ABF
AUBREY BARKER
FUND
Charity Commission No. 263855
Charity Commission No. 263855
The following paper presented at the CASLE conference on ‘Housing and Livelihoods’ on
17 November 2007 at Mukono, Uganda, was awarded a special prize sponsored by the
Aubrey Barker Fund.
DISTRICT DEVELOPMENT PLANNING AND LIVELIHOODS
1.0 Introduction
Poverty is arguably Zambia’s most daunting development challenge. It is now widely
acknowledged that significant changes in the existing poverty trends can only be accomplished
through greater empowerment of communities and more effective popular participation in
decision making at the level of the community. The Zambian government has realized the
significance of local governance, decentralised development planning and management of
poverty.
The re-
with its citizens and stakeholders. The sustainable use of natural resources has become a
cornerstone for economic development. One of the lessons learnt from the 1990s was the fact
that even in a liberalized economy, development planning is necessary for guiding priority setting
and resource allocation. The absence of national planning in the 1990s forced the government to
concentrate on short-
reflects the collective understanding, aspirations and determination of the Zambian people to be
a prosperous middle-
implementation Plan (DIP) which will be operationalised in the Provincial Planning Units and
District Planning Units (FNDP, 2006:1).
For the planning process to be meaningful and achieve its intended results, it has to be
decentralised. Decentralised development planning involves a large number of organizations and
line departments at central and local government level to which the Provincial and District
Planning Units form the secretariat. These units will focus on socio-
development plans. Coordinated planning is an essential process of facilitation, which assists a
group of individuals, or community to understand the situation in which they are so that they are
able to change it.
To be successful, the outcome of district development planning should be the empowerment of
the poor, improvement in standard of living for the poor resulting in poverty reduction. This paper
highlights the development planning process and structure in Zambia. The paper justifies
the need for decentralised district development planning in Zambia and also looks at the role of
the planning profession in improving livelihoods as operationalised by the district planning unit in
Livingstone.
2.0 Development Planning in Zambia
Until 1991, development planning was done through preparation of National Development Plans
with four having been prepared in Zambia from 1971 to 1989. The institution which was
responsible for national planning was the National Commission for Development Planning
(NCDP), put under the office of the president. NCDP was abolished and the functions of
regional Planning transferred to the Ministry of Local Government and Housing under the
Department of Physical Planning and Housing.
In 2002, the New Deal government of President Mwanawasa reintroduced national planning
under the Ministry of Finance. Although the reintroduction has created two parallel structures
for planning in the country, national planning will be hinged on district planning. Preparation of
National Development Plans utilizes the bottom up and bottom down approaches. Plans are
prepared by districts that input into the provincial plan, which in turn inputs into the national
plan. Development planning at the district level has therefore become indispensable to national
planning. Development coordination at the district level and beyond has been provided for
through committees established in 1995 through a cabinet circular No. 1. These are the District
Development Coordinating Committees (DDCC), Provincial Development Coordinating
Committees (PDCC) and the National Development Coordinating Committee (Mwiimba, 2002:1).
District Development Coordinating Committees have been established by government as a body
to coordinate district development activities. All government departments, non-
and present reports through the subcommittees. The district planning unit under the councils
provides the secretariat to the DDCC while the provincial planning office is the secretariat to the
PDCC. Both PDCC and DDCC are expected to coordinate development activities. Through
coordination, all development agencies at the district are expected to be involved in the
realization of the district development goals and priorities and not to be solely concerned with
their organizational objectives and special interests (Mwiimba, 2002:6)
Development planning is essential in providing clear definitions and articulations of national,
provincial and district priorities for government actions and allocation of public resources.
