Government of Zimbabwe

MINISTRY OF NATIONAL HOUSING AND SOCIAL AMENITIES

ZIMBABWE NATIONAL HUMAN SETTLEMENTS POLICY (ZNHSP)

Harare, 2020

Towards well-planned and well-governed sustainable human settlements 1

TABLE OF CONTENTS
ACRONYMS…………………………………………………………………………………………………….4
DEFINITION OF TERMS……………………………………………………………………………………..5
ACKNOWLEDGEMENTS……………………………………………………………………………………………6
FOREWORD…………………………………………………………………………………………………….7
EXECUTIVE SUMMARY……………………………………………………………………………………..10
INTRODUCTION AND KEY POLICY PARAMETERS………………………………………………………………15
1.1 Anchors of the Zimbabwe National Human Settlements Policy……15
1.2 The Policy Development Process ............................................................... 16
1.3 Definition and State of Settlements ......................................................... 17
FIGURE 1: SPATIAL DISTRIBUTION OF POPULATION , DENSITY BASED ON 2012 CENSUS…………………….18
FIGURE 2: HOTSPOT A NALYSIS OF P OVERTY, 2012………………………………………………………….19
1.4 Analytical Framework used for the Policy .............................................. 20
1.5 Lessons underpinning the Policy ............................................................... 21
Box 1: Human Settlements in Zimbabwe: Some Lessons……………………………………...21
1.6 Settlement Planning and Governance Principles .................................. 22
1.7 Goal of the Policy and its Application ....................................................... 23
2.0 POLICY PROPOSALS………………………………………………………………………………………..24
2.1 Human settlements delivery .......................................................................... 24
2.1.1. Land access and tenure…………………………………………………………………….…..24
2.1.2. Spatial Planning and Management of Settlements……………………………………..27
2.1.3. Off-site and on-site infrastructure………………………………………………………….30
2.1.4. Densification………………………………………………………………………………...……32
2.1.5. Rental housing…………………………………………………………………..34
2.2. Settlement Financing……………………………………………………………………………..35
2.3.Regularisation of informal settlements……………………………………………………….36
2.4. Displacements and Relocations .............................................................................. 38
2.5. Institutional housing....................................................................................... 39
2.6. Rural settlements ............................................................................................. 40
2.7. Social amenities ................................................................................................ 42
2.8. Legal and regulatory framework ................................................................. 43
2.9. Urban regeneration and renewal ................................................................ 44
2.10. Settlement governance ................................................................................ 46
2.11. Institutional Arrangements for the Policy ............................................. 46
Box 2: Other laws impacting/guiding settlements in Zimbabwe……………………………………….48
2.12. Social inclusion in settlements .................................................................. 49
2.13. Allocation of housing goods and services .............................................. 50

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 2.14 Environment, climate change and new building technology ............. 51
2.14. Economic Development and Regulation of Settlements .................... 53
3.0. POLICY ACTION PLAN AND ITS RESOURCING……………………………………………………………54
4.0. CONCLUSION/SUMMARY POLICY MESSAGE……………………………………………………………..55

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ACRONYMS
CBOs Community Based Organisations

HGF Housing Guarantee Fund

ICT Information and Communication Technology

LED Local economic development

MNHSA Ministry of National Housing and Social Amenities

MSMEs Micro- Small Medium Enterprises

NHF National Housing Fund

NUA New Urban Agenda

RDCs Rural District Councils

SDGs Sustainable Development Goals

UN United Nations

UN-HABITAT United Nations Human Settlements Programme

USAID United States Agency for International Development

ZNHSP Zimbabwe National Human Settlements Policy

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DEFINITION OF TERMS

Densification : A term used by planners, designers, and developers

to describe the increasing density of people living
in settlements
Home Ownership: Housing allocated on ownership basis

Moratorium : An official suspension or delay of some activity

Regularisation : A staged process of upgrading informal settlements

to improve quality of life through provision of

requisite on site and off site services and tenure

Sanitisation : A process of bringing order to stressed formal

settlements

Spatial planning : An activity centered on making decisions relating to

the location and distribution of land use activities

Social housing : Affordable rental housing provided by Government

and/or local authorities to cater for the low income

and the vulnerable

Urban renewal : Upgrading or redevelopment of blighted urban

structures and infrastructure

Urban regeneration: Upgrading dilapidated housing and social structures

and infrastructure in an urban settlement

Urban sprawl : Planning for single-storey housing as opposed to

multi-storey building which results in extending the

periphery of existing housing schemes

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ACKNOWLEDGEMENTS

The Ministry would like to express its indebtedness to various stakeholders

who participated in the consultation processes through drafting to validation.
First and foremost, we would like to acknowledge Civic Forum on Human
Development and IOM for sponsoring the validation workshop, UN-Habitat for
sponsoring the finalization of the final draft policy. Secondly we would like to
acknowledge other Government Ministries, Departments and Agencies, all the
Country‟s Ten Provinces, Community Based Organisations, Non-Governmental
Organisations, Zimbabwe Association of Housing Financiers, Housing
Director‟s Forum, Colleges and Universities. Last, but not least, we would like
to acknowledge the lead Constultant, Dr. Kudzai Chatiza, representing
Development Governance Institute who facilitated the consultations,
researches and drafting in conjunction with the Ministry‟s Technical Team.

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FOREWORD
The Zimbabwe National Human Settlements Policy (ZNHSP) is a culmination of
wide consultations of various and varied groups of people in the country‟s ten
(10) provinces which began in May 2018. Having noted deficiencies in the
National Housing Policy of 2012, Government embarked on the above stated
consultations soliciting opinions with a view to address the short-comings
inherent in the 2012 Policy. The views from the nationwide consultations were
collated and synthesized into one comprehensive document, which product
underwent validation processes in 2019.

Guided by the Constitution of Zimbabwe Amendment Number 20 of 2013, the

Government is obliged to ensure that every citizen has access to adequate
shelter. Consequently, shelter is a basic human right. This is also reinforced in
the National Vision 2030 which envisages driving the economy “Towards a
Prosperous and Empowered Upper Middle Income Economy by year
2030”.

Achievement of Vision 2030 requires contribution from all thematic working

groups/sectors of the economy, and the human settlements sector is not an
exception. The country is facing a daunting national housing backlog hovering
beyond 1.25 million units, with social amenities infrastructure also in
deficiency. The Ministry will strive to take advantage of the economic
stabilisation which the country has attained and explore various models to
deliver housing and social amenities infrastructure.

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Besides the housing and social amenities backlog, the sector is laden with a
plethora of other challenges which include, but not limited to:

i. Obsolete and inadequate off-site and on-site infrastructure;

ii. Informal settlements;

iii. Widening disparities between rural and urban areas and;

iv. High cost of building materials and housing finance.

In relation to the widening disparities between rural and urban areas,

Government is taking a deliberate move to ensure sustainable provision of
housing and social amenities in both rural and urban settlements, in
consultation with relevant stakeholders.

The sector takes cognisance of the adverse effects of climate change which,
therefore, calls for adoption and adaptation of resilient building technologies
and inclination towards green energy. The need to protect wetlands cannot be
over-emphasised.

