“Local Lens” to Track Zambia’s Decentralisation

In recent years, Zambia has elevated decentralisation as a national priority to accelerate development and strengthen local governance. From expanded Constituency Development Fund (CDF) allocations to the adoption of a new National Decentralisation Policy, the reform aims to bring decision-making closer to communities. Yet despite progress, the path to full and effective implementation remains uneven. 

To support accountability and citizen engagement, Transparency International Zambia (TI-Z) has launched Local Lens—a digital platform that tracks implementation of the 2023 National Decentralisation Policy district by district. Alongside the portal, TI-Z has released a new study report based on a pilot assessment in ten districts. The findings offer a data-driven snapshot of Zambia’s decentralisation progress, highlighting key areas for improvement. 

Why Decentralisation Matters 

Decentralisation is the transfer of authority, resources, and responsibilities from central to local government. Done right, it empowers communities to shape local development, strengthens service delivery, and ensures public resources are managed with greater transparency and accountability. From building schools and clinics to planning community projects, decentralisation gives citizens a greater voice in decisions that affect their daily lives. 

As one Cabinet official under the Decentralization Secretariat noted during our consultation, “Devolution has gained significant national attention, drawing interest not only from politicians but also from civil society, development partners, traditional leaders, and ordinary citizens. It is no longer just a political talking point—it now represents tangible change in the daily lives of Zambians.” 

Zambia’s Decentralisation Journey 

Zambia’s decentralisation efforts date back to the 1980s, but early reforms were largely administrative and top-down, with limited citizen participation or fiscal autonomy. In 2002, a more structured Decentralisation Policy was introduced, grounded in the principle of subsidiarity—the idea that decisions should be made at the most local level possible. Yet implementation remained slow. 

A major turning point came in 2015, when Zambia ratified the African Charter on the Values and Principles of Decentralisation. In 2016, decentralisation was embedded in the Constitution (Amendment), giving legal weight to the reform agenda. These efforts gained momentum after 2021, spurred by renewed political leadership and growing pressure from citizens and development partners. 

Where are we at? 

In 2022, the government raised the CDF allocation from K1.6 million to K25.7 million per constituency—a fifteen-fold increase. The 2023 National Decentralisation Policy consolidated these efforts into a single framework, supported by an Implementation Plan (2023–2027) with clear goals, timelines, and performance indicators.  

Since then, 13 public service functions—including education, health, and agriculture—have been devolved, and over 4,000 civil servants transferred to local councils. Ward Development Committees (WDCs) have become the main channel for the implementation of programmes such as FISP, CDF, and Cash for Work. 

These reforms have brought new opportunities – but also new challenges. Councils now have access to more resources than ever before – some officers even report receiving more funding in a single quarter than in the previous decade. This sudden influx of responsibilities and budgets has revealed major local capacity gaps. Councils are still adapting to their expanded role, struggling to manage large-scale disbursements and implement robust financial systems. Moreover, issues of coordination and institutional overlap contribute to undermine the full realisation of the decentralisation’s promise.  

Measuring Progress 

To understand how the decentralisation policy is unfolding on the ground, TI-Z conducted a pilot assessment in ten districts: Chipata, Choma, Kasama, Katete, Livingstone, Mansa, Mongu, Ndola, Petauke, and Solwezi. Using official indicators from the Decentralisation Implementation Plan, we evaluated performance across three key areas: decentralised governance, fiscal decentralisation, and policy coordination. To complement the data collected from the councils, we convened a high-level stakeholder consultation with representatives from Cabinet, the Ministries of Justice, Finance, and Local Government. 

As an official from the Ministry of Justice observed, “Having an independent source such as TI-Z to measure and validate progress enhances the credibility of government efforts and builds trust among stakeholders through evidence-based assessments.” 

Overall, the study reveals uneven progress across districts and thematic areas; while governance functions are devolved, local authorities are not managing to reach the expected targets concerning fiscal management and coordination. 

Decentralised Governance 

Decentralised governance showed the strongest performance, with an average score of 66%. This reflects significant progress in devolving functions, building local capacity at both ward and district level, and establishing and orienting CDF Committees. 

However, the data from the districts highlighted some notable gaps, such as the lack of a unified methodology to conduct surveys, and uneven public sensitisation (despite the development of a dedicated CDF communication strategy). A significant shortcoming concerned the realignment of Ward Development Committees (WDCs), now the primary entry point for citizen participation in all programmes, at sub-national level, given that an Alignment Manual with guidelines is yet to be published and circulated.  