District Development Planning essentially means looking ahead into the future. It is a way of
organizing and utilizing scarce resources (Alila and Kosura, 2000:89). The government has
realized the significance of local governance, decentralised development planning and
management of poverty reduction. Public service delivery to the poor is likely to be improved
with participation of non-governmental organizations, civil society and public/private sector
partnerships. Popular participation in governance at the local level is a prerequisite for
development as it ensures more customized responses to the needs, problems, aspirations and
organizing and utilizing scarce resources (Alila and Kosura, 2000:89). The government has
realized the significance of local governance, decentralised development planning and
management of poverty reduction. Public service delivery to the poor is likely to be improved
with participation of non-
development as it ensures more customized responses to the needs, problems, aspirations and
priorities of the people.
2. 1 Governance Structures
The institutional framework within which a plan is implemented ultimately determines the
prospects of its success.
2. 1 Governance Structures
The institutional framework within which a plan is implemented ultimately determines the
prospects of its success.
In order to achieve an integrated approach to the use and management of resources, government
in 2002 embarked on the development of the Decentralisation Policy aimed at enhancing
institutional and human resource capacity at all levels of government. The policy aims to
empower local authorities and communities by devolving decision making authority, functions
and resources from the centre to the lowest level with matching resources in order to improve
efficiency and effectiveness in the delivery of services.
In addition, government prepared and launched the Fifth National Development Plan (FNDP)
2006-2010 as a guide to the countries development efforts over the medium and long term
period. The FNDP is an important vehicle towards the realization of the Vision 2030 in which
government articulated long term development objectives and identified a number of
development goals. The FNDP has acknowledged the weak management capacity at provincial,
district and sub-district levels and suggests the need for capacity building at these levels as
functions devolve and as decentralisation is implemented. Improved management of resources at
the local level will enhance the participation of those whose livelihoods are dependent upon the
sustainable use and management of the resource. The delivery of quality services by the districts
will however require supervision. Institutions such as the District Planning Units in first schedule
local authorities and Provincial Planning Units in Second schedule local authorities have been
developed as a vehicle through which government will achieve its goal of poverty reduction.
Local authorities are responsible for planning and management at the local level. Local
authorities include District councils, City and Municipal councils. Under the decentralisation
policy, local authorities will assume increasing responsibility over management of towns and
cities. Implementation of the decentralisation policy would be done using guidelines and
structures provided for under the decentralisation Implementation Plan. This document has
however not yet been released to the various stakeholders and thus the government structure in
operation even after the launch of the decentralisation policy is shown in fig 1.
in 2002 embarked on the development of the Decentralisation Policy aimed at enhancing
institutional and human resource capacity at all levels of government. The policy aims to
empower local authorities and communities by devolving decision making authority, functions
and resources from the centre to the lowest level with matching resources in order to improve
efficiency and effectiveness in the delivery of services.
In addition, government prepared and launched the Fifth National Development Plan (FNDP)
2006-
government articulated long term development objectives and identified a number of
development goals. The FNDP has acknowledged the weak management capacity at provincial,
district and sub-
the local level will enhance the participation of those whose livelihoods are dependent upon the
sustainable use and management of the resource. The delivery of quality services by the districts
will however require supervision. Institutions such as the District Planning Units in first schedule
local authorities and Provincial Planning Units in Second schedule local authorities have been
developed as a vehicle through which government will achieve its goal of poverty reduction.
Local authorities are responsible for planning and management at the local level. Local
authorities include District councils, City and Municipal councils. Under the decentralisation
policy, local authorities will assume increasing responsibility over management of towns and
cities. Implementation of the decentralisation policy would be done using guidelines and
structures provided for under the decentralisation Implementation Plan. This document has
however not yet been released to the various stakeholders and thus the government structure in
operation even after the launch of the decentralisation policy is shown in fig 1.
Government Line Ministry and Sectoral Structure
Fig 1: Government Line Ministry and Sectoral Structure
The institutional framework within which a plan is implemented ultimately determines the
prospects of its success. In order to achieve the requirements for the provision of social
infrastructure, there has to be determined government at all levels, comprehensive and
coordinated planning as well as full engagement of partners. However there are no vertical links
in the reporting structure and thus line departments tend to operate in isolation. This poses as a
hindrance to district development planning. Decentralised development planning with an
enhanced local authority is thus crucial to district development planning in Zambia.
