of the
New Government Complex also helped to increase office space for most government
institutions who were renting from the private market. Similarly, the construction of the
Auditor General’s Office blocks is expected to increase the operations of the institution while
the newly constructed health facilities are expected to improve the provision of health services
to the local communities
In the rail sub-sector, a number of feasibility studies have been commissioned for five rail
routes. The rail concession of the Zambia Railways considered and feasibility studies for the
Chipata-Petauke Serenje,Nseluka-Mpulungu, Kafue-lion’s den, Solwezi-Lumwana-Benguela,
Mulobezi-Namibia border and Chipata-Petauke-Serenje railway routes were undertaken. The
construction of Chipata-Muchingi Railway line commenced and was nearing completion by the
end of the review period. It is envisaged that the routes identified during the period under
3
Routine Maintenance works are of a repetitive nature, therefore, only the highest record of kilometres covered within the quarter
are recorded as the cumulative total whereas Periodic Maintenance is treated on a cumulative basis per quarter.
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review through PPP will be developed to increase the efficiency of transporting cargo currently
being handled through the road system. Table 5.7 highlights the output performance of the
Airports Development programme.
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2. Some mining houses have All mining companies, without exception, must be compelled to
failed/refused to honour pay taxes and royalties as required by law.
royalty payment obligations.
This has negatively affected
Government revenue base.
3. Government lacks an Government should put in place effective mechanisms for
appropriate strategy to capturing the GDP contribution of small-scale mining ventures.
capture the contributions of
small-scale mining to GDP
4. There is no gemstone There is need to establish gemstone processing, exchange and
processing, exchange and auction centres as planned to allow the country benefit from
auction centres gemstone proceeds.
5. There is lack of value Government should develop an incentives regime that aims to
addition to minerals and encourage value addition in the minerals and chemicals produced
chemicals produced in the in the country.
country.
6. There is absence of effective Government should work out mechanism for promoting the
mechanisms to promote establishment of industries using industrial minerals such as
industrial minerals limestone, manganese, phosphates, silica, etc. that are mined in
some parts of the country.
7. There are inadequate Government should enhance and enforce mining regulations by
capacity for enforcing providing sufficient human and financial resources to the Mine
mining safety regulations Safety Department.
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Part 3
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6
Education and Skills Development
6.1 Introduction and Overview
Education and training do not only provide skills that drive the economic and social
development of the country but also grant equal opportunity to individuals. The policy
environment for education in Zambia is developed within the framework of existing
international and regional education
FNDP EDUCATION AND SKILLS DEVELOPMENT -
policies such as Educating Our Future, KEY POLICY OBJECTIVES
the Millennium Development Goals The following are the key policy objectives of the sector:
(MDGs) and Education For All (EFA). (a) To improve access, gender equity and quality in basic
education (Grades 1-9);
(b) To improve quality and efficiency in high school and
The formulation and implementation of tertiary education;
education and training policy involves (c) To develop relevant skills and enhanced learning
achievement by all learners;
four Ministries, namely, the Ministry of (d) To effectively decentralise decision-making,
Education (MOE); Ministry of Youth, procurement and financial management to districts and
schools;
Sports and Child Development (e) To manage / mitigate the impact of HIV/AIDS.
(MYSCD); Ministry of Community (f) To provide appropriate infrastructure and facilities to
Development and Social Services enhance increased enrolment that is inclusive of
vulnerable and disadvantaged learners in the basic skills
(MCDSS); and Ministry of Science, and TEVET institutions;
Technology and Vocational Training (g) To develop diversified curricula that will mainstream
(MSTVT). Ministry of Local entrepreneurship, career guidance and development
from early childhood to TEVET in order to provide skilled
Government and Housing plays a role in human resources for increased productivity and income
the policy on pre-primary education. generation in the formal and informal sectors;
(h) To develop appropriate training, assessment and
qualifications systems to meet the current and future
The Government, through the Ministry demands of the labour market;
of Education, is the main provider of (i) To mainstream cross-cutting issues (e.g. HIV and AIDS,
gender, disability and environment) in the basic skills
basic, high school and tertiary education. and TEVET systems; and
Other providers are the private sector, (j) To develop revise and improve the overall framework for
churches and the community. Some of quality educational planning, human resources, financial
management and administration of technical and
the church and community run schools vocational educational delivery.
receive some grants from Government.
Another feature of the education system is that of community schools. These are founded by
the community to meet basic needs of children who are not in the formal schools. In 2006, the
first year of implementing the FNDP, the education sector did not align its programmes
according to the FNDP programmes areas. This was due to the fact that the sector was in the
final year of implementing the Education Sector Strategic Plan. By 2007, the education sector
aligned its programmes to the FNDP. This is noteworthy as it poses some challenges in
analysing 2006 information in the context of the FNDP.
During the FNDP period, emphasis has been placed on improving the quality of education
while increasing access through reforms in curriculum development; syllabus design;
professional teacher enhancement; making the learner environment more productive; and
creating a conducive environment for learners. In terms of access to education, the major
reforms are through provision of education through low cost/high impact interventions such as
use of open and distance learning and provision of literacy and basic skills education. FNDP
focus is also on ensuring that pro-poor policies are instituted to offer equitable education to
vulnerable groups. For these policy reforms and priorities to materialize, partnerships are to be
forged and strengthened between Government, donors, NGOs, FBOs and private education
providers.
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The vision of the Education sector as articulated in the FNDP is that innovative and productive
life-long education and training is accessible to all by 2030. The FNDP places emphasis on
improvement of quality of education in addition to increasing access, focusing on early
childhood care, development and education, upper basic, high school, vocational training and
tertiary education. The following six FNDP goals have been developed for the attainment of
this vision:
In 2007, the FNDP budget for the education sector amounted to K2,023 trillion. Resources
available from both external and domestic sources were only K1,916 trillion (K1,616 billion
from GRZ and K300.5 billion form external sources). This created a funding gap of K106
billion. Personnel emoluments accounted for K1.010 Trillion, and non- personnel emoluments
amounted to K911 billion. The 2007 budget had two priorities, infrastructure development and
provision of education materials.
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Allocations by programme of the 2007 budget shows that the highest allocation went to
management and administration (58.73 percent), which includes personnel emoluments that
account for over 50 percent of this amount; infrastructure development (17.54 percent);
research and university education (12.8 percent); Curriculum Development and Education
Materials (5.25 percent); Equity (3.97 percent); Standards and Assessment (1.2 percent);
Teacher education (1.01 percent); and Distance and Open Learning (0.22 percent).
The budget requirement for 2008 amounted to K2.147 trillion of which K1.878 Trillion was
from domestic resources while K268 billion was from external sources. However, the actual
commitment from external sources was only K223 billion. This caused a funding gap of K58
billion. In terms of allocation to the programmes in 2008, this followed the same pattern as for
the previous year with management and administration taking the highest allocation while
Distance and Open learning receiving the lowest. Table 6.1 shows FNDP projection, budgets
allocations and releases to the education sector’s core programmes over the 2006-2008 period.
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6.2.7 Equity
Like in the case of several other education sector programmes, the equity area received
significantly low releases even in years (like 2008) when the budgeted amount was even higher
than the planned allocation under the FNDP (table 6.6).
6.3.3 Equity
The sector has continued to make major strides in increasing the enrolment of girls, orphans
and vulnerable children and those with special education needs. Due to a mix of interventions
such as the policy of free basic education; the expansion of coverage combined with bursaries;
and the Pregnancy Re-admission Policy, girls enter primary school at about the same rate as
boys. The number of orphans enrolled in basic education stood at 21.4 percent in 2006 but
went down marginally to 20.7 percent in 2007.
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It is worth noting that Girls are still dropping out of the school system in greater numbers than
boys.4 While there is gender parity in lower basic education, the retention of girls in school is a
challenge due to the many factors that work against girls’ continued stay in school. For
example, girls’ role in household chores; early marriage; and the upward trend in cases of
violence against girls in school are among the factors that explain this state of affairs.
Geographical disparities are also evident. Performance indicators are showing that Eastern
Province lags behind on gender indicators related to girls. Examination results also show large
geographical disparities. In fostering gender parity, it is noted that all tertiary level educational
institutions observe the 30 percent quota for women in their annual student intake.
6.3.4 Quality
Enhanced quality in education is mainly measured in terms of improved teacher training,
improved availability of teachers, improved relevancy of the curriculum and adequate supply of
learning and teaching materials. The most important measure of quality in education provision
is pupil-teacher ratio (PTR)/pupil class ratio. In 2007, the PTR for grades 1 to 4 stood at 75, a
reduction from 76.6 in 2006 while that of grades 5 to 7 stood at 35.8, a decline from 36.4 in
2006. The PTR for grades 8-9 stood at 32.6, rising from 32.3 in 2006 while the PTR for grades
10-12 reduced to 19.3 from 20.3 in 2006. The drop in the pupil-teacher ratios was as a result of
the teacher recruitment and deployment exercise that were done during the review period. The
targets for 2007 were to have 98 percent of qualified teachers for both grades 1-9 and 10-12.
However, these targets were not met as only 84 percent and 96 percent of the teachers had the
appropriate qualifications to teach grades 1-9 and 10-12, respectively. This was attributed to the
proliferation of community schools at grades 1-9, most of which had insufficient qualified
teachers. It is worth noting that although completion rates are high in Zambia compared with
other SSA countries, learning outcomes are not. According to the National Learning
Assessments, only around one third of grade 5 students meet the minimum requirements for
maths and English language. The shortage of mathematics and science teachers and materials
is still a major challenge. The high school exam pass rate has stalled at 70 percent in recent
past. Furthermore, the tertiary system remained fragmented during the review period and
poorly responsive to the labour market. Although new strategy for TEVET was developed,
implementation has been difficult and slow.
6.3.6 Decentralization
The MoE has taken several positive steps to de-concentrate greater decision-making and
financial management authority to local administrative levels. The introduction of Education
Boards at the District, High School and Teacher Training College level broadened governance
oversight to include teachers, parents and the wider community in decision making within the
education sector. Measures have been introduced during the review period to decentralize
some textbook procurement through a joint management arrangement between schools, District
Education Boards and booksellers. The FNDP emphasizes the need to improve quality service
delivery through strengthening of local decision-making. However, the adoption by Cabinet of
the Decentralisation Implementation Plan (DIP) has been pending since 2006.
4
FTI Catalytic Fund. Zambia Summary Documentation. Oslo, Norway. December 22nd, 2008.
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In terms of absolute figures, the total pupil school enrolment for Grades 1 to 9 stood at 3.1
million in 2007 compared to the 2005 and 2006 figures of 2.8 million and 2.9 million,
respectively. This represented an 8 percent increase. Between 2003 and 2007, enrolment at
Basic School level increased by as much as 39.4 percent. However, enrolments for Grades 8 to
5
FTI Catalytic Fund. Zambia Summary Documentation. Oslo, Norway. December 22nd, 2008.
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9 rose only marginally by 8.65 percent from 285,017 in 2005 to 312,021 in 2007 (figure 6.1).
The figure 2 indicates enrolment distribution by running agency.
GRZ
74%
Source: Ministry of Education
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Difficulties in retaining teachers in (a) Need for MOE to build more houses for teachers,
rural areas as most demand for particularly in rural areas.
transfers within 2 months of (b) There is need for a comprehensive retention
deployment. Allowances have been strategy which brings together various efforts. In
unattractive and insufficient to meet this light, sponsorship for further training should
demand. give priority to teachers in rural areas as a measure
to encourage more teachers to work there. Similarly,
there is a need to improve incentives to keep
qualified teachers in the worst off areas, and keep
degree holders there.
(c) The situation of female teachers in rural areas
requires special attention. A study to evaluation the
challenges and possible improvements at this level
should be commissioned.
There is no CPD for teacher Sponsorship for advanced training should be tied to
educators who need frequent updating teachers’ areas of specialisation.
on their respective pedagogy. Quite
often, teachers who pursue higher
qualifications do not take courses
related to their teaching subjects.
Textbooks
There is insufficient allocation of (a) More resources should be earmarked for textbooks
resources for textbooks procurement. acquisition in order to meet demand.
Textbook procurement manual is not (b) There is need to streamline the current textbook
readily available. In addition, procurement and distribution procedures.
textbook procurement is not always Decentralized procurement of education materials to
based on actual need in terms of school level has proven to be more effective in
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subjects, titles and quantities delivery and cost and is hereby recommended. A
decentralised procurement study should, therefore,
be commissioned to recommend the best way
forward.
(c) A more sophisticated system that tracks books per
grade and per subject should be developed
Classrooms Infrastructure
Demand for additional infrastructure A more comprehensive approach to infrastructure
is still high as schools are far apart, development is required and should include toilets,
especially those for upper basic and water, desks and staff houses.
high school
Quantitative improvement at High School Level
The quality of education at the upper In the context of growing enrolments in basic education,
basic and high school levels has there will be need to focus on the expansion of other
suffered from under-funding due to levels of education, particularly upper basic and high
the long period of bias in favour of school education and consider developing
basic education complementary strategies for tertiary-level education
Equity concerns: Community schools and HIV & AIDS
There has been the proliferation of MOE should put in place clear and comprehensive
community schools with modest Guidelines on community school.
means and lack of basic inputs. This
has compromised the quality of
education. Consequently, one of the
main challenges is the improvement
of the quality of education in
community schools, particularly at
the primary level. Presently, there is
insufficient guidance from HQs on
the implementation of Guidelines on
Community schools. As a result,
DEBS have been providing guidance
to community schools with
insufficient guidance
Mainstreaming HIV and AIDS has MOE should pay greater attention to mainstreaming HIV
remained a major challenge. and AIDS in the education system
The education
Early Childhood Care and Education Development (ECCED)
ECCED is underfunded and the (a) ECCED sub-sector is still relatively new in the MoE
modalities of engagement between and as such the government needs to play a more
the state and the private sector is yet critical role in advocacy, developing standards,
to be fully explored and/or exploited curriculum, and quality assurance and monitoring,
for the maximisation of both and evaluation. Public sector financial support also
qualitative and quantitative requires to be targeted at the neediest children, with
improvements of the sub-sector emphasis on fostering partnerships with other
stakeholders, including the served communities.
