Policy implementation dynamics in Zimbabwe’s indigenisation and economic empowerment policy: The case of Zimplats Mhondoro-Ngezi-Chegutu-Zvimba Community Share Ownership Trust (2012-2016).

Abstract

This study sought to explore the implementation dynamics in Zimbabwe’s indigenisation and economic empowerment policy, with particular reference to the Zimplats Mhondoro-Ngezi-Chegutu-Zvimba Community Share Ownership Trust (ZMNCZCSOT). Zimplats Mhondoro-Ngezi-Chegutu-Zvimba was the first community share ownership trust (CSOT) to be launched in the mining sector in Zimbabwe, having been established in October 2011 as one of Zimbabwe’s platinum mining giants, Zimplats, sought to comply with the indigenisation policy. This research was prompted by the fact that the manner in which a policy is implemented usually diverts from the original objectives and problems that the policy makers endeavour to address during the formulation process. The primary objective of this study was to explore the policy implementation dynamics in Zimbabwe’s indigenisation and economic empowerment policy, with particular reference to the ZMNCZCSOT. There were five specific objectives. These were to analyse the legal, policy and institutional framework through which CSOTs are implemented in Zimbabwe; to critically examine the operation and effectiveness of the CSOT policy instrument. The study also sought to highlight and discuss the challenges faced in the implementation of the ZMNCZCSOT and to propose possible options for enhancing the success of the ZMNCZCSOT. There was a review of literature on the rationale behind indigenisation policies, the challenges usually faced in implementation, and options for enhancing the success of the policy frameworks. Quantitative and qualitative research philosophies were applied through the use of a case study. The population was made up of officials from the Ministry of Youth Development, Indigenisation and Economic Empowerment, ZIMPLATS, ZMNCZCSOT implementation committee (Trustees), elected and appointed officials in Rural District Councils covered by the CSOT, traditional leaders and ordinary members of the communities. The researcher use purposive sampling technique to identify participants she believes to be good prospects for obtaining the required information. The findings were discussed in line with the emerging themes or classes of findings. Narrative, tabular, and graphical illustrations were used to present the findings. The research found out that there were inconsistencies in the legal framework for the CSOTs. There were inadequate guidelines on operations of CSOTs and some of them lacked capacity. The ZMNCZCSOT was doing a good job to promote development but there was limited grassroots participation and inequality in the distribution of projects in the districts. There was limited information dissemination pertaining to the operations of the company (Zimplats). While the company was facing operational challenges, it was accused of dishonestly and purposively reporting losses. However, the company should release the share certificate. There was also limited information dissemination to the grassroots. The overall conclusion was that there were inconsistencies in the legal framework and inadequate guidelines on the operations of CSOTs. ZMNCZCSOT was trying its best to ensure community development though active participation. However, information dissemination was noted to be a challenge. The research recommended that the was a need for a consistent and clear legal framework, capacity building, grassroots participation, effective information dissemination, widening of the sources of funds, and transparency in the management of the ZMNCZCSOT.