3.0 The District Planning Process in Zambia
The planning process has seven main components that loop together as follows:
3.1. Data Collection and Poverty Mapping
Data is a basic requirement for any form of planning and since planning involves making
calculated decisions, there is need for adequate and appropriate information. Under this
component, data that exposes the situation of district poverty and short falls in government
activities is collected. The data is then summarised into district poverty profiles which set out
the major facts on poverty in a particular district or which shows how poverty varies across
subgroups. Data collection is done through census, sample household surveys, rapid appraisal
techniques, participant observation and visualization in participatory planning.
3.2 Strategic Planning
Strategic Planning involves conducting a situation analysis and preparation of a Strengths,
Weaknesses, Opportunities and Threats (SWOT) statement. It also deals with developing a
Vision and Mission Statement, main objectives, strategies, policies and priority programs of the
district.
Weaknesses, Opportunities and Threats (SWOT) statement. It also deals with developing a
Vision and Mission Statement, main objectives, strategies, policies and priority programs of the
district.
3.3 District Development Plans and MTEF
Medium Term Plans and Expenditure frameworks (MTEF) translate the priority programs from
the strategic plans into the District Development Plans using MTEF and Activity Based
Budgeting Principles.
3.4 Annual Plans and Budgets
Annual Plans and Budgets are developed based on the activities outlined in the District
development plan.
3.5 Implementation Plans
Following the preparation of the annual work plans and budgets, all activities that need to be
carried out in that particular year are scheduled according to priority and availability of
resources.
3.6 Monitoring and Evaluation
Monitoring and Evaluation of programmed activities is then carried out. Progress reports from
monitoring are also used to assess the implementation of programmed activities.
4.0 Role of the Planning Profession
There are many different levels and degrees of detail in planning practice ranging from broad-
plans and controlling the aesthetic beauty of individual buildings. Thus the planning profession
must of necessity be made up of a range of people offering a diversity of specialisms to carry
out this work load. Planning is concerned not only with individual land uses but the whole built
environment which they make up and thus with the overall townscape and design of the areas in
which human beings live and where different urban activities take place (Greed, 1996:44).
Development and its impacts are long lasting. Planning for urban and rural growth is a major
challenge around the world today. Unless urban areas can be made more sustainable and rural
life more tolerable, the legacy of negative environmental and social costs will become irreversible.
Planning means being proactive focused on sustainability and making connections between
people, economic opportunity and the environment.
Using its various principles and techniques, planning can:
There are many different levels and degrees of detail in planning practice ranging from broad-
plans and controlling the aesthetic beauty of individual buildings. Thus the planning profession
must of necessity be made up of a range of people offering a diversity of specialisms to carry
out this work load. Planning is concerned not only with individual land uses but the whole built
environment which they make up and thus with the overall townscape and design of the areas in
which human beings live and where different urban activities take place (Greed, 1996:44).
Development and its impacts are long lasting. Planning for urban and rural growth is a major
challenge around the world today. Unless urban areas can be made more sustainable and rural
life more tolerable, the legacy of negative environmental and social costs will become irreversible.
Planning means being proactive focused on sustainability and making connections between
people, economic opportunity and the environment.
Using its various principles and techniques, planning can:
a. Preserve and enhance the quality of life
b. Protect the physical and natural environment
c. Promote equitable economic growth
d. Distribute services to disadvantaged communities and
e. Respond effectively to development of all kinds
Planning is thus central for governance of human settlements.
The planning process involves the performance of a number of roles. Thus planners engaged in
planning departments perform some of the following duties:
a. Formulation of plans and policies to meet the social, economic and physical needs of
communities. They also in collaboration with the community develop the strategies to make
these plans work.
b. Development of plans for land use patterns, housing needs, parks and recreation
opportunities, highways and transportation systems, economic development and other
aspects of the future.
c. Working with the communities to develop a vision for the particular area and activities to
build that vision. They analyze problems, visualize futures, compare alternatives and
describe implications so that communities can make knowledgeable choices.