The Ministry of National Housing and Social Amenities will endeavour to abide
by the notion of social inclusion as one of the key pillars in ensuring that no
one is left behind in all housing and social amenities policies, programmes and
projects.

Since land is a finite resource, deliberate attempts to strike a balance between

agriculture and human settlements development shall be made. The
densification model of development shall be intensified through the
construction of walk-up flats/vertical space utilisation. In the same vein, urban

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regeneration programmes and projects shall be informed by the need to
densify settlements.

Regularisation and sanitisation of informal settlements shall be employed in

order to rectify past mistakes through building back better. In so doing,
Government shall be conscious of the constitutional provision on arbitrary
evictions. However, in instances where people have settled on undesignated
sites such as road servitudes, way leaves, land earmarked for social amenities
and any other designated use, relocation to appropriate places will be
effected.

It is our fervent hope that this Policy is accorded space in Government‟s quest
to achieve better performing and sustainable human settlements.

Honourable Daniel Garwe (MP)

MINISTER OF NATIONAL HOUSING AND SOCIAL AMENITIES

“Sheltering the nation”

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EXECUTIVE SUMMARY

The Zimbabwe National Human Settlements Policy (ZNHSP) seeks to

contribute to the country‟s Vision 2030. The provisions of the Policy govern all
settlements in Zimbabwe. Settlements are areas where people live, work and
play, connected and served by road, transport, water, sanitation, Information
Communication Technology (ICT), natural and energy infrastructure.

The policy development process included consultations in all the 10 Provinces,

key informant interviews, and review of academic, policy and development
literature.

The ZNHSP‟s vision is “well-planned and well-governed Zimbabwean

settlements”.

The policy highlights are as follows;

Land access and tenure- All state-land earmarked for human settlements
will be channelled through the Ministry responsible for human settlements
development and the respective local authorities, having regard to objects of
the devolution thrust in the local governance domain. Title will only be issued
for fully serviced or developed stands and on agro-plots.

Spatial Planning- All Planners shall be statutorily registered to ensure

uniformity in planning standards applicable in local authorities throughout the
country. In respect of mining settlements and other private settlement types;
it is imperative that such plans are lodged with the respective local authorities
for inclusion in their development planning processes.

Off-site and on-site infrastructure- Off-site infrastructure provision is the

responsibility of Government and/or local authorities whilst the latter provides
on-site infrastructure taking into consideration Information and
Communication Technology (ICT) infrastructure and public safety.
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In the current circumstances with the benefit of hindsight, the subsisting
moratorium on parcelling out of land to housing developers and cooperatives,
ought to be upheld until such time that the dividend from
sanitisation/regularisation programme has been realised. No beneficiary shall
be permitted to occupy land before services are in place.

Densification- All productive agricultural land shall be preserved as such. At

least 40% of land for human settlements development shall be reserved for
development of high-rise apartments. Subdivision of low density stands shall
be permissible and encouraged. There shall be a cap on the maximum
residential stand sizes, the principle being that land is a finite resource and as
such it has to be preserved for posterity.

Settlement financing- The funding of settlements development shall be

predicated on the following;
 Appropriation from Treasury (General Development Loan Fund, Public
Sector Investment Programme and Devolution Funds);
 Estates accounts of local authorities;
 Public Private Partnerships;
 Lines of credit;
 Foreign Direct Investments;
 Non-Governmental Organisations;
 Private sector initiatives
 Pension and provident funds
 Employer-assisted housing schemes
 Diaspora remittances

Rental housing- The rental housing market will be resuscitated and

prioritized.

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Social housing – Social housing will be provided by Government and local
authorities to cater for the marginalized social stratum in the polity. In this
scenario, it is envisaged that social housing and institutions for the orphans
and the aged ought to be incorporated whenever human settlements are
planned.

Regularisation- All informal settlements will be regularised and sanitised by

Central Government in conjunction with respective local authorities. A
regularisation protocol will be developed to standardize the process. In
particular instances, where applicable, high-rise apartments will be used to
address double and multiple allocations.

Displacements and relocations- National government will develop a

„Compensation and Relocation Framework‟ where an alternative land-
use warranting displacement is contemplated. It will be applicable to national
projects such as dam or road construction.
Relocations will also be extended to displacements induced by natural
disasters, for example, Cyclone Idai with those affected by such calamities
relocated to planned settlements guided by disaster risk reduction
frameworks.

Institutional housing- Government pool properties and institutional housing

will not be disposed of.

Rural settlements- Model homesteads shall be piloted in strategic areas in

order to engender replication by the generality of the citizenry.

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Social amenities- There is need to bridge the gap between the social
amenities infrastructure in urban and rural areas. In this connection, the
following will be encouraged in liaison with local authorities:
 Densified Micro, Small to Medium Enterprises (MSMEs) workspaces;
 Alternative recreational facilities;
 Designated youths interact centers with requisite ICT facilities, and;
 Provision and maintenance of community infrastructure e.g. community
halls, swimming pools, play centres, women‟s club centres, gymnasiums
and libraries.

Legal and regulatory framework- There is need to promulgate a human

settlements act.

Urban regeneration and renewal- Government, in conjunction with local

authorities, will resuscitate the urban regeneration of derelict housing units
and renewal of city buildings replacing with high rise flats/multi-storeyed
apartments, in conformity with the densification strategy.
Institutional framework- Government will establish a Statutory
Body/Agency that will undertake all works within the domain of human
settlements development.

Environment, climate change and new building technology- All

developments on wetlands, under electricity pylons, servitudes and way-
leaves, are illegal. In all development areas, issues speaking to green energy
and the gamut of renewable energy sources, have to be taken into
consideration by those who would want to partake in the development of
human settlements goods and services.

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Settlement governance
Planning, developing and governing settlements are important State roles
which are intrinsic and critical to management of devolved structures in lower
tiers of governance. It is therefore in this context that settlement governance
systems facilitate sustainable growth of each settlement and progression
along the national settlement hierarchy thereby leading to national growth in
Gross Domestic Product (GDP). This, indeed, speaks to the dividend
emanating from the Devolution Agenda.

SOCIAL INCLUSION IN SETTLEMENTS

The performance of settlement-related functions, provision of services and the
financing of settlement activities will adhere to the Constitution regarding
equality of men and women, the rights of older persons, youths, children and
persons with disabilities.

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INTRODUCTION AND KEY POLICY PARAMETERS
1.1 ANCHORS OF THE ZIMBABWE N ATIONAL HUMAN SETTLEMENTS P OLICY

1. The Zimbabwe National Human Settlements Policy (hereinafter ZNHSP or

the Policy) is guided by and seeks to frame implementation of the relevant
aspects of Agenda 2030 (Sustainable Development Goals), the African
Union‟s Agenda 20631, Zimbabwe‟s Vision 2030 (of an upper middle-
income country), the national Constitution (Amendment No. 20 of 2013)
and resilience frameworks.

2. Constitutional provisions on good governance, basic rights and

devolution, especially provisions in Chapters 14 (provincial and local
government), 15 (traditional leaders, especially Section 282:1), 16
(agricultural land, especially Section 289) and 17 (especially Section 301)
informed the analysis leading to this policy.