(b) Modalities for effective partnerships and alliances
with the private sector in the delivery of ECCED
services should be developed and operationalised.
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7
Health
7.1 Introduction and Overview
The Zambian health care system had deteriorated due to a number of factors that include an
increase in demand due to increasing disease burden and the weak economic performance that
characterised the country during the 1980s FNDP HEALTH - KEY POLICY OBJECTIVES
and 1990s. The FNDP has identified 19 The Key objectives of the FNDP for the Health Sector mirror
core programmes, and 8 non-core the MDGs and include the following:
(a) To ensure the availability of well trained, motivated and
programmes which are envisaged to drive appropriate staff at all levels of the health care system.;
the attainment of the health sector goal and (b) To strengthen the provision of efficient and cost-effective
quality basic health care services (both preventive and
vision. The Zambia Health care services curative) at all levels of the health care delivery system as
delivery is mainly done by public health defined in the Basic Health Care Package;
facilities under the Ministry of Health (c) To Provide adequate infrastructure and appropriate
equipment conducive for the delivery of quality and
(MoH) There are also health facilities accessible health services at all levels of the health care
under the Ministries of Defence, Local system;
(d) To provide equity of access for all Zambians to good
Government and Housing, and Home quality, efficacious and safe essential drugs and medical
Affairs. Mining companies also provide supplies; and
health facilities. Others are mission (e) To strengthen and streamline health care management
hospitals; clinics coordinated under the systems to enhance management decision making and
accountability at all levels of the Health Sector
Churches Health Association of Zambia
(CHAZ); private hospitals and clinics; NGOs and traditional healers.6
The Zambian Government has been implementing significant health sector reforms since 1992.
The reforms, whose vision is to “provide the people of Zambia with equity of access to cost
effective, quality health care as close to the family as possible,” were articulated in the National
health policies and strategies of 1992. The Ministry of Health embarked upon the policy of
decentralization that witnessed the transfer of direct service delivery to lower organs. Most
recently, Government repealed the National Health Services Act of 1995, which lead to
dissolution of the Central Board of Health (CBOH). The implementation of the reforms has
been through a series of national health strategic plans of which the fourth and current one
covering the period 2006-2010 has been aligned to the FNDP.
6
According to the 2007 Health Facilities census, there were 1,419 health facilities of which 84.3 percent belonged to
Ministry of Health, 8.0 percent ( CHAZ) and 5.6 percent (private).
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Table 7.1: Annually planned programmes and budgets for 2006-2008 (K’billions)
Annual 2006 2007 2008
GRZ GRZ GRZ
Programmes
Donors GRZ Releases Donors GRZ Releases Donors GRZ Releases
Capacity Building 4.6 1.96 1.91 0.7 2.3 1.8 1 1.5 1
District Health
Systems Management 38.1 5.5 5.8 35 21.1 21.1 3.5 3.7 3.7
General
Administration 1.2 20.7 29.6 - 47.6 38.7 0 4.3 2.1
Health Service
Delivery 380.6 71.8 76.2 245.3 342.1 95.1 0 421.0 164.0
Health Systems
Management 69.1 30.9 82.4 38.9 43.7 35.7 6.2 96.1 97
Infrastructure
Development 17.2 89 51.3 - 96 72.2 12.6 6.3 6.3
Personal Emoluments 0 294 340.9 - 392.3 388.9 108.8 71.8 92.3
Support to
Institutions 0 37.6 37.6 2.8 41.9 41 108.7 71.4 93.6
Training of Health
Workers 13.1 5.5 5.7 7.6 6.2 6.3 31.6 25.2 25.2
Total 523.9 556.96 631.41 330.3 747.9 700.8 272.4 283.5 323.3
Source: MoFNP, Budget Status, 2006, 2007, 2008 and the FNDP 2006-2010
There have been increasing investments in safe motherhood, including facilities for Emergency
of Obstetrics Neonatal Care (EmONC). The period under review recorded 44 districts out the
72 that are being strengthened in EmONC. This has also been complimented by a positive
policy environment for Reproductive Health.
The 2007 Zambia Demographic Health Survey (ZDHS) preliminary findings showed an HIV
prevalence rate of 14 percent for adults aged between 15-49 years, from 16 percent observed in
2001/2002. The Health Sector Mid-Term Review preliminary report indicates that HIV
infection rate was higher among women, at 18 percent, than men at 13 percent. The place of
residence is also closely associated with HIV levels and the rate was twice as high in urban
areas as in rural areas (23 percent and 11 percent, respectively). Provinces with levels above the
national average include Lusaka (22percent), Copperbelt (20 percent), and Southern (18
percent). Approximately 39.5 percent of babies born to HIV positive mothers are infected with
the virus.
Table 7.2: Malaria case Fatality Rates disaggregated by province and age group, 2006-2007
2006 2007
Province
Under 5 Over 5 Total Under 5 Over 5 Total
Central 39 41 39 38 39 38
Copperbelt 26 35 31 61 22 40
Eastern 53 85 66 42 53 47
Luapula 38 60 44 38 41 39
Lusaka 29 34 31 36 31 34
Northern 29 28 29 28 27 28
North-Western 28 34 30 26 25 26
Southern 41 59 50 39 59 49
Western 18 51 30 34 64 50
Zambia 35 47 40 41 38 40
Source: Ministry of Health
A number of programmes were implemented during the review period, which yielded some
positive results towards combating malaria in the country. They included the following:
(a) Malaria hospital fatality rate has reduced from 32.1 deaths to 30.2 deaths per
1,000 admissions.
(b) Mass Insecticide Treated Nets (ITN) distribution has taken place in 6 of the 9
provinces. Distribution of over 3 million insecticide treated nets was recorded
in 2007. This went up to 5 million ITNs distributed by 2008.
(c) The introduction of coaterm as first line drug in case management of malaria
had positive impact on the reduction of malaria cases during the period under
review.
(d) Of eligible structures in 15 Districts, 87 percent were included in the indoor
residual spraying (IRS) in 2007. A needs assessment was conducted to
facilitate for the IRS scale up from 15 districts to 36 districts in 2008. Some
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Provinces such as Copperbelt reported having covered all the Districts with
under IRS.
7.3.3 Nutrition
The FNDP objective for the Nutrition Programme is to contribute to the reduction in morbidity
and mortality among the general population through improved provision of nutrition services.
The following was the performance under the nutrition programme during the review period:
(a) Percentage of children aged 0-6 months exclusively breastfed increased from
the 40 percent baseline of 2006 to 50 percent in 2008, against the 2010 target
of 60 percent.
(b) Coverage of Vitamin A supplementation for lactating women went up from 39
percent in 2006 to 80 percent in 2008, against the 90 percent target of 2010.
(c) Coverage of Vitamin A supplementation for children increased from 68
percent in 2006 to 95 percent in 2008 against the 90 percent target of 2010.
(d) Prevalence of Vitamin A Deficiency for children increased during the period
under review from the 2005 baseline of 54 percent to the 65.7 percent recorded
in 2008 (compared with the FNDP target of 44 percent for 2010).
(e) Stunting reduced from 47 percent reported during the baseline in 2005 to 45.2
percent reported in 2008. It is likely that the target for 2010 will be met.
(f) Prevalence of Iron Deficiency recorded an increase from the 50 percent in
2005 to 52 percent in 2008.
(e) Equipping of all districts with diagnostic facilities brought the total to 156
facilities in the country.
(f) DOTs activities covered remained at 100 percent of the population during the
review period.
(g) Percentage of TB patients tested for HIV increased from 22 percent in 2006 to
47 percent in 2007.
(h) TB Incidence Rate per 100,000 reduced from 3.2 percent in 2005 to 1.8
percent in 2007.
(i) Percentage of TB Cure Rate increased from 74 percent in 2005 to 77 percent in
2007 against the 2010 target of 85 percent.
(j) Percentage of SM+ TB Case Detection Rate /DOTS increased from 50 percent
in 2006 to 52 percent in 2007 against the 2010 target of 70 percent.
In addition, a number of new areas of specialisation were introduced during the review period.
They included internship for newly qualified pharmacists; training of doctors in HIV and
AIDS, and training of doctors and nurses in the new management skills for malaria. Specialized
services were increasingly made available at the 2nd level (general) hospitals. Specialists were
posted to the different 2nd level hospitals and more specialized clinics and services were made
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available. For example, during the period under review, there were in 7 out of the 9 provinces
specialist in ophthalmologists, up from only 2 provinces before. Laboratory services were also
strengthened in all these hospitals.
7.3.6 Infrastructure
During the period under review, infrastructure was one of the best funded programmes. The
challenges that this programme to address included dilapidated infrastructure; non functioning
equipment; need for new infrastructure; etc. The FNDP objective for the infrastructure
programme is to provide sustainable infrastructure that is conducive for the delivery of quality
health services at all levels of the health care system. The main activities implemented under
this programme included construction, refurbishing and restoration of facilities. During the
period under review, 13 new Hospitals were under construction and planned for completion
within the FNDP programme.7 In addition, four hospitals whose construction had commenced
prior to 2006 through different types of funding are under construction.8
Some of the other achievements during the first half of FNDP implementation include the
following:
(a) Commissioning of the Cancer Diseases Hospital in July 2007. By 2008,
treatment had been provided to 1,800 patients.
(b) Completion of the construction of the radiotherapy centre at UTH.
(c) Construction of Mongu Provincial Health Office.
(d) Completion of renovations and installations of equipment in 33 hospitals.
(e) Completion of 33 out of the targeted 58 health posts.
(f) Rehabilitation of nursing training schools.
(g) Initiating the construction of a pharmacy at Lewanika General Hospital.
(h) Rehabilitation of the UTH x-ray department.
(i) Construction of staff houses in 16 Districts.
(j) Construction of 24 health posts completed with staff houses, boreholes and
incinerators.
(k) Procurement of 164 vehicles for districts, second level hospitals, statutory
boards, provincial health offices and training institutions.
(l) Population living within 5 km of health facility increased from 50 percent in
2006 to 69 percent in 2007.
(m) All first level hospitals have now been equipped with ultrasound, and x-ray
equipment.
Of the 4,466 required health facilities, only 1,563 were in place during the period under review
Table 7.4). The pace of building new facilities was hampered by the suspension of construction
of health posts in 2007 in preference for construction of level 1 hospitals. The country has 5
central hospitals three of which are on the Copperbelt whereas the other two are in Lusaka. 5
districts do not have level 1 hospitals. This raises the issue of equity in the distribution of health
facilities across the country.
7
These include, Chadiza, Samfya, Mumbwa, Kapiri Mposhi, Chama, Chongwe, Shangombo, Mpulungu,
Lufwanyama, Lumwana, Chiengi & Nakonde Hospitals.
8
These include; Mufumbwe, Kaoma, Kaputa and Isoka. There are two hospitals that are to be rebuilt and also
expected to be completed within the FNDP programme and these are Choma and Serenje Hospitals. Further, sites for
construction of hospitals have been identified in Chiliabombwe, Milenge, Lundazi, Masaiti, Mambwe & Mwense.
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management has led to clearly established structures and processes that are generally consistent
with the International Health Practices and agenda.
Some of the achievements during the review period include the following:
(a) Compilation of the Health Sector Performance Monitoring Framework and the
development of the Performance Assessment tools, which will allow the MOH
to closely monitor the implementation of the various interventions.
(b) “Roll-out” of the new Health Management Information System to capture
health indicators as measured by standards of various stakeholders.
(c) Formulation of the 2008-2010 Health Facility Infrastructure Development Plan
to ease allocation of resources and prioritization of capital projects in under-
served areas.
(d) Establishment of Health facilities (infrastructure) data bank to serve as a
source of information for the formulation of development and procurement
plans for capital/infrastructure programmes.
(e) Formulation of infrastructure standards and guidelines as a basis for
implementation of programmes.
(f) Approval of Infrastructure Maintenance Policy;
(g) Increased allocations to capital investment programmes;
(h) Increased percentage of districts providing complete HMIS quarterly reports
from 90 percent in 2005 to 91 percent in 2007 against the 2010 target of 100
percent.
7.5 Assessment of KPIs
7.5.1 Overview
Five Key Performance Indicators were identified to measure sector performance. During the
period under review, performance of selected FNDP health indicators was generally positive.
However, varied trends have been recorded for the different programmes. Table 7.5 shows key
achievements for various KPIs in the health sector:
Table 7.5 KPIs Health Sector
Baseline Target
Key Performance Indicators value Target Actual Target Actual Value
2005 2006 2006 2007 2007 2010
Percentage of deliveries assisted by 43 45 43 43.4 47 60
midwives, nurse, doctors or clinical officers
Percentage of fully immunised children 50 65 82 70 85 70
under one year of age in 20 worst
performing districts
Malaria case fatality rate among children 24/1000 - 35/1000 22/1000 41/1000 15/1,000
below 5 years (Fatality Rate per 1,000
admissions)
Utilisation rate of PHC facilities 0.48 0.5 1.2 1.3 1.3 0.8
Percentage of MOH releases to District 55 57 62 13 14 13
level
Source: FNDP, 2006, Page 375 and MOH Annual Reports 2006, 2007. *Malaria Case Fatality Rate per 1,000 admissions
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concern as only about 50 percent of attractive incentive structure for the recruitment and
staff positions are filled. This retention of health personnel especially in rural areas.
problem is even bigger in rural areas (c) There is need to ensure that expenditures on the health
budget are pro-poor.
The quality of health care is below (a) There is need to improve the ability of Health System
national expectation and those that to deliver a free package of basic health interventions,
are poor have remained vulnerable such as assisted deliveries, emergency obstetric care
due to inability to meet the cost of and integrated management of child illnesses
medical services (b) Need to come up with smart Public-Private-
Partnerships (PPP) modalities in health services
delivery focusing on all providers who exist outside
the public sector whether their aim is philanthropic or
commercial, and whose aim is to treat illness or
prevent disease
Health Infrastructure
For the health system to function Focus on health infrastructure improvement should target
effectively, urgent repairs and the following:
replacements are required. (a) Allocation of more resources towards health
infrastructure development.
(b) Emphasis should be placed on the rehabilitation of
the existing facilities rather than on the expansion
of the network.