Planners design and manage the planning process itself in order to involve interest groups,
citizens and communities. Common types of planning practice in Zambia include Land use
Planning, Environmental Planning, Disaster Management Planning, Social Economic
Development Planning, Transportation Planning and Community Development Planning.
The government has the overall responsibility for development. It provides resources to the
communities and the District Planning Units are expected to monitor the projects to ensure that
the funds are used for their intended purpose. The department is in some cases a signatory to the
project accounts to provide checks and balances. These funds include Constituency
Development Fund and more recently the Youth Development Fund. Currently all districts in the
country have prepared a DDPRS having been trained in the process in 2002.
5.0 District Development Planning in Livingstone
District Administration headed by a District Commissioner is responsible for coordinating
developmental activities. District Administration comprises various sector ministerial
Departments performing specified Government functions and responsible for implementing
programmes and report to their respective provincial heads of department. In order to enhance
the operations of District Administration, government through circular 1 of 1995 established the
District Development Coordinating Committee as a forum for coordinating the planning and
implementation of development activities at district level.
The DDCC is however ineffective because no legal framework backs its operations and thus has
an effect on district development planning in Livingstone. In addition, there are semi-
perform specified functions on behalf of sector ministries aimed at increasing community
participation in planning and delivery of services. This creates parallel structures for community
participation and development.
5.1 Livingstone District Planning Unit
citizens and communities. Common types of planning practice in Zambia include Land use
Planning, Environmental Planning, Disaster Management Planning, Social Economic
Development Planning, Transportation Planning and Community Development Planning.
The government has the overall responsibility for development. It provides resources to the
communities and the District Planning Units are expected to monitor the projects to ensure that
the funds are used for their intended purpose. The department is in some cases a signatory to the
project accounts to provide checks and balances. These funds include Constituency
Development Fund and more recently the Youth Development Fund. Currently all districts in the
country have prepared a DDPRS having been trained in the process in 2002.
5.0 District Development Planning in Livingstone
District Administration headed by a District Commissioner is responsible for coordinating
developmental activities. District Administration comprises various sector ministerial
Departments performing specified Government functions and responsible for implementing
programmes and report to their respective provincial heads of department. In order to enhance
the operations of District Administration, government through circular 1 of 1995 established the
District Development Coordinating Committee as a forum for coordinating the planning and
implementation of development activities at district level.
The DDCC is however ineffective because no legal framework backs its operations and thus has
an effect on district development planning in Livingstone. In addition, there are semi-
perform specified functions on behalf of sector ministries aimed at increasing community
participation in planning and delivery of services. This creates parallel structures for community
participation and development.
5.1 Livingstone District Planning Unit
District development planning process is spearheaded by the District Planning Unit (DPU).
Livingstone District Planning Unit is a section under the department of Town Planning in the
Livingstone City Council. The section became operational in 2003. The unit provides the
secretariat to the DDCC and is expected to coordinate all development activities in the district.
The district planning unit has played a considerable role in improving the livelihoods of people
in the district. The unit helps communities assess and prioritise their needs, set goals and
implement a plan for action. It also has access to economic development funds that are meant
for community development projects i.e. Constituency Development Fund (CDF) and
Constituency Youth Development Fund (CYDF).
As outlined in the district planning process, the first step taken by the Planning unit was the
collection of data in the district. This resulted in the formation of a District Situation Analysis
in 2003. Other documents such as the District Development and Poverty Reduction Strategy
(DDPRS) and the Annual Investment Plans (AIP) have since been developed. Funding for
community development activities for poverty reduction is done using the objectives and
criteria contained in the District Development and Poverty Reduction Strategy (DDPRS).
However due to lack of coordination among the different stakeholders, development projects
are usually carried out in isolation and may not even be priority projects as reflected in the
DDPRS.
Livingstone District Planning Unit is a section under the department of Town Planning in the
Livingstone City Council. The section became operational in 2003. The unit provides the
secretariat to the DDCC and is expected to coordinate all development activities in the district.