Key challenges highlighted by the research include low WDC meeting attendance, inadequate staff capacity, poor-quality of CDF applications – compounded by corruption and low literacy, continued use of manual record-keeping, and widespread confusion about roles and responsibilities. Community members and committee officials remain unclear about what the decentralisation policy demands and how roles and responsibilities are assigned. 

Fiscal Decentralisation 

Fiscal decentralisation revealed more pronounced weaknesses, with an average progress rate of 57%. Fiscal decentralisation also recorded the highest variance among districts: while Livingstone achieved almost full implementation of fiscal indicators, districts such as Solwezi, Petauke and Mongu failed to go beyond 31% progress rate (that’s less than one third of the expected targets for 2024). Councils continue to use manual or inconsistent systems, and the absence of standardised digital financial management limits efficiency. Finance staff at councils is often untrained and there are unclarities about responsibilities. The government has yet to finalise an accrual accounting policy, develop an equitable CDF allocation formula, or conduct its own fiscal decentralisation study. 

That said, there are bright spots. Our research recorded 100% progress in conducting financial and accounting systems audits and in appointing controlling officers. Moreover, as Decentralisation Secretariat pointed out, in districts like Nakonde, Chilanga, Siavonga, and Chirundu, digitised systems have dramatically boosted revenue, enabling councils to go cashless and fully fund their own staff salaries—a sign of growing financial independence. Also, with rising CDF allocations, councils now have an unprecedented opportunity to address local development needs more directly and effectively. 

Policy Coordination 

Policy coordination recorded an average progress rate of 58%. Despite the creation of task forces, technical working groups, and adoption of service charters in all 116 councils, many districts failed to hold required coordination meetings or produce communication and M&E outputs. A recurring concern was the lack of structured monitoring and clear performance indicators. Although several institutions conduct M&E, internal reports remain unpublished and no external evaluation has been carried out. Some monitoring visits were even misused for political activities.

Recurring Challenges 

Our research underscores a persistent mismatch between growing resources and limited capacity. While councils are receiving unprecedented funding, many lack the tools, systems, and skills to manage it effectively. Large portions of the CDF remain unspent—a trend we flagged in our recent report. Despite large sensitisation efforts, institutional ambiguity and misunderstandings around roles and responsibilities remain a major issue, further contributing to inefficiencies and conflicts. On the systems side, the lack of standardised digital platforms for financial management and other processes continues to hold back progress. Indeed, decentralisation should not mean each district invents its own system, but rather that every district is equipped with the best possible tool to deliver development. 

Overall, these are not signs of failure, but of a reform still in motion. Recognising and adapting to these challenges is essential for decentralisation to succeed. 

Introducing Local Lens 

To help address these challenges, TI-Z has launched Local Lens, a digital monitoring tool that tracks decentralisation implementation at district level. The platform currently presents data from the 10 pilot districts and will be updated regularly to reflect new evidence. 

Local Lens is designed for everyone – from policymakers and researchers to journalists, CSOs, and ordinary citizens who want to understand how their district is performing. It is a tool for evidence-based advocacy, but also a call for meaningful participation. Decentralisation only works when citizens are informed, engaged, and able to hold their leaders accountable.  

Recommendations 

To translate the decentralisation policy into real impact, action is urgently needed at all levels, starting from fiscal decentralisation and policy coordination. 

The government must prioritise fiscal decentralisation by rolling out financial management and revenue mobilization systems. Institutional roles and responsibilities must be clarified to improve the efficient implementation of the policy at district level. 

Local authorities must improve coordination, invest in staff capacity, and make better use of support from partners. The Decentralisation Secretariat must play a central role in harmonising communication and coordination between national and local actors, guiding them clearly on roles, responsibilities, and expectations. Moreover, the Ministry of Local Government and Rural Development should accelerate the development of the Alignment Manual to effectively guide the realignment of sub-national structures 

Above all, we must ensure that decentralisation does not remain a policy on paper – but a lived reality for Zambians in every district, from the heart of Lusaka to the most remote wards. TI-Z stands ready to support this effort through ongoing monitoring, reporting, and civic engagement – starting with the launch of Local Lens and our study report.