3. The ZNHSP seeks to frame attainment of all Sustainable Development

Goals (SDGs) based on its focus goal of well-planned and governed
settlements. Its specific anchor is SDG 11 (sustainable cities and
communities, that is, the New Urban Agenda) but all other goals are
relevant given that „leaving no one behind‟ is a core responsibility for those
that plan, develop and manage settlements.

4. The Policy builds on New Urban Agenda (NUA) aspects of i) local

economic development, ii) sustainable land use and security of tenure, iii)
preserving socio-ecological functions of land and related resources
through, inter alia, effective waste management iv) appropriate spatial
development strategies including densification, avoiding sprawl and

1
Agenda 2063 is a strategic framework for the socio-economic transformation of Africa

Towards well-planned and well-governed sustainable human settlements 15

 renewing settlements, and v) promoting sound socio-economic linkages
within and between rural and urban areas.

5. National and international frameworks for resilience are taken into account.
The Policy clearly provides for disaster risk assessments and mapping,
environmental impact assessments and mitigation integrating implications
of climate change into aspects of rural and urban settlement planning,
development and management. The policy will focus on settlement siting,
building codes and standards, energy, transport and mobility as well as
institutional arrangements.

1.2 THE POLICY DEVELOPMENT P ROCESS

6. The Policy draws on national consultations in all provinces, key informant

interviews, review of academic, policy and development literature and
visits to twenty-three (23) settlements of different types. Discussions were
held with residents of these settlements in addition to observations.

7. At least 750 people (ordinary citizens, representatives of professional

bodies, government and non-state organizations2, Universities etc.)
interacted with researchers and Ministry officials.

8. Views gathered were synthesized into a Background and Issues Paper. The
analysis leading to the Policy showed that existing settlements perform
some functions well but experience stress. Further, existing frameworks
are no longer adequate to guide spatial and economic planning,
development and management of settlements.

2
Private and civil society sector representatives

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1.3 DEFINITION AND STATE OF SETTLEMENTS

9. Settlements are areas where people live, work and play, that is, people‟s
homes, modified or unmodified open areas, places for economic, social and
recreational activity. Settlements are connected and served by road
transport, water, sanitation, Information and Communication Technology
(ICT), natural and energy infrastructure. The spaces, facilities and services
are part of the environment that draw resources from and impact the
natural environment. Different institutions provide and manage these
services or infrastructures ensuring the functional integrity or performance
of settlements. Inhabitants of settlements have obligations to contribute to
the sustainable planning, development and management of their areas.

10. Settlements are thus natural and altered spaces shared by humans, life
under water and on land3. For humans, there are living and working
spaces, centers for entertainment, education, health and human assembly.
They include communal and resettlement area villages, urban
neighborhoods, farm and mine compounds, business centers, rural and
district service centers, towns and cities. Each settlement has distinct
spaces or land-use areas that are connected to form a whole.

11. The country‟s rural areas have more than 30 000 villages, thousands of
farm, plantation and mining settlements. It has some 500 urban centers 4
(including 32 Urban Council areas). These vary in spatial size, demographic
structure and size, environmental and economic character. Figure 1 shows
population density and thus settlements in the country.

3
SDGs14 and 15
4
Centres of 2500 residents or more with the majority not dependent on agricultural activities

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FIGURE 1: SPATIAL DISTRIBUTION OF POPULATION, DENSITY BASED ON 2012 CENSUS

Source: Swinkels et al (2019:16) 5

12. Zimbabwe‟s colonial history explains why its main urban centres 6 are in
areas poorly connected to sparsely populated hinterlands. They were set
up as „heartlands‟ of commercial farming and mining. Post-independence
rural and urban development prioritized rural areas to ensure access to
improved services for the black majority. The country‟s population is 32%
urban (with 35%, 1 in 3 urban residents being in Harare) a drop since the
last census. The country is thus „de-urbanizing‟ partly associated with post-
2000 de-industrialization, land reform programme and broader economic
decline.

5
Swinkels R, Norman T and Blankenspoor B (2019) Analysis of Spatial Patterns of Settlement, internal Migration
and Welfare Inequality in Zimbabwe, World Bank
6
Harare, Bulawayo, Mutare, Masvingo, Kwekwe, Gweru and Kadoma

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13. Land reforms after 2000 are yet to fully transform the spatial
distribution of population density. As such, the majority of the densely
populated settlements are in drier parts of the country that are also
inadequately served in terms of road transport and other services. This
explains why poverty remains higher in communal areas and other remote
parts of Zimbabwe. Poor social service delivery outcomes (clean water and
safe sanitation, electricity, education and health) are also associated with
these areas as shown in Figure 2 below.

FIGURE 2: HOTSPOT ANALYSIS OF POVERTY, 2012

Source: Swinkels et al (2019:55)

14. While rural areas are disproportionately poorer than urban areas,
poverty and food insecurity have risen fastest in urban areas as the
economy shrunk. Limited performance of Municipal Budgets has resulted in
serious infrastructure and service backlogs.

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 The cholera outbreak of 2008-09, which led to 4300 deaths and a repeat in
2018 emphasizes this challenge.

15. The stressed nature of Zimbabwe‟s rural and urban settlements means
that they lack the kind of socio-economic productivity that allow individual
and collective advancement towards a „…society in which people enjoy
prosperous, happy and fulfilling lives‟ (S8:1, Constitution of Zimbabwe).

1.4 ANALYTICAL FRAMEWORK USED FOR THE POLICY

16. Rural settlements include villages, settlements in farming and other

economic areas, places of worship, commercial, education and health
centres. The settlements serve functions that require different services and
are planned to appropriate standards. They are linked in terms of social
and economic functions by road and other communication links and
residents perform specific roles in planning, developing and managing
them through different local state and non-state institutions.

17. Performance of the necessary rural settlement planning, developing and

managing (governance) functions has been weakening over years. This
suggests a weakening of local institutions of the state as well as citizen-led
structures e.g. Associations of Farmers, Traders etc. Zimbabwe‟s rural
society and economy have thus weakened. The evidence is seen in
unsustainable settlements.

18. Urban settlement planning, developing and managing (governance)

functions have also weakened in recent years. Master and Local Planning,
economic structure and performance (including job creation), budgets and
infrastructure have regressed with negative consequences for urban
economies and services as seen in societal outcomes.

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19. The analysis of the 23 settlement case studies and insights from the 10
provincial dialogue sessions show that social and economic connections
between and within rural and urban areas have not been at their best.
Further, services are inadequate and deteriorating. The Policy guides the
rehabilitation of existing settlements and planning, developing and
managing (governance) of future ones towards sustainability.

1.5 LESSONS UNDERPINNING THE POLICY

20. The policy draws on lessons from a rich national settlement history as
shown below.

BOX 1: HUMAN SETTLEMENTS IN ZIMBABWE: SOME LESSONS

1. Effective and transparent political and technical leadership helps residents

to cooperate, co-develop, implement and maintain agreed settlement
solutions;
2. Mobilized residents, housing social movements and effectively organized
communities are an important ingredient for sustainable human
settlements;
3. Some aspects of settlement planning and management (e.g. informal
settlements upgrading, informal settlement regularisation, service
rehabilitation and urban renewal) involve slow processes that require fairer
and clearer inter and intra-governmental fiscal frameworks, institutional
reforms and empowered local governments. Specially-established local and
national agencies are needed;
4. Institutions involved in land, planning and housing that are accountable
and transparent promote collective and responsible local actions. Urban
Councils particularly but also Rural District Councils previously have been
involved in necessary learning and capacity development critical to

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 effective settlement policy making, spatial planning, development and
governance. Independently verifiable transparency and accountability are
key to addressing inequality;
5. The replacement of a culture of multiple mass evictions is possible. It
reduces constitutional rights violation and erosion of opportunities for
inclusive governance. Regularization and in-situ upgrading of formal and
informal settlements engender state-citizen rapport necessary for
sustainable settlements; and
6. Intra and inter-settlement mass transport services and the facilitation of
integrated settlement-level economic development aid settlement
sustainability.