(c) Upscale preventive maintenance supported by an
enabling policy; clear Maintenance Guidelines;
and a supportive cadre of skilled staff for
preventive and corrective maintenance
(d) Address cross sectoral difficulties in health
service delivery that include poor roads, bridges,
transport, protected water sources, etc.
HIV & AIDS and TB
The HIV prevalence in the general More concerted effort is required to consolidate the gains
population is high but regressing. achieved during the first half of FNDP implementation in
Tuberculosis (TB) continues to be the fight against HIV and AIDS, focusing on halting and
one of the major non-pneumonia subsequently reducing the spread of HIV and STIs through
respiratory infections in the country,
effective interventions by:
itself being worsened by the high (a) Strengthening the multi-sectoral response to
HIV and AIDS prevalence levels. HIV/AIDS.
(b) Scaling-up prevention activities through enhanced
ABC programmes.
(c) Increasing nation-wide access to HIV counselling
and testing.
(d) Strengthening PMTCT activities through routine
HIV testing in antenatal clinics.
(e) Expanding access to ART for those that need it.
(f) Strengthen the TB/HIV collaborative initiatives.
(g) Address more forcefully the issues of HIV and
AIDS stigma, focusing on finding best strategies
to address it.
Gender Mainstreaming in Health Service Delivery
Zambia still shows major gender (a) Gender mainstreaming in the health sector should be
disparities in some health outcomes scaled up, focusing on conceptual understanding of
such as HIV and AIDS prevalence. gender and the linkages between gender and health.
Overall, the issue of gender (b) Work towards significant reduction of Maternal
differences in access to health care Mortality Ratio (MMR).
and the impact on health outcomes (c) Strengthen the quality and expand the coverage of
does not seem to have received the essential obstetrics, including ante-natal clinics, family
attention it deserves. Currently, the planning, delivery, and post-natal services.
participation of men in reproductive (d) Promote the continuum of care from traditional birth
and family health is still relatively attendants to referral centres through improved
low; gender policies are not provision of appropriate training, tools, logistical
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8
Water and Sanitation
8.1 Introduction and Overview
Zambia aims to improve access to water supply from 37 to 80 percent and sanitation from 13 to
68 percent of the population by 2015. Emphasis has been placed on rural water supply and
sanitation where accessibility is lower than in the urban areas. Prior to the launch of the FNDP,
the sector recorded some improvement in FNDP WATER AND SANITATION OBJECTIVES
the percentage of the population that had The following are the main objectives of the Water and
access to safe water from 37 percent Sanitation sector during the FNDP:
(a) To assess, develop, and allocate water resources in the
reported in 2005 to 58 percent in 2006. A priority pillars of economic development of agriculture,
total of 13 percent had access to adequate tourism, environment, mining, manufacturing and energy;
(b) To promote legal and institutional framework capacity
sanitation in 2005, which improved to 43 enhancement;
percent in 2006. Due to delays in carrying (c) To develop management information systems for
out the LCMS in 2008, the picture of the planning, development, allocation and management of
water resources at catchment, national and regional level
performance of the sector in the later and to provide safe water and improve coverage in
years of FNDP implementation remains Zambia;
(d) To assess surface and groundwater resources country-
unclear. Despite the achievements made Wide in order to determine the quantity and quality of
towards ensuring that the percentage of available water;
the population accessing safe water and (e) To carry out research and development in selected areas
in the country for improved planning, regulation and
adequate sanitation increases, the country allocation of Zambia’s water resources.
still faces challenges of water borne (f) To provide adequate, safe, and cost-effective water
diseases and pollution of some major supply and sanitation services development with due
regard to the environment and provision of sustainable
sources of water. water and sanitation service to more people in rural,
urban and peri-urban areas.
During the period under review, the sector aimed “to promote sustainable water resources
development and sanitation with a view to facilitating an equitable provision of adequate
quantity and quality for all users at acceptable costs and ensuring security of supply under
varying conditions.” The four core programmes of the FNDP under Water Supply and
Sanitation Sector focused on (a) rural (b) urban (c) peri-urban water supply and sanitation and
(d) national solid waste management.
During the review period, the main policy developments that aimed at enhancing the efforts in
the Water and Sanitation sector included the following:
(a) The review of the National Water Policy, which provides the overall policy
framework for the water and sanitation sector.
(b) The launch in 2006 of the National Rural Water Supply and Sanitation
Programme.
(c) The piloting of the Sustainable Operation and Maintenance Programme in
Southern and Central Provinces.
(d) The launch of the Integrated Water Resources Management/Water Efficiency
Implementation Plan in 2008.
In spite of these policy reforms and strategic initiatives, the country still witnesses continued
outbreaks of water-borne diseases such as cholera.
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Supply and Sanitation Programme under the Ministry of Local Government; the Housing and
the Devolution Trust Fund; and the National Rural Water Supply and Sanitation Programme.
Donors were expected to finance 80 percent of the total budget during the Plan period. The total
budget over 2006-2008 period was K940.66 billion, which was above the FNDP target of
K869.85 billion. The Rural Water Supply and Sanitation got the largest share. This review has
established that the budget performance against the FNDP provisions and actual releases
against the approved budget have been unsatisfactory, resulting in significant failure to meet
the planned programmes. Overall, donors have been consistent in disbursing committed funds
while Government funding has been inconsistent and inadequate. Budget Ceilings given for
urban water has generally been low during the review period, a state of affairs that has resulted
into under-funding of the urban sector.
As can be seen from the Tables 8.1 – 8.4, the budget performance during the review period
against FNDP estimates has not been satisfactory. The average percentage releases has been
around 9 percent. This meant that programmes could not be implemented as planned. While
the budget was higher than the FNDP targets during the period under review, the variance
between budget and release was exceptionally unsatisfactory. This wide gap led to low
achievement of outputs.
Compared between rural and urban, 43 percent in the rural areas had access to safe water as
compared to 88 percent in urban areas. In an effort to increase the number of people accessing
safe water and adequate sanitation, a number of largely donor-supported programmes were
undertaken during the review period. They are presented below.
Table 8.5: Performance of Annual Water Programmes, 2006 – 2008 in the Department of
Water Affairs
Programme Year Input (K) Output
Budget Released Planned Done Remarks
1. Dam Construction
Water Resources 2006 3,193,985,109 3,193,985,100 5 5 (a) Nyimba Dam completed
for Productive (b) Mupofye Dam in Mansa
Use and (c) Fibale Dam in Masaiti
Infrastructure (d) Nasanga Dam in Serenje
Development (a) Bimbe in Chongwe and
Siakasasa in Kalomo
completed.
(b) Kasiya in Livingstone and
2007 4,800,000,000 4,800,000,000 4 2
Lunyati at Kalumwange
Resettlement in Kaoma
carried over due to
inadequate funds.
(a) Bimbe in Chongwe and
Siakasasa in Kalomo
completed.
(b) Kasiya in Livingstone and
2008 4,700,000,000 3,700,000,000 4 2
Lunyati at Kalumwange
Resettlement in Kaoma
carried over due to
inadequate funds.
2. Spring Developments
Water Resources 2006 100,000,000.00 100,000,000.00 2 1 Luwingu was completed in
for Productive Northern Province and the lining
Use and Mbereshi furrow in Kawambwa
Infrastructure ongoing.
Development (a) Kamphemba in Katete
works in progress.
(b) Lining of Mbereshi furrow
stretch of 5km completed
remaining with less than
8km to finish the whole
2007 800,000,000.00 800,000,000.00 4 2 length of 16km.
(c) Luwingu spring box and
tank installation completed.
(d) Extension of reticulation of
Mulanga spring water
system in Chinsali
completed.
Completed the following:
(a) Laying spring pipeline at
Mkushi,
(b) Construction of spring box
2008 484,660,000.00 244,00,000.00 3 3
and other works at Lumbo
in Gwembe
(c) Lining of furrow at
Mbereshi in Kawambwa.
3. Construction of Rain Water Harvesters
Water Resources These were done at:
for Productive 2006 112,500,000.00 112,500,000.00 3 3 (a) Lusitu in Siavonga
Use and (b) Rufunsa in Chongwe
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Northern 28
N/Western 19
Southern 14
Western 10
Rehabilitated and maintained
hydro stations as follows:
2007 338,925,000.00 338,925,000.00 35 68 Copperbelt (12), Luapula (14),
Western (11), Eastern (4) and
Northern (27).
(a) 26 gauging stations
rehabilitated and 86
maintained.
2008 800,037,110.00 442,550,641.00 112 112
(b) 2 HF radios installed for
data transmission;
(c) 4 HF radios repaired.
8. Water Resources Quality Monitoring and Assessment
Capacity Water samples were collected
Building and and analysed from 7 and 20
Enhancement sampling stations for surface and
2006 116,956,150.00 83,931,550.00 27 27
and groundwater, respectively. The
Enhancement water in both cases was found
not very much contaminated.
Funds being sent to Provinces
2007 510,000,000.00 510,000,000.00 30
for execution of works.
2008 - - - - -
9. Studies, Surveys and Designs of Water Infrastructure
Water Resources 2006 - - - - -
for Productive Surveys and designs done for the
Use and following dams:
Infrastructure (a) Kalumwange in Kaoma,
Development (b) Mporokoso in Mporokoso,
2007 200,000,000.00 200,000,000.00 6 6 (c) Kato in Kapiri Mposhi,
(d) Kasamba in Katete,
(e) Kankunko in Lufwanyama
and Kasiya Resettlement in
Livingstone.
2008 - - - - -
10. Dam Maintenance
Water Resources 2005 701600000 - - - -
for Productive 2006 - - - - -
Use and 2007
Infrastructure (a) Procured new pump testing
Development equipment for deep and
high yielding borehole
2008 60,500,000.00 70,016,132.00 2 2
(b) Conducted on-the-job
training for drillers to
manage the equipment.
11. Institutional Capacity Building
Capacity 2005 - - - - -
Building and 2006 - - - - -
Enhancement 2007
and (a) Procured new pump testing
Enhancement equipment for deep and
high yielding borehole
2008 60,500,000.00 70,016,132.00 2 2
(b) Conducted on job training
for drillers to manage the
equipment.
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integrated approach involved drilling boreholes in schools and health centres as well as sanitary
facilities. Other materials such as mosquito nets, gloves, basins and measuring jugs were
distributed to communities.
Notably, the Mid-term Review Report of the Zambia National Health Strategic Plan IV, 2006 –
2010 established that there was an improvement in the cholera attack rates per 100,000
population from 27 in 2006 to 1 in 2007.
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Part 4
Cross-Cutting Issues
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9
Gender and Development
9.1 Introduction and Overview
Government recognizes the importance of equal participation of both men and women in the
development process and that this can only be achieved if gender issues are mainstreamed in
the design, resource planning, implementation, monitoring and evaluation processes in order to
ensure that development equally benefits both FNDP OBJECTIVES: GENDER IN
sexes. The framework for achieving gender DEVELOPMENT SECTOR
equality in Zambia is the National Gender (a) To mainstream gender in the National
Development Process
Policy adopted in 2000, which highlights a (b) To contribute to providing enabling conditions
number of policy areas that deal with issues for reproductive health of men and women;
relating to education, health, governance, (c) To ensure safe motherhood
(d) To build capacity in institutions to deal with
decision making, labour and employment. To gender issues effectively
operationalise the Gender Policy, a Strategic (e) To provide information on gender to all
stakeholders
Plan of Action for the period 2004-2008 was (f) To put in place gender responsive legal
launched in 2004. The Gender sector has also framework
drawn on a number of international and (g) To economically empower women
(h) To monitor and evaluate the implementation
regional conventions and declarations to of gender and development programmes in
enforce its efforts toward achieving its vision all sectors
of “gender equity and equality in the
development process.” In line with the sector goal and objectives, the core programme for the
sector is to mainstream gender in the National Development process.
During the period under review, the sector focused its efforts on promoting the mainstreaming
of gender in the sectors of Education and Training, Agriculture, Governance and Social
Protections. To this effect, the sector formulated a Joint Gender Sector Programme. Other
programmes such as capacity building and the review of legislation to make it more responsive
to gender were also undertaken. The empowerment of women for participation in economic
programmes remained a challenge and the issue of obtaining gender disaggregated data
continued to be a problem.
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participate equally in the development process. During the review period, Government and
stakeholders intensified awareness campaigns and advocacy activities on gender issues
particularly during the commemoration of the International Women’s Day whose theme was,
“Financing for Gender Equality.” GIDD, with support from UNDP, UNFPA and UNICEF,
facilitated the finalisation of the Gender-based Violence and the Women, Girls and HIV/AIDS
National Action Plans. Furthermore, the Division coordinated the development of guidelines
for management of victims and survivors of gender based violence. In order to facilitate
systematic mainstreaming of gender in the public service, Government commissioned a
consultancy to develop a strategy for engendering the Public Service.
Several interventions are also noteworthy towards gender mainstreaming. They include the
following:
The education sector has taken several important steps towards gender mainstreaming. A
Policy was put in place for the re-entry of pregnant girls into school and a gender Policy is in
place in Science and Technology. At the University of Zambia, 25 percent of admission places
are reserved for females while both males and females compete for the remaining 75 percent. In
2007, the general enrolment rate reached 130 percent and the completion rate rose to 91
percent. These are good indications of progress toward achieving gender equality in education
and much of this was largely attributed to affirmative action and a supportive environment by
all stakeholders.
During the period under review, a number of declarations and conventions were implemented.
The Southern African Development Community (SADC) in 2008 issued a Protocol on Gender
and Development focusing on the elimination of all forms of Gender Based Violence (GBV)
and protecting and promoting human rights of women especially their reproductive and sexual
rights. Zambia ratified the GBV Protocol which is considered to be more legally binding than
the 1997 declaration. The African Charter on Human and People’s Rights adopted in 2006
affords women broader protection against gender-based violence. It also provides for a wide
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range of economic, social and cultural rights of women. This protocol was ratified by Zambia
in November 2006. Most of the provisions are not yet translated into national laws. The fact
that some of the provisions of the declarations and conventions that Zambia has signed have not
been fully domesticated means that the gender imbalances continue and affect the equality of
women.
Lastly, analysis of Poverty Indicators shows that there are still huge disparities between males
and females with regard to socio-economic wellbeing, equality of opportunities in education,
employment, governance, and access to productive assets. This situation has aggravated
inequalities between males and females.