The district planning unit has played a considerable role in improving the livelihoods of people
in the district. The unit helps communities assess and prioritise their needs, set goals and
implement a plan for action. It also has access to economic development funds that are meant
for community development projects i.e. Constituency Development Fund (CDF) and
Constituency Youth Development Fund (CYDF).
As outlined in the district planning process, the first step taken by the Planning unit was the
collection of data in the district. This resulted in the formation of a District Situation Analysis
in 2003. Other documents such as the District Development and Poverty Reduction Strategy
(DDPRS) and the Annual Investment Plans (AIP) have since been developed. Funding for
community development activities for poverty reduction is done using the objectives and
criteria contained in the District Development and Poverty Reduction Strategy (DDPRS).
However due to lack of coordination among the different stakeholders, development projects
are usually carried out in isolation and may not even be priority projects as reflected in the
DDPRS.
5.2 Government Development Funds
Through the government development funds various projects have been undertaken in
Livingstone district. Development funds such as Constituency Development Fund and Youth
Development Fund are provided to local authorities for development projects in various
constituencies and wards by government. The Planning subcommittee of the DDCC to which
the planning unit also forms a secretariat scrutinizes development proposals from communities
and selects potential development projects. The shortlisted projects are recommended to the
full council meeting for approval.
In 2007, 40 million kwacha was released by government as Youth Constituency Development
Fund. The fund is intended for youth empowerment so as to provide the youth with a means
to earn a living. A number of youth groups applied for grants to carry out projects. Among the
selected projects were groups engaged in chicken rearing, vegetable growing, block moulding
and doormat making.
After scrutiny by the planning subcommittee, 10 projects were awarded two million kwacha
each, the majority of which were chicken rearing projects. Chicken rearing is popular in
Livingstone City because the city hosts a major tourist attraction, the Victoria Falls. With an
increase in the number of tourists visiting the town a number of guest houses have mushroomed
thus providing a ready market for chickens. The projects are meant to create employment for
the group members and once they have become sustainable for the Livingstone residents as
well.
The Livingstone District Planning Unit also works in collaboration with non-governmental
organizations seeking to improve people’s livelihoods. In this case, officers from the
department are present when carrying out a particular project that is initiated by a non-
activities by the different non-governmental organizations.
The unit, under the poverty reduction and water affairs program embarked on a dam
rehabilitation and siting exercise in rural Livingstone as part of measures to tackle a looming
water shortage. The project sited five dams in Simango, Sinde, Kasiya settlement, Songwe and
Namalongo areas and rehabilitated the existing ones. Five dams were also sited in Sianduwe
area. An example of government and cooperating partners joining hands to make sure that
villagers drink clean water and have enough even in times of drought. Residents that before
had to walk long distances to fetch water now have the water near their residences and thus
are now able to cultivate crops to feed their families.
Livingstone district. Development funds such as Constituency Development Fund and Youth
Development Fund are provided to local authorities for development projects in various
constituencies and wards by government. The Planning subcommittee of the DDCC to which
the planning unit also forms a secretariat scrutinizes development proposals from communities
and selects potential development projects. The shortlisted projects are recommended to the
full council meeting for approval.
In 2007, 40 million kwacha was released by government as Youth Constituency Development
Fund. The fund is intended for youth empowerment so as to provide the youth with a means
to earn a living. A number of youth groups applied for grants to carry out projects. Among the
selected projects were groups engaged in chicken rearing, vegetable growing, block moulding
and doormat making.
After scrutiny by the planning subcommittee, 10 projects were awarded two million kwacha
each, the majority of which were chicken rearing projects. Chicken rearing is popular in
Livingstone City because the city hosts a major tourist attraction, the Victoria Falls. With an
increase in the number of tourists visiting the town a number of guest houses have mushroomed
thus providing a ready market for chickens. The projects are meant to create employment for
the group members and once they have become sustainable for the Livingstone residents as
well.