1.6 SETTLEMENT P LANNING AND G OVERNANCE PRINCIPLES

21. Planning, designing and physically establishing settlements, managing,

regularizing and renewing them are complex processes. These functions
require the cooperation of different agencies, individual professionals and
ordinary residents/citizens. Competing settlement interests will be
mediated based on eight principles as follows:

a. Settlements are about, for and by people with basic human rights;
b. Each settlement pursues clear outcomes, which may evolve over
time to inform its „character‟ in relation to:
 Spatial efficiency;
 Social inclusion (gender, disability, age, wealth/poverty etc.);
 Economic density and productivity;
 Environmental stewardship/sustainability; and
 Resilience;

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 c. Individual and collective responsibility for developing, maintaining
and expanding settlement services and ensuring fully functional
settlement institutions. This is within the context of implementing
social protection measures;
d. Equitable land and housing access, effective use and security of
tenure without an over-emphasis on individual ownership (kuva
nepangu/ukuba lendawo yami);
e. Progressively decolonized settlements through:
 De-stigmatizing „the rural‟;
 Promoting „flats/high-rise housing‟;
 Reducing land-use zones defined based on income and social class;
 Facilitating citizens‟ freedom of settlement across the country; and
 Practical promotion and incentivizing of land-use mix and higher
density;
f. Use of scientific and indigenous knowledge in planning, developing
and managing integrated settlements; and
g. Placing the responsibility to govern all types of settlements on Local
Authorities.

1.7 GOAL OF THE POLICY AND ITS APPLICATION

22. The ZNHSP vision is of „well-planned and well-governed

Zimbabwean settlements‟.

23. The provisions of the Policy govern all settlements in Zimbabwe

irrespective of institutions sponsoring them or whether a settlement is
temporary (e.g. project-related camps, places of worship) or permanent.
Its implementation will be embedded in statutory economic and spatial
planning cycles at national and local levels.

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2.0 POLICY PROPOSALS

2.1 HUMAN SETTLEMENTS DELIVERY

2.1.1. LAND ACCESS AND TENURE

Land for settlement and economic development as well as administration of

superstructures have seen significant competition in recent years arising from
growing demand. State and non-state organizations involved in the land and
built-environment sectors have neither collaborated effectively nor have they
had sufficient capacity (including finances) to fully deliver. Centralization of
some land administration functions weakened local agencies including local
authorities thereby straining settlement planning, development and
management. In some cases, levels of government competed and drew
benefits in ways betraying a lack of whole-of-government consistency.

Weak administration of land for different urban and rural (non-)agricultural

land uses has resulted in unsustainable development. This is seen in wetland
encroachment, pollution of watercourses, overlapping land allocation,
vandalism of property, unproductive use of land, unresolved land conflicts,
and utilization of productive/prime agricultural land for housing development.
Resultant land tenure insecurity also dampened national economic
development prospects.

With reference to settlements, the Policy guides relevant authorities and

residents as follows:

24. Processes of land identification, acquisition, planning and development

for settlements will fully involve the local authorities and concerned
communities. Viability of local planning authorities will rest on clear and
legally enforceable land delivery and administration instruments. Every
local authority will enact these in a participatory and consultative manner.

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25. All state-land earmarked for human settlements should be channeled
through the Ministry responsible for human settlements development and
the respective local authorities for ease of coordination and accountability.

26. Clear and defensible tenure rights will be defined for all land categories
nationally and mechanisms for guaranteeing security of tenure set up.
However, title deeds will only be issued to stands that are fully serviced
and developed to minimum habitable standards. Title deeds will also be
extended to agro-plots, where appropriate.

27. Across all levels of government, roles will be defined on land

acquisition, allocation, administration and efficient utilization based on the
principle of subsidiarity and whole-of-government consistency.

28. Land designated for small urban centers and institutional purposes in
rural areas will be title-surveyed to ensure security of tenure, enable
investment and guarantee objective land valuation.

29. As a finite resource, land will be used efficiently and effectively for
sustainable development. Every local authority will develop and maintain
an updated database of settled land, by use, ownership and/or users,
which should be regularly audited for efficiency and effectiveness.

30. Every local authority will develop, approve and implement strategies to
build strong land-based financial sustainability and efficient land use that
curbs settlement sprawl induced by ownership (kuva nepangu/ukuba
lokwami) including through the following:

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 a. Acquiring land that is objectively certified as derelict and under-
utilized based on design and implementation of a robust
development control system;
b. Appropriately managing local authority land and housing including
sales;
c. Creating land banks informed by forward plans balancing built-up
areas and rural land-use needs like food production;
d. Maintaining and growing the stock of publicly and privately produced
rental housing;
e. Providing decent and socio-economically convenient social housing
including running programs that allow facilitated graduation; and
f. Setting minimum and maximum residential stand sizes in all urban
settlements.

31. Rural Local Authorities will regulate the spatial location of settlements,
design of homesteads, provide for common services (e.g. gravesites),
choices of building technology, construction materials and methods that
are economic, sustainable, resilient and enhance land use efficiency.
Settlement and construction choices will be decided in liaison with
communities, traditional, religious and other community institutions in
conformity with local culture, norms and values.

32. Where a local authority delegates land and/or housing development,

allocation, sale, lease or renting it will be expected to clearly guide and
build the capacity of such institutions to ensure consistent and equitable
application of the laws of the land. This applies, for instance, to
performance of land allocation functions by traditional leaders in rural
areas. The delegating authority will remain accountable for relevant
outcomes.

Towards well-planned and well-governed sustainable human settlements 26

2.1.2. SPATIAL PLANNING AND MANAGEMENT OF SETTLEMENTS

Zimbabwe has a longstanding tradition of spatial planning in response to the

local and national political economy. Spatial planning has evolved over time.
The principal products (Master and Local Plans, layouts and site plans etc.)
have guided development and management of settlements.

Recent socio-economic and land administration changes have stressed

planning policy and practice. Planning products have lagged settlement
development processes. Challenges across the land development value chain
have arisen. Professional practice has also suffered strain while land and
planning institutions experienced resource and performance drawbacks. The
challenges faced in Zimbabwe‟s old and new human settlements reflect
constrained spatial planning that has not been transformed from a
fragmented national and local spatial development model established before
1980. In light of the Constitution, national and local political economy
imperatives, relevant SDGs, other regional and international good practices
will be adopted.