The second Indicator deals with the Ratio of Boys to Girls at Basic School, High School and
Tertiary levels of education. Government continued to promote girls’ and boys’ education by
ensuring that there is equity in the enrolment at grade one; there is free basic education; and the
return to school of girls that get pregnant. Furthermore, Government continued to provide
special bursaries to girls and women. It also constructed technical high schools for girls only.
As a result, gender parity has almost been achieved at the basic and high school levels of
education and progress has been achieved at tertiary level. However, the dropout rate still
remains higher among girls than boys. To address this problem, Government has reviewed the
progression minimum standards for both girls and boys by allowing all those with full
certificates to proceed to the next grade.
There are positive indications that equality target at this level will be met given the rate of
progress registered during the review period. A number of measures such as the introduction of
free education and the positive gender sensitivity in the sector would contribute to this. Table
9.2 shows the promising performance.
The third indicator covers the Percent of Women with Titled Land. No disaggregated date exists
to give this information and the land Policy was still in draft form. There is policy that ensures
that, for all land allocated, 30 percent should be reserved for women. However, women can also
compete for the remaining 70 percent. In the area of economic empowerment, Government has
established the Citizens Empowerment Commission. Under the Commission, special
consideration is given to women and youths. Notwithstanding these efforts, the Ministry of
Land reported that of the titles issues in 2008, women received only 18.8 percent of these.
Under the fifth indicator, the Percentage of Women in Decision-Making positions in the Civil
Service, Government continued to implement policies that promote the participation of women
in decision making. In order to empower women to take up positions of decision making,
government continued to support women and girls in education and training. In the public
service, the proportion of women in decision making positions has been increasing and was at
16.6 percent in 2009, from about 12 percent in 2005.
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The final indicator deals with the reduction in cases of Gender Violence. This KPI proved
difficult to measure in a meaningful manner and was replaced with (a) percent convictions of
reported cases of GBV; and percent withdrawn cases of reported cases (police and court). Due
to the high GBV prevalence in Zambia, Government, in collaboration with other stakeholders,
initiated the process of preparing standard guidelines on handling cases of GBV. In addition,
Action Plans on GBV was finalised during the review period. The number of convictions
compared to cases reported has remained low at 10 percent between 2007 and 2008, while
withdrawn cases before going to court rose from 23 percent to 40 percent between 2007 and
2008. During the review period, there were only two sectors that were providing gender-
disaggregated data, namely, the Ministries of Education and Health. Table 9.2 presents the
KPIs performance for the Gender sector during 2008.
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10
Food and Nutrition
10.1 Introduction and Overview
The National Food and Nutrition Commission (NFNC), funded under the Ministry of Health,
oversees the food security and nutrition responsibility in the country. Nutritional status is
determined by a number of factors which among others include access to adequate food; good
health and sanitation; affordable food prices; steady food availability; stability of sources of
income; and the general education for male and female parents and guardians. Poverty is the
major underlying factor for poor nutrition. Other principal causes of malnutrition relate to the
high prevalence of diseases, insufficient care
of the vulnerable, and deteriorating FNDP OBJECTIVES: FOOD AND NUTRITION
economic situations. SECTOR
1. To develop and/or advocate for policy formulation
and programmes that will ensure food and nutrition
Nutrition programmes and activities include security, food quality, and safety at individual
household, community, and national level
micronutrient supplementation, growth 2. To effectively formulate, coordinate, and monitor
monitoring and promotion, infant and young food and nutrition programmes in order to improve
child feeding promotion, provision of delivery and access to nutrition services
3. To conduct comprehensive surveys and research
nutritional support to in- and outpatients at on food and nutrition in order to provide appropriate
HFs and treatment of severe acute interventions
malnutrition. 4. To develop human resources in the food and
nutrition sector in order to improve the delivery of
nutrition services
During the period under review, the sector 5. To reduce all forms of malnutrition, including
micronutrient deficiencies and establish safe levels
performance was satisfactory. The low of nutrient intake for Zambia
performance in 2006 was compensated by a 6. To provide food and nutrition awareness for
more than satisfactory performance in 2007 positive nutrition behaviour change
when some of the targets for the KPIs were reached. This performance is supported by
reductions in percentage of underweight, stunted and iron deficient children.
The National Food and Nutrition Policy and the Nutrition Act were reviewed to reflect
emerging challenges within the framework of a new vision in the food and nutrition sector.
Although the policy was in place in place, it could not be operationalised due to non availability
of the implementation plan.
In addition to the Ministry of Health budget, two other ministries allocated funds to nutrition
activities. In the Ministry of Education (MoE), funds were allocated under the school health
activities under the equity programme. The Ministry of Agriculture also allocated funds to
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several nutrition activities. From 2008, the nutrition budget under public health was
decentralised to the districts.
In the year 2008, NFNC embarked on a number of advocacy programmes at various levels.
This led to increased funding to the sector from both the government and its partners.
Specifically, The National Food and Nutrition Policy document, together with its
accompanying Implementation Plan, was launched. Several policy supporting documents were
also finalized; these included the Growth Monitoring and Promotion operational Strategy and
the Infant and Young Child Feeding Operational Strategy.
Furthermore, the National Nutrition Surveillance System pioneered by the NFNC was scaled up
to include Eastern and Southern provinces following recommendations to do so in the 2007
report. In addition, the NFNC continued monitoring the implementation of the food
fortification and the micronutrient supplementation programmes mainly through the bi-annual
child health week activities carried out all the provinces of Zambia. These programmes were
aimed at reducing the prevalence of micro-nutrient deficiencies, which include vitamin A and
iron deficiencies.
Effective strategies have been put in place through, inter alia, growth monitoring and iron
supplementation to mitigate the nutritional problems. During the period under review, facility-
based therapeutic feeding for severely undernourished children was started in all Provinces and
training rolled-out nationally. Community Therapeutic Care (CTC) was piloted in Lusaka and
the Eastern Province. The rates of recovery at CTC were good using a home based treatment of
Ready to Use Therapeutic Foods. Several manuals and IEC materials were produced with the
support of NFNC during the period under review. These were used in the promotion of breast-
feeding along with training in IYCF, in nutrition and HIV and AIDS. In general, NFNC
capacity to coordinate nutrition in the health sector improved.
(a) Under the advocacy and sensitization programme, NFNC undertook advocacy
campaigns on growth monitoring and promotion.
(b) Under the Nutrition Information Management programme two pilot nutrition
surveillance system surveys were conducted in four districts of Lusaka
province namely: Chongwe, Luangwa, Kafue and Lusaka.
(c) Under the Nutrition Education and Promotion programme a number of outputs
were achieved. These included the construction of the audio production studio
at National Food and Nutrition Commission, production and dissemination of
3,000 Information Education Communication (IEC) materials and conducting
formative research in four districts to collect data to use in developing the food
and nutrition communication strategy.
(d) Training of 100 health service delivery providers on nutrition and HIV
counselling from various health institutions was carried out.
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There are five indicators selected to track progress on the implementation of the FNDP in the
food and nutrition sector. In 2008, data was provided for only two of these – one of which met
the target and the other was not met. The sector has not been able to provide information on the
prevalence of Vitamin A and Iron deficiencies, as well as the number of women attending ante-
natal classes who are malnourished.
The proportion of children under-five who were stunted in 2008 stood at 45 percent against the
target of 41 percent. This prevalence remains very high by WHO threshold standards, as it is
above 20 percent. The high stunting rate is mainly attributed to sub-optimal infant and young
child feeding practices as well as chronic food insecurity among the population. Government
has intensified efforts to address this problem by putting in place the infant and young child
feeding strategy and promoting of diet diversification.
There was an improvement in the proportion of under-five children who were underweight,
falling from 19.7 percent in 2007 to 14.6 in 2008, below the target of 17 percent. This was
attributed to intensified nutrition interventions such as vitamin A supplementation, promotion
of exclusive breast-feeding, growth monitoring and promotion, immunizations and other child
health nutrition interventions. It was, however, still above the acceptable WHO threshold of 10
percent. Table 10.2 presents the situation during the 2006-2008 period.
Targets for Vitamin A deficiency and Iron Deficiency Anaemia for 2008 were 48 percent and
46 percent, respectively. However, these indicators could not be assessed in 2008 as the data
has not been updated since 2003.
To manage the FNDP programmes, the NFNC, as the lead institution in the sector, incorporated
the food and nutrition chapter programmes into its 2008 work plan and MTEF 2009-2011. The
Monitoring and Evaluation System was also introduced in 2006, this has aided the capturing of
progress on program implementation and tracking expenditures. In 2008, data was collected for
2007 Annual Food and Nutrition Situation Report. However, collaboration between nutrition
inter-sectoral committee has been weak with only one meeting held in 2008. In addition, the
NFNC belongs to the Health SAG but most of the issues under the food and nutrition chapter
were not included on the agenda due to perceptions that the programmes fall outside the Health
sector’s mandate. The NFNC is also supposed to be a member of the agriculture and education
SAGs but did not receive any invitation for meetings in 2008.
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11
Environment
11.1 Introduction and Overview
During the period under review, the sector continued to make strides in fulfilling its goal of
“reversing environmental damage, maintain essential environmental and biological processes
and ensure sustainable use of natural resources
for the benefit of the people. Some of the FNDP ENVIRONMENT AND NATURAL
RESOURCES OBJECTIVES
notable sector achievements included the The key policy objectives are to
establishment of the Forest Development (a) Reverse environmental damage, maintain
Credit Facility (FDCF); reclassification and essential environmental and biological processes
and ensure sustainable use of natural resources
management of Zambia’s protected areas, for the benefit of the people.
(Chiawa and Bangweulu); reaching agreement (b) Promote sustainable forest resource management
to cooperate on bilateral and multi-lateral levels through, encouraging private sector participation
in forestry development and promotion of
with Botswana, Zimbabwe, Namibia and community participation in forest resource
Angola on the management of the Okavango- management
Zambezi Conservation Trans-frontier; establishment of 500 hectares of national local supply
plantation establishment of over 100 hectares of rubber plantation in Nchelenge and
Kawambwa districts (Luapula Province); and the commencement of the Environment and
Natural Resources Mainstreaming Programme (ENRMP) and formulation of the National
Adaptation Programme of Action in 2007. In the context of these programmes and sub
programmes, the performance of the sector during the period under review was satisfactory.
K billion
180
160
140
120
100
80
60
40
20
0
Projection Budget Releases
FNDP GRZ
2006 ‐ 2008
9
This analysis is based on the allocations to the MTENR and does include budget and expenditure under other Government
Departments and Ministries. Neither do they incorporate funding from Cooperating Partners.
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There is a significant gap between the FNDP financing projection and the actual budget and
actual releases. This outturn is, in part, due to the large donor component in the projection of
the financing in the FNDP. Some of the programmes were intended to be funded in full by
Cooperating Partners. The difference between the projections and the actual funding meant that
the sector was only able to partially meet its targets.
On the other hand, the gap between the funds released against the approved GRZ budget for the
period is considerably better at 50.88 percent. However, inadequate financing to core
programmes resulted in uneven allocation of funds. For instance, of the K7.39 billion released
in 2007, K3 billion was allocated to one activity –FDCF. The remaining K4.39 was thinly
distributed among eleven other sector programmes. Some of the underfunded programmes are
listed in Table 11.1.
It is worth noting that there was little distinction between programmes and activities in the
reporting that has informed this review of the environmental sector. Overall, the sector did not
receive adequate funding for planned programmes However, despite the limitations of funding,
the environment sector scored a number of achievements as indicated in output performance.
Since the environmental sector cuts across many sectors, the uneven financing pattern has
implications for the other sectors. Underfunding of beekeeping as an activity most certainly
deprived low income households of opportunities to achieve income security. Similarly,
underfunding of elements of research in Agro-forestry and Forestry Protection and
Management will most likely have adverse consequences for the diversification of agricultural
(food) production. Reduced funding for Environmental Policy and Legislation will most likely
reduce the ability by government and relevant agencies (e.g. The Environmental Council of
Zambia and the Zambia Wildlife Authority) to monitor, regulate, promote and enforce good
environmental practice and natural resources conservation across the economic and social
sectors. Inadequate regulation has clear implications for environmental health and public
health.
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Table 11.2: KPI performance 2008 – Environment and Natural Resources Sector
2005 2006 2007 2008
Indicator Baseline Actual Actual Target Actual Assessment
Total annual greenhouse 107,737 107,737 --- 105,593 -- No data
emissions in CO2 equivalent
Rate of domestic waste 0.2 0.25 0.25 0.35 -- No data
generation per capita (Mts)
Total amount of domestic 15 18 20 60 -- No data
waste ending up in dumps
(%)
% reduction in the rate of 30 --- 3 15% -- No data
infestation of invasive alien
species (Mimosa Pigra)
Rate of deforestation 850,000 --- --- 795,000 284,000 Met
Extent of protected forest area 44,600,000 7,335 7,217 -- No data
(‘000 HA)
Encroachment in wildlife 7 21 --- 5 -- No data
protection area
Total elephant population 24,000 --- --- 27,000 -- No data
(Number)
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12
Governance
12.1 Introduction and Overview
The Governance Programme is premised on the vision, “total adherence to principles of good
governance by 2030.” The developmental objective of the sector is to have “A Zambia where
the citizens and the communities they live in have an opportunity to earn a dignified living,
raise healthy and educated families,
participate in economic, political, cultural and FNDP OBJECTIVES: GOVERNANCE
social decision making in a safe and secure The objectives of the Governance sector in the FNDP
are as follows:
environment with respect for the Constitution (a) To improve access to justice;
and fundamental rights and where the rule of (b) To effectively and efficiently manage free and
fair elections;
law prevails.” (c) To promote and protect human rights equally
The main programmes implemented by the for women, men, youths and children;
Governance Sector were during the review (d) To strengthen cooperation and collaboration
among governance institutions;
period included: (e) To improve effectiveness and efficiency of the
(a) Administration of Justice (Access to National Assembly to enhance its oversight of
Justice), Government affairs;
(f) To enhance constitutionalism and the rule of
(b) Constitutionalism, Democratisation law;
and Human Rights, (g) To achieve a significant reduction in
corruption in Zambia; and
(c) Accountability and Transparency,
(h) To embed good corporate governance
(d) Management, Reporting and practices in the public and private institutions
Facilitation of Governance Initiatives
(Governance Secretariat).