The Livingstone District Planning Unit also works in collaboration with non-
department are present when carrying out a particular project that is initiated by a non-
activities by the different non-
The unit, under the poverty reduction and water affairs program embarked on a dam
rehabilitation and siting exercise in rural Livingstone as part of measures to tackle a looming
water shortage. The project sited five dams in Simango, Sinde, Kasiya settlement, Songwe and
Namalongo areas and rehabilitated the existing ones. Five dams were also sited in Sianduwe
area. An example of government and cooperating partners joining hands to make sure that
villagers drink clean water and have enough even in times of drought. Residents that before
had to walk long distances to fetch water now have the water near their residences and thus
are now able to cultivate crops to feed their families.
6.0 Constraints to District Development Planning
a. Coordination of development activities is hampered by partial decentralisation. Some
government departments such as Agriculture, Education and Health are fully deconcentrated
whilst others are not. These departments have full autonomy in planning, budgeting and
implementation of development activities. The officers report to the provincial and national
levels whilst at the same time are expected to be coordinated by local authorities. This
inconsistence and partial decentralisation also makes coordination and integration difficult and
use their own approaches to development planning since they have their own funding
(Dietvorst and Siame, 2000:14, CATAD (a), 1997:37, Metsch, 1999:10).
b. Inadequate funding to the local authorities. The planning unit is a section under the
Livingstone City Council, an institution that is largely under-resourced in terms of its current
role and function. This tends to limit the units ability to carry out its intended functions.
c. Existence of parallel administration structures at district level.
d. The coordination role of the District Administration is undermined by the existence of District
Heads of Department who report directly to their sector provincial and Ministry Headquarters.
e. Delay in the release of the Decentralisation Implementation Plan (DIP). Despite the launch of
the decentralisation policy, some government departments are still operating under the
centralized system of government. The DIP is expected to provide a structure for the
operations of line departments under local government.
7.0 Conclusion
Planning is central to the governance of human settlements in Zambia. The re-introduction of
planning in country is the first step in the right direction. Operations of the Livingstone District
Planning unit will be greatly enhanced in a decentralised government system. Development
Plans reflecting the values and aspirations of the people will only be implemented in a
coordinated and decentralised system of governance. However, currently the major challenge to
District Development Planning is the delay in the release of the Decentralisation Implementation
Plan. The release of this Document will guide district development and thus the reduction of
poverty in Zambia
8.0 Bibliography
Alila P. and Kosura W. (2000). Regional Development Policy and Practices in Africa and
Planning is central to the governance of human settlements in Zambia. The re-
Planning unit will be greatly enhanced in a decentralised government system. Development
Plans reflecting the values and aspirations of the people will only be implemented in a
coordinated and decentralised system of governance. However, currently the major challenge to
District Development Planning is the delay in the release of the Decentralisation Implementation
Plan. The release of this Document will guide district development and thus the reduction of
poverty in Zambia
8.0 Bibliography
Alila P. and Kosura W. (2000). Regional Development Policy and Practices in Africa and
Asia; A Comparative Study: UNCRD, Kenya.
Dietvorst D.C.E. and Siame D (2002). A Participatory Extension Approach (PEA) and the
Participatory Intergrated Development (PID)
Greed C. (1996). Introducing Town Planning; Addison Wesley Longman Limited, Malaysia.
Mwiimba Chalo (2002). Integrated District Development Planning in Southern Province,
Zambia; Paper to the South African Planning Institution International Conference on
‘Planning Africa 2002’, South Africa.
‘Planning Africa 2002’, South Africa.
Ministry of Finance and National Planning (2005). District Planning and Budgeting Manual;
Planning and Economic Management Department, Lusaka, Zambia
Republic of Zambia (2006). Fifth National Development Plan 2006-2010; Ministry of Finance
and National Planning, Lusaka, Zambia
Chilombo Mbilikita-Hamabwe
Department of Physical Planning and Housing,
Zambia.
Email: chilombombilikita@yahoo.co.uk
Zambia.
Email: chilombombilikita@yahoo.co.uk