The Policy guides as follows:

33. All settlements shall be planned in terms of the Regional, Town and
Country Planning Act (Ch 29:12) (the Act) and other laws applicable such
as the Environmental Management Act. The Act provides for the
preparation, approval and implementation of i) a National Physical, ii)
Regional, iii) Master and Local, and iv) Layout Plans. These Plans will
integrate Infrastructure, Traffic, Macro-Economic, disaster risk and other
aspects necessary for sustainable settlements that apply universally
acceptable standards.

Local authorities (Councils) will closely collaborate with national

government Ministries responsible for policy, standards and capacity
Towards well-planned and well-governed sustainable human settlements 27
 development issues for the specific issues and levels of complexity e.g.
National and Regional Physical Plans will be coordinated by the Ministries
responsible for spatial planning and local government, the Ministries
responsible for housing and social amenities will oversee relevant housing
delivery and maintenance of standards while the Ministries responsible for
land oversees land use changes from agriculture to urban etc.

34. All Planners shall be regulated and registered so that all settlements are
planned by Registered Spatial Planners. Every settlement will be spatially
planned (or re-planned), developed (or renewed) and managed in
accordance with the Act and other applicable laws based on approved and
up to date Spatial Plans prepared by Registered Spatial Planners. The
processes will be informed by credible research evidence (geospatial,
geological, climate-related etc.) and indigenous knowledge.

35. Mining companies of all sizes, farmers and other private actors
operating outside areas covered by operative plans will be expected to
prepare and submit Settlement Plans and Development Concepts to
the Local Authority for the area for consideration and approval prior to
establishing settlements associated with their activities. In processing and
approving the Settlement Plans and Development Concepts all Local
Authorities shall do so in consultation with relevant national government
Ministries and agencies to ensure compliance with other national policies,
development objectives and standards.

The Plans and Development Concepts shall have sustainability strategies to

guide how the settlements connect with other settlements in the area, how
they will be managed on expiry of the core businesses/operations and
mechanisms for addressing social protection issues e.g. retiree welfare and

Towards well-planned and well-governed sustainable human settlements 28

 resettlement. Plans will integrate participatory development principles,
mass transit options, densification, mixed-uses and disaster preparedness.
New settlements will be linked to existing ones for socio-economic
sustainability and to reduce rural-urban migration.

36. All local authorities are expected under the Policy to have appropriately
staffed Spatial Planning Units manned by Registered Spatial Planners and
overseen by an existing or specially established local authority Committee
that coordinates land, spatial planning and governance with sub-Council
Committees as appropriate. These structures will oversee development
planning, control and facilitation within each local planning area.

37. Clear thresholds for establishing standalone local authorities for

upcoming urban settlements shall be established and implemented to avoid
creation of unviable urban local authorities. On designation as urban every
settlement shall employ the services of a Registered Spatial Planner and an
Economist to co-lead the settlement‟s growth/development.

38. Existing or specially established Committees responsible for land and

spatial planning at settlement, Council, Provincial or Regional and National
levels will coordinate the preparation and implementation of Spatial Plans.
These structures will set up and monitor minimum standards for
different settlements (i.e. service level benchmarks) and connections
across them.

39. Relevant Government Ministries, Departments and Agencies will

structure and implement instruments necessary for the development and
sustenance of human settlements that adhere to minimal development
standards.

Towards well-planned and well-governed sustainable human settlements 29

 Coordinated through the Ministries responsible for housing, social
amenities, land, spatial planning and local government; local authorities
will receive and administer equalization grants to ensure balanced
settlements, optimal use of available land (densification), mixed use,
reducing sprawl and protecting agricultural land), effective control of
development and informal settlements regularisation, urban renewal and
informal settlement upgrading.

2.1.3. OFF-SITE AND ON-SITE INFRASTRUCTURE

Off-site infrastructure has been the major drawback in human settlement

delivery. The existing off-site infrastructure is antiquated and outlived its
designer life span. Most raw water supply dams can no longer cope with the
demand for raw water. The situation has not been helped either by incessant
droughts and natural disasters that damage infrastructure. The population
has grown exponentially in urban areas, without commensurate expansion of
sewer and water extraction and treatment plants as well as bulk transmission
lines and storage capacity for clean and safe water. Since the withdrawal of
international development partners at the turn of the millennium, there has
not been significant investment in off-site infrastructure. Similarly, the on-site
infrastructure faces the same predicament as witnessed by incessant water
and sewer bursts thereby losing treated water and discharge of raw sewer
onto the streets and water bodies.

Prior to 2000, such programmes as Urban 1&2, co-funded by the Government

of Zimbabwe, World Bank, International Monetary Fund and USAID used to
fund both off-site and on-site infrastructure in urban local authorities.
However, this funding dried up post 2000. In a bid to leverage funding,
Government delegated the key responsibility of on-site and off-site
infrastructure provision to housing co-operatives and indigenous private land

Towards well-planned and well-governed sustainable human settlements 30

developers. The housing co-operative strategy was meant to cater for low
income earners, whilst the indigenous land developers were expected to fund
the emplacement of infrastructure. However, both entities did not have the
financial wherewithal to fund the same and relied on beneficiary contributions
which then led to the birth of „land barons‟.

In the last two decades, there have not been concerted efforts by both central
Government and local authorities towards maintenance of existing
infrastructure and/or upgrading the same to accommodate the exponential
demand occasioned by rapid urbanisation.

From the foregoing, the Policy guides as follows;

40. Off-site infrastructure provision is the responsibility of Government. It is

the role of Government to mobilise requisite resources for off-site
infrastructure.

41. It is the responsibility of local authorities to construct on-site

infrastructure. The National Housing Fund will be utilised to avail loans to
local authorities for emplacement of on-site infrastructure.

42. A moratorium on unserviced and unplanned Stateland and local

authority land allocations for human settlements development will be
instituted.

43. It is reiterated that all local authorities Estates Accounts are managed in
terms of the subsisting Rural District and Urban Councils Acts.

Towards well-planned and well-governed sustainable human settlements 31

44. It is prudent to set up and maintain sustainable financial models for
viable services, infrastructure and institutions anchored on the national
settlement system. Macro-level funding instruments (e.g. Municipal Bonds)
are needed for Zimbabwean settlements to address large-scale off-site
infrastructure deficits. National policy and legislative clarity, local authority
and settlement-level fiscal discipline, administrative prudence, practical
service delivery and user input (user-pay principle) are critical for
sustainable off and on-site infrastructure development. Users cannot
wholly fund large-scale off-site or shared infrastructure upfront without
relevant guarantees in terms of macro-level instruments.

45. It will be mandatory that all layout plans for all new human settlements
programs, developments and projects will provide for shared necessary
infrastructure to support provision of ICT services, for instance,
construction of ducts.

46. All new human settlement developments must provide for public safety
facilities such as fire hydrants while efforts to install same in existing
suburbs should be scaled-up.

2.1.4. DENSIFICATION

Zimbabwe is an agro-based economy. Unfortunately, most of the housing

developments have been chewing up the prime productive land yet the
country is spending millions of dollars on importation of agricultural goods and
services. There has not been any balance between agriculture and housing
development. The country has lost in excess of 100,000 hectares of
agricultural land to housing development. As a result, people will have houses
but with no food on the table. High rise buildings have always been
encountered with mixed reactions. Some view flats as a layby en-route to

Towards well-planned and well-governed sustainable human settlements 32

individualized stand because they expect to have a backyard garden and
purported “privacy”.
The Policy guides as follows;

47. Land is a finite resource. All productive agricultural land may be

preserved as such. Change of use may only be permitted on designated
land while safeguarding all prime agricultural land.