The major activities undertaken during the period under review included the State of
Governance National Survey; initiation of the National Corruption Diagnostic Survey; National
Constitutional Conference sittings; and conducting bye-elections on Presidential, Parliamentary
and Local Government.
10
These included the Human Rights Commission; Police Public Complaints Authority; National Assembly of
Zambia; Anti-Corruption Commission; Commission for Investigations; Judicial Complaints Authority; Office of
the Auditor-General; Judiciary; Ministry of Justice; Electoral Commission of Zambia; and Office of the Vice
President (Parliamentary Business Division)
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3,000,000,000,000.00
2,500,000,000,000.00
2,000,000,000,000.00
1,500,000,000,000.00
1,000,000,000,000.00
Amount
500,000,000,000.00
0.00
FNDP Budget Mid Term Sector Budget Released Expenditure
(2006-10) Budget Est. (2006-08) (2006-08) (2006-08)
(2006-08)
Budget, Releases and Expenditure
The sector undertook a survey on the state of Governance in Zambia as one of the key outputs
required by the FNDP. The sector was also responsible for coordination of the development of
a new national constitution through the agreed National Constitutional Conference process. The
sector also completed the national report for the Universal Periodic Review and submitted to
the United Nations Human Rights Council in March 2008. Through decentralisation of some of
the sector’s institutions and awareness raising, people in the rural provinces started accessing
the services of such institutions. The notable institutions were Human Rights Commission,
Legal Aid Board (LAB) and Anti Corruption Commission. LAB completed its decentralisation
process in 2008 and included Chipata, Mansa, Mongu, Kasama and Solwezi. During the period
under review, the sector recorded a remarkable reduction in the reports on corruptions cases. It
fell from 685 recorded in 2006 to 450 recorded in 2008.
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In order to achieve its sector goals, the Governance Secretariat prepared a Governance
Programme Document that outlined and simplified the details of implementation of the FNDP
as well as the responsible structures. The four committees established under GSAG in order to
ensure effectively management of the FNDP were:
• Access to Justice;
• Human Rights, Democratisation and Constitutionalism;
• Accountability and Transparency; and
• Governance Monitoring and Evaluation.
The committees meet monthly to discuss progress on their planned activities in the FNDP.
justice.
(c) There is need to secure and consolidate the autonomy of
the Director of Public Prosecutions.
(d) There is need to strengthen the capacity of the State to
extend Legal Aid to those that cannot afford to pay
legal costs.
(e) There is need to decentralise the Judicial Complaints
Committee as well as civil litigation.
(f) There is need to modernise the administration of justice
through the introduction of electronic systems in case
flow management, databases, etc.
2. Several important aspects of (a) There is need for enhanced political will to effect
human right are yet to be legislative change in furtherance of human rights
addressed. (b) The Ministry of Justice should strive to domesticate all
international conventions and covenants on human
rights to which Zambia has acceded.
(c) There is need to establish rehabilitation centres for
human rights victims
(d) There is need to produce and disseminate information
that support awareness on electoral processes, the
administration of justice, and the respect of human
rights.
3. Accountability and transparency There is need to establish an effective mechanisms for
in national systems is yet to be prevention of corruption in public bodies, focusing on the
improved. Cases of corruption in following:
high offices still provide major (d) Creation of efficient and effective procedures for
systemic challenges in the investigations and prosecutions by oversight bodies
management of national affairs such as the Anti Corruption Commission (ACC), OAG
and Drug Enforcement Commission (DEC)
(e) Cultivate collaborative and consultative mechanisms
with stakeholders towards curbing corrupt practices.
(f) Put in place mechanisms that would expedite the
processing and disposal of complaints against state
institutions.
(g) Consolidate the autonomy of the Office of the Auditor
General and Director of Public Prosecutions.
(h) Give Parliament and its Committees more legislative
and budgetary roles in ways that would enhance its
oversight functions over the Executive.
4. Constitutionalism is an important Government should support capacity improvements in the
component of good governance. implementation of the Constitution and related legal provisions,
A number of aspects at this level focusing on the following::
require improvement (d) Exploration of factors that impede the smooth implementation
of the provisions of the Constitutions, particularly those that
relate to human rights.
(e) Support of initiatives that target the protection of social,
cultural and economic rights of Zambian citizens.
(f) Addressing Gender and Human rights by supporting
government and Civil Society initiatives to ensure gender
equality through advocacy and support to legislative changes
in line with the Constitution and CEDAW.
5. There exists serious capacity There is need for capacity enhancement for securing
weaknesses in bodies that are transparency and accountability in public sector
mandated to provide management: This should include the following:
accountability and transparency in (d) Support the strengthening of public finance
public sector management. management as an essential element in strengthening
good governance. Support should target carefully-
selected institutions that possess the capacity to generate
and disseminate timely information on the public
budgeting and expenditure processes.
(e) Build capacity of oversight bodies to reduce corruption
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in public offices.
(f) Foster inclusive participation that provides effective,
practical support to addressing inequalities and promote
inclusion of vulnerable people, including women.
(g) Strengthen national partnerships between Government,
Civil Society and the private sector to identify
‘together’ solutions to development challenges in
accordance with national policies and priorities.
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13
The estimated number of annual new infections in the adult population aged 15 and above were
75,075 in 2006; 79,755 in 2007; and 80,442 in 2008 (Males 33,087 and females 47,335).The
estimated new infections in children 0-14 years for 2006 were 13,733, 11,028 in 2007 and
10,306 in 2008. The estimated total deaths due to HIV and AIDS were 55,347 in 2006, 38,105
in 2007 and 47,429 in 2008 for adults above 15 years. For children aged 0-14 years, the
estimated deaths were 11,404 in 2006, 8,346 in 2007 and 8,144 in 2008. The estimated number
of orphans in Zambia is 1,222,507. Out of this number, 605,149 were orphaned due to the death
of parents from AIDS.
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40
35
30
FNDP Target
25
Budget
20
Releases
15
10
5
0
2006 2007 2008
The achievements of this sector during the 2006-2009 period included the following:
Overall, 500 local lead sectors or organisations in the public, private and civil society sector
were provided with technical assistance for HIV related institutional capacity building in terms
of mainstreaming, advocacy, management, coordination and monitoring of multi-sectoral
response to HIV and AIDS in all the 72 districts. Coordination of the implementation of the
decentralization response has continued through close collaboration with local authorities, an
effort that has led to increased awareness on HIV and AIDS. During the period under review,
access to and use of HIV and AIDS prevention, care and impact mitigation programmes by
vulnerable populations increased significantly. The fact that HIV and AIDS projects focusing
on OVCs were coupled with income-generating activities ensured sustainability. The scaling up
of treatment services has resulted in nearly 55 percent of women and men who need to be on
treatment accessing ART services, including associated care. Of these, 8 percent are children.
Government also developed mechanisms to protect and provide support to Orphans and
Vulnerable Children (OVCs) through free primary education, life-skills training and
psychosocial support. During the period under review, Zambia qualified for the Time Bound
programme on the Elimination of Worst Forms of Child Labour whose mitigation process
includes OVCs. This benefitted HIV and AIDS-related OVCs.
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Figure 13.2: Progress towards universal access by 2010, (2005 and 2007)
Zambia
ART
PMTCT
HCT
KNOWLEDGE
11
Public sector workers
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The assessment of KIPs brought out the following noteworthy developments during the review
period:
(a) The number of HIV infected pregnant women who received antiretroviral
drugs to reduce mother to child transmission increased from 25,578 in 2006 to
35,314 in 2007 and 45,000 in 2008.
(b) The number of adults and children with advanced HIV infection receiving
antiretroviral therapy increased from 81,030 in 2006 to 206,000 by September
2008, representing an increase of 60.6 percent.
(c) Paediatric ART uptake increased significantly. Of the 29,100 and 40,000
estimated infants and children under 15 years in need of ART, 13.7 percent
and 33 percent were on ART at the end of 2006 and the end of 2008,
respectively.
(d) VCT sites increased from 500 in 2005 to over 1,102 in 2008. PMTCT sites
increased from 251 sites in 2005 to 936 in 2008. The number of ART service
centres for both private and public sectors increased from 107 in 2005 to 355
in 2008. All the 72 districts continue to provide ART services.
(e) Support groups for PLWHA as well as treatment support groups for both TB
patients and PLWHA programmes were scaled up in order to improve the
quality of life of PLWHA through the encouragement of positive living, good
nutrition, and prevention of opportunistic infections and avoiding high-risk
behaviour.
(f) Within the public sector, 40 line ministries and public work places finalized
their HIV and AIDS policies of which 17 disseminated their policies.
(g) The number of OVCs that benefited from mitigating services increased to
43,287. In terms of participation by gender, about fifty percent that benefited
from the educational support were girls.
Key efforts on Civil Society Organisations (CSO) coordination was focused primarily on
identification and capacity support to key self-co-ordinating structures such as the National
Youth Development Council and the Zambia Agency for People with Disabilities. Others were
the Network of Zambian People Living with HIV and AIDS. In addition, the National AIDS
Council (NAC) consolidated its efforts to ensure that emphasis was put on CSO’s institutional
capacity building through direct technical and mentorship, especially in relation to strategic and
operational planning and monitoring and evaluation; others include skills on facilitation,
secretariat support, resource mobilization, review and documentation and mobilization of
specialized technical assistance. NAC also supported the development of a directory of CSOs
involved in HIV and AIDS interventions and greater involvement of CSOs at the decentralized
level within the framework of a capacity development approach in 2008.
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Figure 13.3: Private sector or Company HIV and AIDS Policies and programmes
0 20 40 60 80 100 120
Number
2007 2008
Source: Compiled from NAC Company Directories for 2007 & 2008
Lastly, there were no targets set for the indicator pertaining to the amount of funds spent on
HIV and AIDS. Consequently, tracking of resources was challenging. However, a functional
FAMS has been developed and was used during the review period to track financial
expenditure of Provincial and District AIDS Task Forces. This complemented NASA that
tracks the national response. Although resource tracking has been a challenge, the resource
envelope for all HIV and AIDS programmes countrywide has been on an increase with
approximately US$198 million recorded for 2006, US $232 million for 2007 and US$358
million for 2008.
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3. There are structural drivers of the There is need to prioritize the provision of life-protecting
epidemic such as the common services to women and girls, the socially marginalized, the
practice of concurrent sexual very poor and most vulnerable.
partners; transactional and cross-
generational sex; gender
inequality; poverty; stigma and
discrimination around sexuality.
4. There is little mainstreaming of (a) Introduce a budget allocation for HIV and AIDS
HIV and AIDS into programmes activities at the district level.
at lower level (b) Strengthen institutional arrangements at the district and
provincial levels and provide them with adequate
resources to implement effective HIV and AIDS
interventions.
(c) Develop capacity in advocacy, management,
coordination, and monitoring of multi-sectoral response
at district level;
(d) Develop district-level multi-sectoral HIV and AIDS
programmes and annual implementation plans.
(e) Improve coordination of multi-sectoral response at
district level.
(f) Capacity improvement of district, provincial, and
national planning mechanisms in multi-sectoral HIV
and AIDS planning and mainstreaming.
5. Voluntary Counselling and There is need to provide appropriate care, support and
Testing is considered important in treatment to HIV infected persons and those affected by HIV
the fight against HIV and AIDS. and AIDS. This should entail the following:
However, coverage is still quite (a) Integrating Voluntary Counselling and Testing with
low. treatment
(b) Providing universal access to ART
(c) Strengthening home/community-based care and support
(d) Utilisation of alternative and/or traditional medicines
(e) Promotion of appropriate nutrition
(f) Support to the infected and affected
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14
Public Safety, Law and Order
14.1 Introduction and Overview
The continuity of social, cultural, political and economic stability depends, to a large extent,
on the effectiveness and efficiency of the internal security institutions that exist in the country.
During the FNDP period, the overall goal for the public safety and order sector is “to preserve
and maintain internal peace and security for national development.”
During the year under review, favourable FNDP OBJECTIVES: PUBLIC SAFETY AND
progress was registered in two FNDP ORDER SECTOR
programmes, namely, infrastructure The sector aims to achieve the following objectives:
(a) To develop effective mechanisms for prevention
development and crime prevention. of crime, in order to significantly reduce criminal
Attention under infrastructure development activities in the country;
was on the construction of 500 housing (b) To increase efficiency and effectiveness in
investigation and prosecution in order to
units for the police, an office block and expedite the clearance of cases;
prison cells at Mwembeshi Prison and (c) To acquire and maintain buildings, plant and
equipment in order to improve the work
various rehabilitation works throughout the environment;
country. Crime prevention strategies (d) To effectively develop human resources for the
involved securing trust and confidence of efficient performance of the sector.
the community by putting much emphasis
on community-based policing through such programmes as the Neighbourhood Watch, the
Victim Support Unit, Offender Management, and the introduction of the Parole System and
Extension Services for prisoners. The sector also enacted the Anti-human Trafficking Act,
2008, which will help law enforcement agencies to effectively prevent, stop and prosecute
perpetrators of human trafficking. At the same time, strides were made by the sector in
improving its management information system through computerization of the printed
publications into digital version. The converted monographs included; district notebooks,
photographs, maps, British South African company collection and some colonial newspapers.
The digitalized version has improved access to information and the retrieval system.
The principal actors in the sector are Zambia Police Service, Zambia Prisons Service, the Drug
Enforcement Commission (DEC), Department of Immigration, National Registration, Passport
and Citizenship, National Archives of Zambia, Commission for Refugees, and the Office of the
Registrar of Societies. These institutions fall under the superintendence of the Ministry of
Home Affairs (MoHA).
Over the years, the working environment and functionality of these law enforcement agencies
have continued to deteriorate. The agencies lack basic operational requisites while the housing
situation for officers has persistently been a worsening scenario. Consequently, this has
compromised the credibility and integrity of the law enforcement officers and has resulted in
low morale of officers, rendering them less effective and efficient in the execution of their
mandates. During the FNDP period, Government plans to lay emphasis on crime prevention,
capacity building, and infrastructure development and rehabilitation.
