Corruption remains a major threat to the effective delivery of public infrastructure projects, particularly in countries where large-scale investments involve multiple actors, complex financing arrangements, long implementation periods, and limited public access to information. In Zambia, past weaknesses in public investment management have contributed to inefficiencies, stalled infrastructure projects, and the loss of public resources. Although the Government has made important reforms through public investment management guidelines, appraisal manuals, risk management tools, and the National Public Investment Management Strategy, effective implementation and proactive identification of corruption risks remain essential.
This report presents the findings of a corruption risk assessment conducted by Transparency International Zambia on the Lusaka-Ndola Dual Carriageway Project using the Infrastructure Corruption Risk Assessment Tool developed by Transparency International Australia. The Lusaka-Ndola Dual Carriageway Project is a major public-private partnership project valued at US$649.98 million. It involves the upgrading of 327 kilometres of road between Lusaka and Ndola, including related works, and is expected to improve transport efficiency, support trade, and contribute to Zambia’s economic transformation. However, the project has also attracted public debate due to its history, financing structure, and transparency concerns.
The assessment identified several positive governance and institutional features. These included the existence of strong public finance and procurement systems, openness to media and civil society engagement, professionalism within key public institutions, and a good reputation for leadership within the Ministry of Finance and National Planning. The assessment also noted that the Lusaka-Ndola Dual Carriageway Project was subjected to appraisal and evaluation processes, including review of cost estimates, economic viability, and environmental and social considerations.
However, the assessment also identified important corruption risks and governance vulnerabilities. At country level, the key areas of concern included persistent public-sector corruption, political party and tribal loyalties influencing public and business decisions, delayed implementation of the Access to Information Act, limited asset declaration compliance, and gaps in beneficial ownership transparency. At institutional level, the assessment found limited public grievance mechanisms for public investment management and concerns around external influence in public decision-making.
At project level, the main corruption red flag was limited transparency. Key project documents, including the feasibility study, environmental impact statement, and concession agreement, were not publicly accessible during the study period. This limited the ability of citizens, civil society, and other stakeholders to scrutinise the project’s financing model, environmental and social impacts, toll revenue arrangements, and concession terms. The lack of transparency was further compounded by limited participation of non-state actors in public contract negotiations.
In response to these findings, TI-Z recommends strengthening the asset declaration regime through comprehensive legislation requiring all public officials to periodically and consistently declare their assets and liabilities. The Public-Private Partnership Department should enhance transparency in PPP-financed projects and increase non-state actor participation in negotiation processes. The Ministry of Finance and National Planning should develop a publicly accessible grievance mechanism and expand the publication of multi-year public investment project pipelines.
TI-Z further recommends accelerating the operationalisation of the Access to Information Act No. 24 of 2023 to ensure public access to key infrastructure project documents, including feasibility studies, environmental impact statements, and concession agreements. The Anti-Corruption Commission should promote integrity through institutionalised asset and conflict-of-interest declarations, while PACRA should improve access to beneficial ownership information. Civil society organisations and cooperating partners should also increase advocacy and public sensitisation on contract transparency, public investment management, and public infrastructure governance in Zambia.