48. In order to curb settlement sprawl induced by ownership (kuva

nepangu/ukuba lokwami) it is now instructive that at least 40% of land for
human settlements development must be reserved for construction of flats.
Mixed use vertical space utilization becomes inevitable. This would also
embrace utilizing land occupied by derelict buildings or that which was
hitherto regarded undevelopable. For instance, gullies created by illegal
sand mining and illegal brick molding can be reclaimed and utilized for the
construction of walk-up flats.

49. In order to deal with mindset shift, the flats will be put on lease.

50. In some low density areas, houses are sitting on vast tracts of land
which is being underutilized and is dead capital. Where there is a
possibility to reticulate sewer, the owners of such large tracts of land will
be encouraged and permitted to subdivide to build cluster houses or
garden flats to create gated communities such that it maintains the
aesthetic and ambience of the area.

51. Densification will also expand to include Micro, Small to Medium

Enterprise (MSME) workspaces. Mixed use high rise MSME workspaces will
be adopted to accommodate more entrepreneurs in same space. This also

Towards well-planned and well-governed sustainable human settlements 33

 reduces transport costs for the buyers as all their requirements can be
found under one roof.

52. Adoption of minimum settlement standards will help with administration

of equalization grants while also ensuring balanced settlements and
optimal use of available land.

2.1.5. RENTAL HOUSING

At Independence in 1980, Government adopted a home ownership policy

where 90% of all rental houses in local authorities were disposed of to sitting
tenants on 25 year repayment tenure without a comprehensive replenishment
plan as an empowerment strategy. As a result rental housing was depleted.
The culture of home ownership is so deep rooted that renting is unpopular.
However, the home ownership housing delivery strategy is unsustainable as it
has led to the mushrooming of informal settlements and the scourge of „land
barons‟.

The policy guides as follows;

53. The rental housing market will be resuscitated and prioritised. The
private sector (such as pension, insurance, provident funds and banks and
building societies) will be encouraged and facilitated to venture into rental
housing market. This will be achieved through the construction of blocks of
flats for rental. The flats can be let to corporates for their employees or
individuals who can afford.

54. Security of tenure for the lessee needs to be guaranteed.

55. Individual corporates may also venture into employee-rental housing.

Towards well-planned and well-governed sustainable human settlements 34

2.1.6 Social housing
Social housing caters for the less privileged in society. It is the prerogative of
Government and local authorities to provide for same. At independence, 90%
of rental housing stock was disposed to sitting tenants on a home-ownership
basis. This depleted the existing stock thereby exposing home-seekers to the
open housing market. Affordability and accessibility were consequently
compromised and the social protection fabric was in-turn distorted.

Therefore, the policy guides as follows;

56. Those who do not qualify or may not afford rental housing will be
accommodated through social housing which will be implemented by
Government and local authorities.

57. Such houses will not be sold to sitting tenants. If one decides to
upgrade due to improved means, he/she will be free to vacate the
property.

58. Social housing and institutions for vulnerable groups such as orphans
and the aged will be incorporated whenever human settlements are
planned.

2.2. SETTLEMENT FINANCING

Human settlement development is a function of a robust and innovative

financing system. In the recent past, there has not been any meaningful
investment in both off-site and on-site infrastructure provision by both central
government and local authorities. The function was delegated to investors and
community based organisations to leverage funding thereby making the final
product unaffordable.

Towards well-planned and well-governed sustainable human settlements 35

The individuals could not afford mortgage finance from building societies due
to the high cost of money and the repayment period.

The policy, therefore, guides as follows;

59. The funding of settlements development shall be predicated on the

following;
 Appropriation from Treasury (General Development Loan Fund, Public
Sector Investment Programme and Devolution Funds);
 Utilisation of estates accounts of local authorities to fund infrastructure
development;
 Public Private Partnerships;
 Facilitation of lines of credit from regional, international development
partners, bilateral and multilateral financial arrangements and ;
 Attraction of Foreign Direct Investments;
 Implementation of human settlement projects in conjunction with Non-
Governmental Organisations and other Community Based Organisations;
 Promotion of private sector initiatives;
 Utilisation of Insurance, Pensions and Provident Funds through the
enforcement of the prescribed asset status to incorporate housing and
other incentives and enhancers applicable;
 Facilitation of employer-assisted housing schemes; and
 Targeting diaspora remittances.

2.3.REGULARISATION OF INFORMAL SETTLEMENTS

Most local authorities are seized with issues pertaining informal settlements.
These settlements lack basic services such as water, sewer, roads, electricity
and security of tenure amongst others, exposing the inhabitants to disease
outbreaks.

Towards well-planned and well-governed sustainable human settlements 36

In certain instances, approved layout plans have been violated to the extent
that beneficiaries have been building on undesignated land such as wetlands,
institutional stands, recreational stands and open spaces. Beneficiaries have
been duped of their hard earned income. Given this scenario, regularisation as
a strategy will unlock value in the properties, restore human dignity as well as
increase the national housing stock.

The Policy guides as follows;

60. Government commits to regularisation of informal settlements and

sanitization of stressed housing development projects countrywide. This
will entail leveraging resources for emplacement of both off-site and on-
site infrastructure and services. Security of tenure will be processed to
individual inhabitants during the regularisation process.

61. A regularisation protocol or legal framework will be developed to

standardize the process. This will also act as proof of Government‟s
commitment to undertake the same.

62. The policy of incremental and parallel development is revoked in order

to stop illegal parceling out of land. Any new housing construction must
produce approved plans from respective councils. Development control
regulations must be enforced indiscriminately. Authorities will regularly
monitor and inspect all land banks for potential new invasions.

63. Displacements without negotiated alternatives will be a last resort and

in all instances conducted in adherence with the Constitution and relevant
laws.

Towards well-planned and well-governed sustainable human settlements 37

 However, those settled in undesignated areas such as wetlands,
institutional stands such as schools, health, recreational facilities and roads
servitudes will be relocated to suitable land. Bold decisions will be made to
restore these areas to their original form. Land will be identified for
construction of flats to decant those settled on undesignated land and
address the challenge of double allocation or multiple-ownership.

64. Where necessary, compensation will only be made for one stand per
family in the event that one family has more than one stand in one locality.

2.4. DISPLACEMENTS AND RELOCATIONS

The planning and implementation of national development projects in the

country, in most cases, has left communities displaced and deprived of
livelihoods. The resultant relocation process creates conflict between affected
communities and authorities (local authority/state). Whilst on the other hand,
there is the phenomenon of displacements occasioned by occurrence of
natural disasters which equally requires relocation space for the affected.

The policy guides that;

65. Clear and defensible tenure rights will be defined for all land categories
nationally with mechanisms for guaranteeing security of tenure set up.
Across all levels of government, roles will be defined on land acquisition,
allocation, administration and efficient utilization based on the principle of
subsidiarity and whole-of-government consistency. National government
will develop a „Compensation and Relocation Framework‟ and build
capacity in its application.