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total budget of K81 billion of which K42 billion was released, representing 20.4 percent of the
FNDP budget for the Ministry during the review period The actual sectoral expenditure was
K27.7 billion, representing 13.5 percent of the FNDP financial projection. There has been, by
far, a big gap between what was planned during the review period for the MoHA and actual
expenditure. Under such conditions, there has been very little relationship between what has
been planned and budgeted for in the FNDP for the sector and what has actually been made
available.
The programmes under the Zambia Police Service were allocated K155.37 billion in the budget
during the review period against a FNDP projection of K371.16 billion. The releases amounted
to K124.53, or 33.7percent of the FNDP planned allocation. Much of the money was directed
towards infrastructure development (K85.2 billion) and crime prevention (K21.94 billion). Of
the total amount expended by the sector, the programme of Crime Prevention accounted for 59
percent while infrastructure development took up 28 percent. Infrastructure rehabilitation and
capacity building accounted for 9 percent and 4 percent of the total expenditure, respectively.
Crime prevention was the only core programme on which there was above 50 percent
adherence to the FNDP allocation in terms of both releases and expenditure.
Capacity building was the least funded core programme in terms of the approved allocation. Of
the K24.4 billion allocated under the FNDP for the period under review, K2.8 billion,
representing only 11 percent, was approved under the budget. The actual release was 6 percent
while 5 percent was the sectoral expenditure against the total FNDP allocation. The highest
amount of money was planned for Infrastructure Development programme during the FNDP
period under review. However, what was approved was only 32 percent of the K149.7 billion
under the FNDP. The releases accounted for 12 percent though only 5 percent was expended.
On infrastructure rehabilitation, a total of K6.8 billion was projected to be spent during the
period under review of which 63.5 percent was approved in the budget and only 35.8 percent
was released. The sectoral expenditure accounted for 35.4 percent of the total FNDP budget.
Table 14.1 gives the details for FNDP allocations and actual expenditures.
and finger prints; establishment of more police posts; offering evidence of forensic nature;
laboratory consumables as well as the provision and preservation of evidence of chemical and
pathological nature. The Zambia Police Service was further strengthened through the
acquisition of communication equipment and motor vehicles for operational efficiency and
effectiveness.
As a consequence of the initiatives above, albeit under-funded, there has been a noticeable
decline in criminal activities in the country. This decline is attributed to various crime
prevention programmes undertaken that included the establishment of an investigation and
prosecution unit under the National Registration; human and child trafficking control under
DEC; issuance of machine-readable passports under National Registration; digitalization of
national travel documents under the Passport Office; and the introduction of the Parole System
and Extension Services for prisoners under the Zambia Prisons Service. Other programmes
included public awareness campaigns to prevent various crimes; establishment of the Child
Protection Unit; monitoring of migrants and visitors; and border controls under the Immigration
department.
Due to inadequate funding, the sector has not benefited from the structural reforms that have
taken place in other sectors of the country. The sector has continued to operate on a skeleton
staff with most of its staff possessing low education attainments. The government has further
not provided competitive working condition in the sector as is the case in other security sectors
such as defence. Inadequate human resource in institutions that collect revenue such as
Immigration, Zambia Police, National Registration, Citizens and Passports as well as Registrar
of societies affected their capacity to perform this function. The officer-client ratio during the
period under review remained high for all the departments under the sector with DEC having a
rapidly worsening condition as can be deduced from Table 14.2.
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National Registration Office in Lusaka, and completion of the extension of the National
Archives Office building in Lusaka.
Table 14.3: KPI Performance 2008 – Public Safety, Law and Order
2006 2007 2008
Indicator Actual Actual Target Actual Assessment
Percentage increase in number of 151,320
155,840 2.0% Not Met
offences reported at key offices - 2.9%
Percentage increase in number of
100,358
arrests made, as a result of reported 95,974 2.0% Met
4.7%
offences
Percentage increase in number of 47,825
50,125 2.0% Not Met
arrests that result in prosecutions - 4.7%
Percentage increase in the number of
41,716
prosecuted cases resulting in a 36,330 2.0% Met
14.8%
successful verdict
Staff Ratio to appropriate population
(a) 1 : 792 (a) 1 : 653 (a) 1 : 580 (a) 1 : 843
(a) Zambia Police
(b) ---- (b) 1 : 8 (b) 1 : 4 (b) 1 : 8
(b) Immigration
(c) ---- (c) 1 : 23,305 (c) 1 : 23,305 (c) 1: 35,502
(c) DEC officers
(d) ---- (d) 1 : 3,286 (d) --- (d) ---
(d) Registrar of societies Not Met
(e) ---- (e) 1 : 41,044 (e) 1 : 18,800 (e) 1 : 41,044
(e) National Registration
(f) --- (f) 1 : 200 (f) --- (f) ---
(f) Civil Servants
(g) 1 : 8 (g) 1 : 6 (g) 1 : 6 (g) 1 : 7
(g) Prison Staff
(h) --- (h) --- (h) --- (h) ---
(h) Commission for Refugees
Proportion of prison population who
3% No Target
are HIV positive
Proportion (%) of staff in key
institutions who are female (a) 12.5 (a) 12.5 (a) --- (a) 11.0
(a) Zambia Police (b) 20.0 (b) 20.0 (b) --- (b) 12.0
Part Met
(b) Immigration (c) 71.0 (c) 66.0 (c) 28.0 (c) 28.0
(c) DEC officers (d) 23.0 (d) 23.0 (d) 26.5 (d) 23.0
(d) Prison Staff
Under Indicator 1, Annual Percentage Increase in Reported Offence, the number of cases or
alleged offences reported to the Zambia Police declined by 0.6 percent from 149,489 in the year
2007 to 148,589 in the year 2008. This decline was lower compared to the decline of 2.8
percent recorded between 2006 and 2007 (Table 14.4)
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There was also a reduction of 43 percent, from 2,914 in 2007 to 1,650 in 2008, for the total
number of drugs and money laundering-related cases reported to the Drug Enforcement
Commission. Again, this is a slower rate of decline than the one recorded between 2006 and
2007. The Immigration Department also had a decline in the number of reported cases by 79
percent from 2,843 to 588 in 2008, following an increase of 11 percent between 2006 and 2007.
The Registrar of Societies and National Registration Department also registered decreases in
the number of reported cases from 42 in 2007 to 25 in 2008 for National Registration while for
Registrar of societies cases reduced from 552 to 468, representing declines of 15 percent and 40
percent , respectively.
Indicator 2, Annual Percentage Increase in the Number of Arrests made on the Reported
Offences, is a follow on to that. During the period under review, the Zambia Police Service
reported an increase of 5.7 percent in the number of arrests made, from 93,281 in 2007 to
98,670 in 2008. Over the same period, the Drug Enforcement Commission registered a decline
in the number of arrests reducing from 2,693 to 1,688, continuing the trend, which was a 58
percent drop in the number of arrests made in the previous year.
Indicator 3 deals with the Annual Percentage Increase in the number of Arrests that Resulted in
Prosecution. This showed a decrease of 5.9 percent in the number of arrests that resulted in
prosecution (from 45,776 in the year 2007 to 43,228 in the year 2008, as recorded by the
Zambia Police). The Drug Enforcement Commission and the Immigration Department recorded
41 percent and 87 percent decreases in the number of arrests that resulted in prosecution,
respectively (Table 14.5).
Table 14.5: Number of Prosecutions
2007 2008 % Change
Zambia Police 45,776 43,228 - 5.9
Drug Enforcement Commission 2,594 2,009 - 23.6
Immigration Department 1,755 2,588 - 47.5
Total 50,125 47,825 -4.5
Source: Ministry of Home Affairs Research and Information Department (HARID)
Indicator 4 deals with Annual Percentage Increase in the number of Prosecuted Cases
Resulting in Successful Verdict. Zambia Police showed an improvement in the number of
convictions, up from 34,881 in the year 2007 to 40,907 in the year 2008, an increase of 15
percent. The Drug Enforcement Commission reported a decline of 40 percent of the numbers
required (Table 14.6).
Indicator 5 covers the Staff Ratio to Appropriate Population. For the year 2008, the staff ratio
to the appropriate population in the Zambia Police Service was reported at 1:843, as opposed to
the target of 1:580. The ratio increased from 1:653 in the year 2007 due to the non-recruitment
of new officers to replace and increase the staff strength. Similarly, for the Zambia Prisons
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Service, at 1: 7, failed to meet the annual target of 1:6, suggesting a worsening situation since
2007. Again, this was largely because of the non recruitment of additional staff and a lower
number of inmates released under the Presidential pardon/amnesty during the year.
The Drug Enforcement Commission recorded 1: 35,502 against a target of 1: 23,305, while the
ratio of immigration officers to the number of migrants was recorded at 1:8 against a set target
of 1:4, similarly, the ratio of National Registration officers to the appropriate population was
reported to be at 1: 41,044 against a target of 1: 18,800 (Table 14.7)
Table 14.8: Proportion of Key Staff in Key Institutions who are Female (%)
2008
Department 2006 2007 Target Actual
Zambia Police 12.5 12.5 11.0
Immigration 20.0 20.0 12.0
DEC 71.0 66.0 28.0 28.0
Prisons Service 23.0 23.0 26.5 23.0
Source: Ministry of Home Affairs Research and Information Department (HARID)
service delivery. Similarly the training for the sector with an eye on the changing
operational environment has been strategies for law enforcement and order maintenance in
compromised by weak the light if major advancements in ICT.
procurement systems that have (d) Review the conditions of service in the sector with a
delayed the implementation of view to improve the morale of personnel.
urgent activities. (e) The tender procedures should be streamlined to make
them more efficient and allow for speedy execution of
projects.
2. Crime prevention still poses (a) There is need to review the existing crime prevention
major challenges within the sector mechanisms with a view to improving them.
as existing mechanisms for (b) Urgently design and implement effective systems for
effective crime prevention have monitoring and evaluating the effectiveness of crime
failed to contain the vice. prevention mechanisms.
(c) The database on crime on crime should be
modernised/computerised and periodically updated for
easier recording and tracking of criminal occurrences
and their association to criminal groups and/or
individuals.
(d) Improve mechanisms for reporting/disseminating
information on crime.
3. The sector has continued to suffer a) There is need to review and improve upon the
from weaknesses in investigation investigations and prosecution management system.
and prosecution mechanisms, b) There is need to improve the mechanisms for
which has delayed the clearance monitoring the implementation of investigation and
of cases. prosecution measures, taking advantage of advances in
ICT.
c) Review the existing legislation with a view to
strengthening the legal framework for public safety,
law and order
4. The sector suffers from poor The sector should be adequately funded to enable it acquire
and/or inadequate infrastructure, and maintain buildings, plant and equipment in order to
which has threatened the improve the work environment. These should include:
effectiveness of service delivery o offices and houses
at this level. o training facilities
o prisons and cells
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15
Summary of Sector Performance against KPIs
15.1 Introduction and Overview
This chapter provides a snapshot of performance during the third year (2008) of
implementation of the FNDP. It is based on whether sectors were able to achieve the targets
they set themselves at the start of the FNDP process for various Key KPIs. This assessment has
been hampered by a lack of data in some essential sectors, which makes it difficult to obtain
more accurate results from sectors. Furthermore, because the assessment is made against the
targets set for the KPIs, it does not represent an assessment of how well the individual
programmes in a sector are being implemented or bring in aspects of how well budgets are
being executed at that level. It is, nevertheless, recommended that these issues are discussed in
the SAGs. Each sector, through its sector information systems, is expected to have a holistic
overview of indicators that link programmes through the inputs, outputs, outcomes and impacts
chain, and with an understanding of how these contribute to the poverty indicators (this is
represented graphically in figure 15.1). This chain is essential if assessments are to be made as
to why targets were missed or exceeded. It is important to bear in mind that the KPIs were
selected by the sectors themselves and are generally at the level of output or outcome.
Programme (1)
Programme activities
(Change in
Programme (3)
Welfare)
Programme activities
Impact
Programme (4)
Poverty
Programme activities
Outcome 3
(Change in
Programme (5)
Impact
Programme activities
15.2 Methodology
The assessment on performance against the KPIs was calculated as follows: if the target for the
year as presented during the formulation phase of the FNDP has been met, then the indicator is
assessed as Fully Met. If the target is not achieved but there has been an improvement on the
previous year’s performance, or if the indicator is disaggregated and one or more parts of the
disaggregation were met, then it is assessed as Partly Met. If the target was not achieved, and
there has been no progress against the previous year, then the target is assessed as Not Met.
Where no data is available for the year in question, or if there is no baseline data (from 2005 or
2006) or target (for 2007), then it is not possible to make an assessment, and a classification of
No Target is entered. This will help to distinguish between sectors that have no functioning
information system and sectors that did not set targets.
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The scores of ‘met,’ ‘partly met’ and ‘not met’ are then combined into a percentage score,
where 100 percent is the highest a sector can achieve and zero is the lowest. Indicators that
have no data are excluded from this calculation. Table 15.1 shows sector level performance as
of the last year of this MTR (i.e. 2008).
15.3 Assessment
For 2008 and using the methodology described above, this MTR takes ‘good performing
sectors’ as being those that have a score of 66.7 percent or greater. Roughly translated, this
would mean that at least two thirds of the set targets have been achieved. Based on this
criterion, the best performers are education, health, communication and meteorology, tourism,
manufacturing and industry and HIV and AIDS. The Environment and Natural Resources
sector received a score of 100 percent, but has not been included in this list because of the large
number of indicators it was unable to report on.
Reasonably well performing sectors would score between 50 and 66.7 percent. In 2008, this
includes the Macroeconomic sector, Land, Central Administration, Foreign Relations, Food and
Nutrition, Infrastructure and Transport, Youth and Child Development, and Public Safety, Law
and Order.
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A third category represents a sector that may be showing an improvement in some areas of its
performance but still has a number of problem areas that need to be addressed Two sectors
were not able to report at all in the year, namely, Housing and Disability and Development.
In terms of total numbers, 2008 recorded an improvement over previous years. However, there
were still some sectors that were unable to report on their own performance with regard to their
KPIs. Furthermore, there was no major change in the number of indicators not reported on
between 2007 and 2008 even though the quality of data provided in some sectors, such as Land,
Governance and Public Safety, Law and Order has improved considerably. Table 15.2 shows
sector performance over the 2006-2008 period based on the achieved targets for KPIs.