Towards well-planned and well-governed sustainable human settlements 38

66. Where an alternative land use (a dam, road, mine, plantation, different
type of settlement etc.) warranting displacement is contemplated
proponents of the alternative land use, in close and non-coercive
collaboration with the community of place and their local authority will fully
implement the national compensation framework. Local authorities will
apply the „Compensation and Relocation Framework‟ for different
land categories adapting it to local conditions as appropriate. This will
ensure upholding of every settlement‟s social and economic value
principally arising from the people settled in it.

67. The victims of natural disasters will be relocated to planned settlements

that are guided by disaster risk reduction frameworks. The planning
process should include the affected communities, the traditional and
religious leadership in order to cater for cultural norms and values of the
respective communities under the rubric of the local authority.

2.5. INSTITUTIONAL HOUSING

Institutional houses are meant to accommodate employees of a particular

institution during the currency of their employment. These are not for sale to
the sitting tenant. The administration of the properties will be the sole
responsibility of the institution mandated with that function, save for instances
were a separate arrangement has been agreed upon. Some institutional
houses might be located in cantonment areas or outside, but a rental fee
must be charged to cater for maintenance costs and other ancillary
requirements.
The policy guides that;

Towards well-planned and well-governed sustainable human settlements 39

68. Housing units developed for purposes of institutional accommodation by
the state shall be retained as national stock and are not for disposal to
sitting tenants. This will allow national government to retain an adequate
stock of well-maintained housing to accommodate public sector officials.
Long occupation should not be misconstrued as an entitlement to claim
ownership upon retirement. Government housing is not part of the
employee‟s retirement emoluments.

69. Private institutions are also encouraged to create their own institutional
housing stock within a local authority jurisdiction to cater for their
employees and must be maintained as such.

2.6. RURAL SETTLEMENTS

There are different categories of rural settlements. They range from

communal areas, resettlement areas, rural service centres, district service
centres to growth points. From rural service center, there is a resemblance of
an urban set-up up to the growth point level. In the communal and
resettlement areas, the challenge is not about homelessness, but the quality
of housing and social amenities facilities. Some of the building materials are
prone to the inclement natural disasters.

There are some peri-urban areas that have been illegally subdivided to create
housing, but they depend heavily on urban local authorities for services and
economic opportunities, thereby overloading the latter yet they do not pay
rates for the services provided. Some RDCs have employed the strategy of
creating housing at the periphery of the urban council boundaries to curb
further expansion of urban councils.

Towards well-planned and well-governed sustainable human settlements 40

However, more often than not, the RDCs have no capacity to provide off-site
and on-site infrastructure to these peri-urban settlements. In some communal
areas, traditional leadership structures have violated the dictates of the
Traditional Leaders Act and sold communal land without the involvement of
the village assembly, ward assembly and the local authority (the existing
governance systems).

The Policy guides that;

70. Rural local authorities will be expected to produce diverse model

homesteads which will be accessed by citizens. The models must cater for
the cultural and religious considerations, while at the same time enhance
climate proofing and allow for adoption of smart energy.

71. The concept of planned rural settlements will be piloted in resettlement

areas in order to provide basic services infrastructure. This will then be
cascaded to other communal areas. Capacity building programmes and
conscientisation programmes will aid to the cause.

72. The rural centers will have economies of their own as a function of
devolution. Depending on the raw materials found in the respective rural
areas, establishment of processing plants will be encouraged in order to
add value to the local produce and create local employment. This will be
augmented by basic services infrastructure such as water and sewer
reticulation, electricity and roads. The service industry such as wholesale
and retail will be urged to decentralize to these growth points or district
service centres. Government services will also be decentralized to these
centres to cater for the local community.

Towards well-planned and well-governed sustainable human settlements 41

73. Modernised micro, small to medium enterprise work spaces will be
facilitated at these various centres to cater for those trained at local
Vocational Training Centres and other institutions.

74. Densification will be implemented at growth points and district service

centres. This will be matched with expansion of the off-site and on-site
infrastructure in order to match the quality of services accessed in
conventional urban centers.

75. Use of wooden temporary houses in mining and farming compounds

will be banned for environmental considerations.

2.7. S OCIAL AMENITIES

Social amenities refer to infrastructure of public good. These include water,

sanitation and hygiene facilities, health and education facilities, recreational
facilities, MSMEs workspaces and road network among others. These
amenities are diverse by nature as same are implemented by various and
varied socio-economic actors within defined local authority spaces, both urban
and rural. Generally, there are better facilities in urban areas than in rural
areas and there is need to bridge the gap between the two tiers.

The Policy guides as follows;

76. Land designated for small urban centers and institutional land uses in
rural areas will be title-surveyed to ensure tenure security, enable
investment and guarantee objective land valuation.

Towards well-planned and well-governed sustainable human settlements 42

77. Densification of MSMEs work spaces to decongest the existing ones in
order to accommodate more occupants.

78. Strengthen the multi-stakeholders approach to social amenities delivery.

79. Adopt routine maintenance of existing social amenities infrastructure.

80. Local authorities will be expected to prioritise provision and

maintenance of libraries, swimming pools, community halls and innovative
meeting places for use by social groups such as artists and women‟s
clubs;

81. Local authorities will be expected to provide designated youths interact

centers with requisite ICT, water, sanitation and hygiene facilities;

82. Provision of youths training centers for requisite skills to further the
local economic drivers;

83. Alternative recreational facilities will be explored for provision by both

the public and private sector.

84. Change of reservation for all land earmarked for social amenities will be
prohibited.

2.8. LEGAL AND REGULATORY FRAMEWORK

In the human settlements development arena, the war-cry has been that the
subsisting housing standards are too high, restrictive and rigid thereby stifling
speedy through-put delivery.

Towards well-planned and well-governed sustainable human settlements 43

85. There is need to draft a new piece of legislation to govern human
settlements development and management and review of other relevant
Acts.

86. The Ministry responsible for human settlements will develop standard
Model Building By-Laws to be adopted and adapted by respective local
authorities. These statutes will be continually reviewed and updated to
keep pace with modernisation.

2.9. URBAN REGENERATION AND RENEWAL

On one hand, there are some sections within suburbs that are no longer fit for
human habitation. These include settlements such as Sakubva in Mutare,
Mbare in Harare, Makokoba in Bulawayo, Mahombekombe in Kariba,
Chinotimba in Victoria Falls and Mucheke in Masvingo to mention but a few.
These suburbs have the comparative advantage of being in the proximity of
existing basic services infrastructure and all they require is regeneration.
However, they are overcrowded and the existing infrastructure is in distress.

On the other hand, in most Central Business Districts, there are too many
single or double-storey buildings which have the potential for vertical
expansion. These require urban renewal in order to maximize on space
utilisation.

The Policy guides as follows;

87. Government in conjunction with local authorities will introduce the

urban renewal programmes through acquisition of derelict buildings, land
or space above existing single or double-storey buildings (shops and

Towards well-planned and well-governed sustainable human settlements 44

 offices buildings- whether privately or publicly owned) without prejudicing
the incumbent. These will be replaced with mixed-use high rise buildings.

88. Government in conjunction with local authorities will resuscitate the

urban regeneration programmes where the old dilapidated housing
structures will be replaced with modern and sustainable high rise units.