Table 15.2: Sector Performance 2006 – 2008 based on Targets met for KPIs
Performance Performance Performance
2008 2007 2006
Environment and Natural Resources 100.0 37.5 25.0
HIV/Aids 75.0 100.0 66.7
Foreign Relations 75.0 33.3 --
Education 70.0 40.0 40.0
Health 70.0 60.0 80.0
Communication and Meteorology 66.7 66.7 50.0
Tourism 66.7 66.7 100.0
Manufacturing and Industry 66.7 50.0 75.0
Macroeconomic 50.0 61.1 75.0
Land 50.0 -- --
Central Administration 50.0 66.7 40.0
Food and Nutrition 50.0 -- 33.3
Infrastructure and Transport 41.7 50.0 66.7
Youth and Child Development 41.7 78.6 42.9
Public Safety, Law and Order 41.7 50.0 50.0
Information Services 40.0 20.0 50.0
Energy 33.3 -- 50.0
Governance 25.0 58.3 25.0
Employment and Labour 25.0 62.5 40.0
Gender 25.0 37.5 37.5
Arts and Culture 25.0 30.0 40.0
Defence 16.7 0.0 --
Agriculture 0.0 50.0 50.0
Mining 0.0 30.0 70.0
Science and Technology 0.0 0.0 20.0
Social Protection 0.0 50.0 62.5
Local Government and Decentralisation 0.0 33.3 50.0
Water 0.0 25.0 62.5
Housing -- 0.0 --
Disability and Development -- -- --
Trade and Commerce -- -- 100.0
Total 38.4 47.9 53.7
The overall level of performance fell to a point where 38.4 percent of the targets can be
assessed as met. However, the fact that this is against considerably higher targets than in the
first year of FNDP implementation must also be considered. In this regard, it should be stressed
that it does not mean that performance is worsening, rather that the individual year targets are
not being met. A similar trend can be observed in the Poverty Reduction Budget Support
(PRBS) Performance Assessment Framework (PAF), though this decline between years is less
dramatic. The reasons for this are twofold (a) the sector that the PAF are drawn from are
generally the better performers and (b) the targets in the outer years are under constant revision
in the formulation of the PAF. This is something that needs to be considered in terms of the
development of the Sixth National Development Plan. The fact that so many targets are being
missed is a cause for concern and needs to be considered in each and every sector to see what
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can be done to improve on performance and agree with stakeholders on targets that are
meaningful and achievable.
Performance in the social and government administration sectors were above average while the
Public Safety, Law and Order, and Economic sectors registered poor performance. The good
performance in the social sectors was driven principally by the improved performance in health
and education over previous years.
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16
Regional Development
16.1 Introduction and Overview
The performance reported in this chapter is based on programmes and projects that were funded
under provincial administration. The activities undertaken by the deconcentrated service
delivery ministries of Agriculture, Health and Education are reported on in their specific
chapter of this MTR. The assessment focused on capital programmes implemented under the
provinces. Overall, performance was below expectations due to a number of reasons, including
inadequate to non-release of funds for core FNDP programmes.
Major outputs from the programme included the continuation of the construction of Chongwe
District Hospital, which was 90 percent complete at the end of MTR; Bunda-bunda Health
Centre in Chongwe district; the surgical wing at Kafue District Hospital (at window level); and
the completion of the mortuary at Luangwa Boma in Lusaka Province. In other provinces, no
major milestones were achieved as funds released were not adequate to complete the projects.
These included. The worst affected was Western Province where only 12 percent of the budget
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allocation was released towards the completion of a surgical ward at Lewanika General
Hospital. Table 16.2 shows resource allocations and actual releases.
Table 16.3: Budget and Releases for Agricultural programmes (Except fisheries)
% of budget
Programme
Copperbelt
Southern
Northern
Luapula
Eastern
Lusaka
Central
Total
Programme
Livestock
Multiplication for Budget 50.5 500.0 900.0 1,450.5
Farmers / Cattle
Restocking Releases 43.1 - 450.1 493.2 34.0
Animal Diseases Budget 100.0 300.0 - 400.0
Control
Releases - 55.0 - 55.0 13.8
Irrigation Budget 20.0 900.0 920.0
Development Releases - 280.0 280.0 30.4
Enhancement of
Agricultural Budget 323.2 1,100.5 1,423.7
Production /
Copperbelt Support
Programme Releases 285.0 380.0 665.0 46.7
In terms of provincial releases, the Copperbelt Province, particularly the Copperbelt Support
Programme, had 88 percent of the allocation released. These resources went towards the
construction of pig panes, animal husbandry, irrigation and poultry development, promotion of
Outgrower schemes of which 118 farmers, mostly women, benefited. However, in North-
Western and Western provinces, no budget allocation was made for agriculture programmes, a
noteworthy aspect considering that these are provinces with some of the highest poverty levels
in the country and where a large majority depend on this sector for their livelihood.
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16.3.3 Fisheries
Under Fisheries programmes, the provinces also undertook a number of programmes dealing
with Fish Outgrower Schemes, with a total budget of K 954 million (Table 16.4)
Under fisheries, highest proportional release was in Eastern Province, which received 100
percent, whereas in Central and Luapula nothing was released. In Eastern Province, fish
restocking was planned for in Kaulu, Mmembe and Kasambandola Dams. In North- western
Province, an activity of establishing fish farming centres was earmarked and received K 94.3
million out of a budget of K97.9 million. Training programmes were conducted for fish farmers
in integrated aquaculture/fish farming techniques with 29 farmers being trained. A total of
45,000 fingerlings were procured and distributed to farmers. In Southern Province, the
integrated small-scale fish farming programme received K150 million against a total budget of
K363 million and was used to restock 73 dams. In Copperbelt Province, resources were
allocated to fish farming development in which 73 ponds were rehabilitated and restocked in
Masaiti.
16.3.4 Buildings
Under Buildings, a total amount of K 9.2 billion was budgeted for the rehabilitation and
construction of government buildings. Of this amount, K7.7 billion was released, representing a
total of 83 percent. The largest releases went to Northern Province where the construction of
the Provincial Minister’s House, construction of District Commissioners’ offices in Mungwi,
Nakonde and Mpulungu were started and works were ongoing. The construction of DCs offices
in Mungwi and Nakonde were at roof level while in Mpulungu the structure was at window
level (Table 16.5).
Table 2: Budget and Releases to Provincial Buildings
% of budget
Copperbelt
N-Western
release as
Southern
Northern
Western
Luapula
Eastern
Lusaka
Central
Total
Programme
and
Rehabilitation of Release 31 0 31 7.16
Public Buildings
Budget 150 441 591
Maintenance of
VIP houses
Release 150 230 380 64.41
Construction of Budget 212 212
Low and
Medium Cost
Release 157 157 74.02
Houses
Total Budget 1,037 1,898 220 931 400 954 955 2,183 652 9,230
Release 1,010 1,143 220 931 0 904 946 2,159 387 7,699 83.42
16.3.5 Forestry
The following table gives a number of forestry programmes undertaken in various provinces.
The programmes include Forestry Inspection and Management, Mushroom growing,
Beekeeping, Timber Industry Development / Forestation & Reforestation, Forestry, Bio
Diversity Conservation and Sustainable Indigenous Forest programme.
release as %
Copperbelt
N-Western
of budget
Southern
Northern
Western
Luapula
Eastern
Lusaka
Central
Province
Total
Forestry Budget 61.6 317.9 0 413.9 22.6 105.5 144.9 0 0 1066.4
Inspection /
Protection & Release 44.5 184.8 0 147.2 5.0 61.7 133.3 0 0 576.5 54.0
Management
Mushroom & Budget 67.0 43.5 70.0 119.4 0 42.2 57.2 451.0 14.7 865.0
Beekeeping
Development Release 33.3 31.1 0.0 17.9 0 20.8 53.5 384.0 10.3 550.9 64.0
Timber Budget 12.5 0 0 0 0 105.7 101.4 213.5 433.1
Industry
Development
/ Release 5.5 0 0 0 0 53.8 95.8 0 87.7 242.8 56.0
Aforrestation
& Refortn
Forestry / Budget 105.9 78.0 64.0 53.1 0 132.6 433.6 0
Bio Diversity
Conservation
/ Sustainable Release 0 35.8 0 0 25.9 24.7 40.5 36.1 163.0 38.0
Indigenous
Forest
Budget 141.1 467.3 70.0 533.3 100.6 317.4 356.6 451.0 360.8 2798.1 0
Total
Release 83.3 215.9 0.0 165.1 5.0 136.3 282.6 384.0 98.0 1370.2 49.0
16.3.7 Education
For education projects, K2,421.4 million was released against a total budget of K 4,817 million,
representing 50.3 percent of the budget. The main programmes undertaken included the
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There were notable outputs under education. In Lusaka Province, the programmes focused on
construction of laboratories and rehabilitation of high schools and providing lighting and
borehole infrastructure to schools. The projects undertaken included the construction of a
laboratory at Olympia Basic School and the construction of classroom blocks, a girls dormitory
and a dining hall at Mukamambo II High School in Chongwe.
In Eastern Province, the activities included the construction of a dormitory at Sonja Girls High
School, which was completed; and the construction of classrooms at Hope campus community
school in Chipata; Chimtengo basic school in Katete; Champhoyo Basic School in Lundazi;
and a dormitory and laboratory at Kaulu High School in Petauke. The construction of all
classroom blocks was ongoing by the end of this MTR.
Major outputs for the groundwater resource management included the construction of six earth
dams and four small dams. In addition, nine dams were rehabilitated, including four in
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Southern and one in Copperbelt Province (St Mary’s dam). Other dams rehabilitated included
Kaulu and Membe Dams in Eastern Province. In addition, data was collected at three Ground
Monitoring Points in Choma, Gwembe and Mazabuka. A spring was developed at Lumbo in
Gwembe and a water reticulation system was installed. A 40m3 rainwater harvester was
installed at Nandongo Basic School in Monze District. Under earth dam construction, four were
constructed, two in Northern and one each in Lusaka and Copperbelt Provinces.
16.3.9 Resettlement
The budget for Resettlement Department amounted to K5.6 billion in 2008 out of which K2.9
billion (51.2 percent ) was released. There was a generally poor release of budgeted amounts
across the board with the exception of Luapula that received 98 percent of the budgeted
amount. Although Western Province had the largest allocation, it received only 61 percent of
the allocated amount (Table 16.10).
N-Western
of budget
Southern
Northern
Western
Luapula
Eastern
Lusaka
Central
Total
Programme
In actualising the FNDP objective of an enabling environment for rural and agricultural
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development, the focus of the work was on the establishment of resettlement schemes,
including land acquisition, land resource surveys and development control monitoring, and
scheme infrastructure development, which included access road and water supply development.
Notable outputs included the demarcation of 1,554 plots, with Copperbelt Province
demarcating 837 plots in Luano and Maposa resettlement schemes. In addition, 321 plots were
demarcated in North-Western Province with 175 household resettled.
With regard to access roads development, a total of 123.4 kilometres were opened up in all the
resettlement schemes with 60 and 47.5 kilometres cleared in Western and Southern Provinces,
respectively. In Southern Province, 47.5 kilometres of access roads were cleared in Masasabi
and Chikankanta resettlement schemes.
16.3.10 Social Welfare
A total of K 8.8 billion was budgeted for the Social Welfare programme out of which K5.5
billion (79.2 percent) was released in 2008. However, the non-core social protection
programmes had the highest allocations and releases. To this effect, non-core programmes
consumed 93 percent of the social protection budget in the provinces during the review period.
Under the core social protection programmes, the activities included support to institutions,
resettlement of disadvantaged persons, juvenile justice and child welfare, public welfare
assistance scheme, street children empowerment, and social cash transfer schemes. However,
these activities could not achieve the desired level of protection due to insufficient funds
allocated to core activities. Under PWAS, 142,460 persons were assisted, with Copperbelt
Province recording the highest (see Table . No outputs were recorded from Central, Northern
and Luapula Provinces, which, according to the Central Statistics Office Living Conditions
Monitoring Survey 2006, are among the provinces with the highest poverty levels.
Table 16.11: Budgets and Releases for Provincial Social Welfare Programmes (K’ Million)
Non-core programmes
Province Personnel General Core
Emoluments Administration programmes Total
% of % of
Budget Releases Budget Releases Budget Budget Releases Budget Releases Budget
Lusaka 698.31 523.46 78.24 51.51 83.00 159.09 118.51 935.64 693.48 74.12
Copperbelt 1,445.39 1,199.94 76.56 50.34 97.73 35.35 16.51 1,557.30 1,266.79 81.35
Central 360.70 371.65 140.49 117.86 100.00 0 0 501.19 489.51 97.67
Northern 358.09 369.46 389.74 211.12 100.00 0 0 747.83 580.58 77.63
Western 381.55 322.92 200.15 127.11 100.00 0 0 581.70 450.03 77.37
Eastern 297.13 228.52 552.80 364.91 100.00 0 0 849.93 593.43 69.82
Luapula 176.38 185.62 136.44 98.20 73.78 111.18 109.98 424.00 393.80 92.88
N Western 397.90 410.06 125.61 78.79 90.19 56.94 8.70 580.45 497.55 85.72
Southern 479.97 381.82 227.15 137.68 89.76 80.64 31.30 787.77 550.80 69.92
Total 4,595.4 3,993.4 1,927.1 1,237.5 93.64 443.2 285.00 6,965.8 5,515.9 79.19
Other notable outputs included the pilot programme of cash transfer, in which 4,563 people in
Katete District and 1,170 in Chipata were among the beneficiaries.
Under the Economic Empowerment Programmes, the main activities during the review period
included non-formal education and skills training and women development, food security pack
distribution and infrastructure rehabilitation. To this effect, major outputs include the training
of a total of 5,852 people in functional literacy, with Western Province recording the highest of
2,118 while Copperbelt, Northern and Luapula Provinces recorded no outputs (Table 16.13).
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Among the notable achievements under the programme were the construction of Youth Skills
Training Centre; construction of 25 core houses at Lukanga North Settlement; Youth Training
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and Empowerment on the Copperbelt; and the acquisition of land resettlement schemes for
youths in Eastern Province. In addition, 432 youths out of the targeted 177 in Southern
Province were equipped with entrepreneurship skills.
Under the main programmes, K1.9 billion was allocated, of which K1.3 was released towards
child affairs activities. Similarly, K2.9 billion was allocated of which K1.9 billion was released
for sports activities. However, no significant outputs were reported by the end of the year in
relation to the targets.
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Part 5
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17
Management and Monitoring of FNDP
17.1 Introduction and Overview
This chapter deals with a variety of issues that broadly fall under the heading of management of
the FNDP. Many of the issues were raised in a number of sectors during the independent
review process. They include structural reforms; financing and the release of resources; human
capacities; the M&E system for the FNDP; and coordination at all levels of FNDP
implementation. The chapter also deals with fundamental changes that Government need to
make in order to ensure effective and successful implementation of the FNDP and the
formulation of successor plans.
Government shifted from an old incremental line budgeting system, which did not take account
of performance, to an Activity Based Budget (ABB) system. This was aimed at tallying funds
to actual activities to be performed in a particular sector. However, misplacement of activities
and resources within and between sectors as well as multiplicity of similar activities within and
between sectors were identified during the course of the review as being among the persisting
challenges. This state of affairs led to difficulties in progress reporting and verification of
outputs of such activities. Moreover, there remained during the review period issues of
accessibility of budgetary information to the wider public, both in terms of digesting or
understanding the details in the Yellow Book and Financial Report.
With respect to the rightsizing of the public service at more competitive and performance
related salary scales, the focus during the review period included striving to attain a more
manageable total wage bill. An important role in this respect was the rolling out of an
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Integrated Payroll Management Establishment Control (PMEC) System across all Ministries,
institutions, and Provinces, including integrating PMEC with IFMIS over the FNDP planning
period. Government’s commitment to the implementation of these reform processes was
reflected by the adoption of concrete indicators with targets under the Performance Assessment
Framework (PAF) of the Poverty Reduction Budget Support programme.
One of the major challenges in the country that affected the monitoring function during the
review period relates to the existence of fairly dated statistical databases both within the
Government system and outside. The status of data collection, processing, management and
dissemination capacities of most data-generating bodies is varied although, generally, almost all
of them require capacity enhancement through, inter alia, training to ensure that data sets are
up-to-date. There is a major problem of weak information management systems at the national
level in Zambia that should be addressed if the assessment of KPIs is to be meaningful. Where
M&E systems are in place in line ministries, there is lack of coordination and harmonization of
these systems. Some of the causes of these hurdles relate to inadequate human resources; weak
capacity in data generation, analysis and coordination; weak infrastructure and lack of resources
for data collection. In some sectors, the system is well developed while in others more work
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needs to be done. For the health sector, the HMIS has generally worked well and collects
health-related information, including information on HIV and AIDS. Many institutions,
including research establishments in Zambia collect data that could be useful in tracking
changes from FNDP interventions. There are signs that capacity limitations exist across a
number of national management information systems regarding data processing into more user-
friendly and intervention-relevant formats. Staff exodus from many Government institutions
has further exacerbated the problem of managing the information. This has the overall adverse
effect on accessibility and reliability of data that is needed to monitor FNDP performance.
There has been little effort on the part of the Government to adequately equip both the Central
Statistics Office; line ministries; and the Monitoring and Evaluation Department under MFNP
to timely generate and process data that is crucial for effective monitoring of national
interventions under FNDP. This has resulted in outdated data and data gaps.
At another level, there is weak data dissemination system. Weak dissemination of information
is an urgent challenge, both of routine statistics and survey data and the period under review
suffered from this. For example, Demographic and Health Survey results are rarely
disseminated widely and one of the challenges is to work out the best mechanism to
disseminate the large amount of new national data in a way that would help improve
programme implementation and monitoring by, say, SAGs. The reliability of the National
Census data is said to be good although its cleaning and actual application during the review
period was often compromised by insufficient human, financial and technical resources. It is
expected that, when well utilised, such data sets could improve upon the country’s databases on
poverty and social welfare indicators, which should result in enhanced evidence-based
planning.
How has the situation on the ground been? This MTR established that most of the SAGs that
are expected to play a strategic role in M&E rarely met. When these met, it was established
that the quality and content of meetings were not satisfactory as issues relating to the budget,
including performance against the KPIs were not adequately dealt with. The National SAG
Conference was also rarely held during the review period. Furthermore, PDCCs and DDCC
continued to serve as forums for discussions of development programmes at provincial and
district levels. However, it was established that these development committees have unclear
reporting channels, which tended to reduce their worthy in programme monitoring. Perhaps
more importantly, there is no national level body that oversees the implementation of the
FNDP. The National Development Coordination Committee exists only in name and never
meets. Consequently, there exists no overall oversight body that could provide guidance to
Ministries during the implementation of the Plan. While MFNP provides overall technical
direction of the Plan’s implementation, this cannot double for the needed authoritative
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body/forum that oversees both policy and operational direction of the entire government system
vis-à-vis the implementation of the Plan, including its monitoring. For example, there is no
opportunity at the Executive level to address the serious mismatch in a number of Ministries
between FNDP planned resources, annual budgets, and actual releases.
The two Annual Progress Reports on the FNDP revealed one major problem related to the
inability of sectors to report against the KPIs identified at the sector level. Six sectors in total
could not report against any of the indicators (Natural Resources, Land, Housing, Energy,
Disability and Development, Foreign Relations and Defence), while other priority sectors,
notably Agriculture and Water and Sanitation consistently appear to have difficulties in
reporting against some of their major KPIs. During the review, two of the most common
sentiments expressed regarding the KPIs were the need to have clear and specific targets for
each of the indicators, and the need to review the KPIs with a view to establishing more
appropriate indicators for reporting performance and impact.
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issues at hand. (b) The national SAG Conference needs to be held timely,
according to the National Economic Management
Cycle.
6. There is little dissemination of There is need to improve systems that facilitate the sharing
developmental information, of information so as to enhance opportunities for more
generally, and the performance of coordinated national response to the country’s
FNDP, in particular. As a result, developmental challenges. This calls for the facilitation of
important information that should support towards the strengthening of data dissemination to
inform policy and interventions at the different levels of end-users, including policy makers,
several levels is rarely shared and Parliamentarians, technocrats, researchers, civil society, and
utilised during the planning and donors.
implementation of development
programmes.
7. The reliability and integrity of In order to improve data integrity, there is need to
data is often questionable due, in adequately synchronise existing documentation/tools on KPI
part, to difficulties within the monitoring. This calls for the rationalisation and
system of data generation and harmonisation of performance indicators within the national
processing. M&E systems at both the Ministry of Finance and National
Planning and line Ministries.
8. Presently, there exists limited There is an urgent need to develop and/or improve upon
collaboration between partnerships and alliances in M&E, data collection and
Government and non-state actors reporting: This should consider the following:
in the field of data generation and (a) There is need to build the requisite capacity of the
reporting. The absence of such research and data generation institutions such as the
alliances/partnership with civil CSO, MFNP and the planning wings of line Ministries
society stakeholders has denied as well as research establishments within and outside
Government the opportunity to the Government system.
take advantage of the pooling of (b) There is need to develop suitable alliances or
resources, experience, creativity partnership with civil society stakeholders. Short and
and energies of the diversity of cost-effective training programmes targeted at national
partners during the and sub-national actors and aimed at strengthening skills
implementation of FNDP. in community participation would be one example of
Participatory monitoring and institutional capacity strengthening at this level.
evaluation mechanisms are also (c) There is need to enhance the capacity of partner systems
underdeveloped and M&E skills to generate baseline data against which achievement of
in the community are generally KPIs can be measured.
low.
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18
Overall Conclusions and Way Forward
18.1 Introduction
A number of detailed recommendations have been made under each core, non core and cross
cutting issues. There are, however, certain recommendations (emanating from the detailed
sector-specific recommendations) that run through all the sectors and have a cross-cutting
impact on the FNDP implementation for the remaining period up to 2010. It is these overall
recommendations which are now presented in this closing Chapter.
confines of specific programmes and, in most cases, is handled outside the national M&E
framework. Data that is collected by NGOs, the academic and the private sector is not
easily accessible by government policy makers, private sector, academic researchers and
health service providers in the public domain. Consequently, there exists limited
collaboration between Government and non-state actors in the field of data generation.
Appropriate alliances or partnership with civil society stakeholders should provide for the
pooling of resources, experience, creativity and energies of the diversity of partners in
poverty reduction and the monitoring of poverty interventions.
6. With respect to data integrity, the existing documentation/tools on monitoring indicators in
Zambia are not adequately synchronised in a way that would secure desirable consistency
within the same government system.
7. In the light of the lessons learnt above, it is important to address the following M&E-
related capacity enhancement effort:
(a) Adequately equip MFNP (and CSO therein) and the line ministries to timely
generate and process data that is crucial for effective monitoring of national
interventions.
(b) Human Rights Approach to monitoring should be stressed. This approach calls for
the identification of indicators that are responsive to the human rights core values.
This also calls for strong political leadership, commitment and engagement so as to
promote good governance with respect to all aspects human rights.
(c) Strengthen Government and development partner institutions that oversee
management information systems (MIS) so as to enhance data dependability. This
calls for improvements, through technical support and training, of routine
information systems of line ministries that generate data.
(d) Put in place an incentive regime that improves the retention capacity of M&E
personnel that handle the more strategic databases required for effective
monitoring.
(e) Develop appropriate institutional and legislative framework that supports effective
coordination of data management. The creation of a multi-sectoral M&E
coordinating mechanism should be part of this effort.
(f) Enhance participatory monitoring mechanisms that capture different actors at
various levels in service delivery.
(g) Improve systems that facilitate the sharing of information so as to enhance
opportunities for more coordinated national response to national developmental
challenges.
(h) Build the requisite capacity of the research and data generation institutions outside
Government so as to complement State effort in M&E. Short and cost-effective
training programmes targeted at national and sub-national actors and aimed at
strengthening skills in community participation would be one example of
institutional capacity strengthening at this level.
(i) Strengthen data dissemination to the different levels of end-users, including policy
makers, Parliamentarians, technocrats, researchers, civil society, and donors. This
may entail the development of on-line platform and the supportive Wide Area
Network (WAN) infrastructure.
8. Lastly, SAGs should play a strategic role in both the identification of KPIs and in
monitoring the FNDP. Considering the identified weaknesses that have been revealed in
this MTR at this level, the following yardsticks are recommended during the selection of
the indicators across all the sectors of the FNDP:
(a) Considering the revealed monitoring capacity limitations that characterise the
average line ministry in Government, the number of core indicators for each
programme ought to be aligned to the ability of the existing systems to
meaningfully apply them with reasonable level of dependability. In this respect,
only a handful of core indicators for each category (process, input, output,
outcome/impact) should be selected. This in no way minimises the significance of
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other indicators that, where capacity allows, could be added for the purpose of
getting a more comprehensive picture.
(b) For a core indicator to be included, there should exist readily available quality data
on that indicator and that the data source for the indicator can be clearly identified.
(c) The required data for the selected core indicators should be collected regularly. In
addition, the indicators selected should meet the following criteria:
o The data is relevant to users in terms of its timeliness,
adequacy, relevance, and accessibility;
o Data collection processes are affordable and cost-
effective;
o It must be possible to disaggregate data on the indicator in
desirable classifications; and
o The indicator should be able to help in predicting
outcomes and impact with reasonable degree of reliability.
(d) Where sector information systems are weak, sectors should budget for establishing
Management Information and efficient M&E systems. This should be done with
backstopping services from the M&E Department and Central Statistical Office at
MFNP.
2. There has been concern expressed that the FNDP is not aligned to other key working
instruments such as MTEF, Annual Budget, Ministerial Work Plans and Strategic Plans.
This perception need to be corrected as the country implements the remaining part of the
Plan. It is not the FNDP that should be aligned to the Annual Plans or Ministerial Work
Plan. Rather, it is the other way round: It is these instruments that should be aligned to the
FNDP. When an MTEF or the Annual Budget is developed, the primary frame of reference
should be the existing five-year Plan as it is meant to provide overall policy and strategic
guidance to all the other instruments, itself being subordinate only to Vision 2030. In this
regard, it is important that Government Ministries tailor their Annual Work Plans and
Budgets in a manner that respect the provisions of the FNDP. Similarly, the National
Budget prepared by the MFNP should as much as possible ensure that it does not deviate
unjustifiably from the priorities of the FNDP both in terms of identified programmes and,
perhaps most importantly, with respect to the allocation and actual releases of resources.
The MTR revealed that the ratio of the budgeted non-core to core programmes is higher
with non-core programmes often allocated more than 70 percent of the total budgets and, in
the process, leave the core programmes under-funded.. This has had very serious adverse
implications for the realisation of the set targets of FNDP in a good number of sectors. If
this state of affairs is allowed to continue, then the heavy investment that was incurred
during the preparation of the FNDP would be reduced to a mere academic exercise and a
repeat of the same process would not be justified during the preparation of the Sixth
National Development Plan.
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3. Government should keep debt to manageable and sustainable levels. In this respect, any new
borrowing to finance FNDP and subsequent development plans should be aligned to the country’s
capacity to repay and on terms that would not unduly expose the country to preventable risk of
defaulting. The Government should, therefore, target concessional finance and ought to negotiate
only those loans with a 35 percent minimum grant element. In the acquisition of external loans,
the priorities of the National Development Plan and the Millennium Development Goals (MDGs)
targets should guide Government actions.
4. Government should ensure that arrears accumulation due to bad loan and/or investment
decisions is eliminated. This should entail the provision of more debt oversight authority to
Parliament through legislative review. It should also entail closer monitoring of how loans
are being applied, based on the country’s debt management strategy.
5. There is need to diversify the economy by increasing non-traditional exports and broaden
the types of economic activities in a way that would enhance the national revenue base.
Focus should be on industrial processing that add value to economic activities.
6. There is need to secure prudent management of limited resources to bring about tangible
socio-economic benefits to the country. This could be achieved by ensuring that all huddles
to the implementation of the PEMFA and all its components, including the IFMIS, are
eliminated.
7. Tender procedures should be streamlined to make them more efficient to allow for speedy
execution of projects under the FNDP. The decentralisation of the tender system is
recommended.
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References