89. Open spaces will be utilized to build high-rise buildings to decant the
dilapidated structures. This will allow demolition of the existing structures
replenishing with modernised self-contained structures on an incremental
basis until completion.

90. 5% of the existing old structures in respective settlements will be

preserved as such for historical posterity and heritage. However, these
should be properly maintained.

91. Incentives such as national project status and prescribed assets status
will be facilitated in consultation with Treasury for those investors
partaking in urban regeneration and renewal programmes.

92. Employment of local people will be prioritized

93. The off-site and on-site infrastructure need overhaul in order to match
with the increased demand;

94. Modern social amenities will be provided in these regenerated

settlements

Towards well-planned and well-governed sustainable human settlements 45

2.10. SETTLEMENT GOVERNANCE

Planning, developing and governing settlements are important state functions

as a function of the principles of devolution. Performance of these functions
guarantees delivery on citizens‟ rights in urban and rural settlements. In
performing these functions, the state and all its institutions, communities and
all their organizations shall abide by the Constitution of Zimbabwe. Effective
performance by settlement institutions guarantees that no communities are
denied their rights or left behind. Settlement governance systems will
facilitate sustainable growth of each settlement and progression along the
national settlement hierarchy as well as optimal performance for collective
sustainability of the society and economy.

The Policy guides that;

95. In Zimbabwe‟s devolved governance system practical delivery on the

policy will be the responsibility of local authorities working in collaboration
with their residents (individual, household, community and corporate)
alongside relevant national government Ministries and agencies.

2.11. I NSTITUTIONAL ARRANGEMENTS FOR THE POLICY

There has been a gap in terms of coordinated performance of functions

relating to human settlements in the country. At the same time dialogue
within and between settlements has been poor. A number of inter and intra-
institutional factors explain the lack of co-analysis of issues, co-creation and
co-implementation of relevant settlement solutions. These derail use of
appropriate knowledge and technological innovations in decision-making.

Towards well-planned and well-governed sustainable human settlements 46

Gaps exist within the Ministry responsible for human settlements, individual
local authorities, across central government Ministries and between the state
on one hand and the private sector as well as social movements active in
human settlements, on the other. The quality of settlement-related decisions
across the planning, development and management cycles has been low.

Some aspects of settlement planning and management (e.g. informal

settlements upgrading and regularisation, service rehabilitation and urban
renewal) involve slow processes that require fairer and clearer intra-
governmental fiscal frameworks, institutional reforms and empowered local
governments. Specially-established local and national agencies are needed.

The Policy guides as follows;

96. For scaled delivery national government will establish standalone

National Housing and Social Amenities delivery capacity or institution under
the purview of the Ministry responsible for housing and social amenities.

97. Critical portfolios relevant to the planning, development and

management of sustainable human settlements should include land, spatial
planning, housing, social amenities, economic planning and local
governance. The Ministry responsible for human settlements will be the
sector lead with the responsibility to implement the policy and relevant
laws. Where the portfolios of housing, social amenities, spatial planning
and local government are handled by separate Ministries, the respective
Ministries will collaborate in terms of sector leadership to deal with
overlaps.

98. Coordinating with national and international institutions, the Ministry

will ensure policy and legislative consistency, effective vertical and
horizontal relations across different actors. The Ministry will set and
disseminate relevant standards, support local and international dialogue
Towards well-planned and well-governed sustainable human settlements 47
 mechanisms that connect settlement institutions and build necessary
capacity at all levels.

99. In the country‟s devolved governance system practical delivery on the

policy will be the responsibility of local authorities working in collaboration
with their residents (individual, household, community and corporate)
alongside relevant national government Ministries and agencies.

Local authority roles in coordinating the development of settlements will be

guided by the Act and allied laws (see Box 2).

BOX 2: OTHER LAWS IMPACTING/GUIDING SETTLEMENTS IN ZIMBABWE

1. Civil Protection Act Chapter 10:06 13. Public Health Act (Chapter
2. Communal Lands Act (Chapter 15:09)
20:04) 14. Rural District Councils Act
3. Constitution of Zimbabwe (2013) (Chapter 29:13)
4. Disabled Persons Act (Chapter 15. Traditional Leaders Act
17:01) (Chapter 29:17).
5. Environmental Management Act 16. Transport Act
(Chapter 20:27). 17. Urban Councils Act (Chapter
6. Forestry Act (Chapter 19:03) 29:15).
7. Housing and Building Act (Chapter 18. Water Act (Chapter 20:24) 1.
29:07) 19. Zimbabwe National Water
8. Housing Standards Control Act Authority Act (Chapter 20:25)
(Chapter 29:08)
9. Mines and Minerals Act (Chapter
21:05
10. Older Persons Act (Chapter
17:11)

Towards well-planned and well-governed sustainable human settlements 48

 11. Parks and Wildlife Act (Chapter
20:14)
12. Provincial Councils and
Administration Act (Chapter 29:11).

2.12. SOCIAL INCLUSION IN SETTLEMENTS

The United Nations (UN) 2030 Agenda for Sustainable Development provides
that every person should reap the benefits of prosperity and enjoy minimum
standards of wellbeing. One of the most enduring manifestations of social
exclusion has shown itself in the proliferation of informal settlements. People
living in these settlements experience the most deplorable living and
environmental conditions and are usually excluded from participating in the
economic, social, political and cultural spheres of the polity.

The policy guides that;

100. The performance of settlement-related functions, provision of services

(including those relating to economic activities) and the financing of
settlement activities will adhere to the Constitution regarding equality of
men and women, the rights of older persons, youths, children and persons
living with disabilities.

101. Settlement institutions will liaise with national institutions leading on

relevant social protection policies and standards so that their actions are

Towards well-planned and well-governed sustainable human settlements 49

 sensitive to gender, youth, social, disability and child protection needs.
Universal design principles and good practices shall be applied.

102. Local authorities will develop and apply social inclusion policies that are
responsive, preventative and transformative covering key decision-making
areas. Application of the policies will be evidenced in budgets, service
delivery approaches and infrastructure design.

103. Policies to be set up and applied will inter alia, relate to i) safety and
personal security in public spaces (squares, parks, streets and
neighborhoods), ii) access to quality public services including information
(for one to live an active life), transportation, education etc., iii) legislation
and regulations, iv) design of spaces including buildings and facilities e.g.
for sport and recreation, ramps for building access, v) use of technology,
and vi) partnerships across the settlement.

104. Under the Policy, land and housing allocations will be equitable,
transparent and socially inclusive. Charges for relevant services will be
consistent throughout a local authority area for similar categories of land
or housing. Pro-poor instruments shall be applied as appropriate.

105. Land will be set aside for construction of social institutions such as
orphanages and old people‟s homes.

2.13. ALLOCATION OF HOUSING GOODS AND SERVICES

Shelter is a basic human right, and as such the state and its agencies are
mandated to ensure that every citizen has access to this common good.

The policy guides as follows;

106. Government will develop the allocation criteria that will be adopted by
local authorities;

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107. Allocations will be guided as follows;

a. 20% of all housing projects will be allocated to veterans of the

liberation struggle;

b. 10% will be reserved for women;

c. 10% will be reserved for persons with disabilities;

d. 10% will be reserved for youths;

e. 10% will be reserved for public servants; and

f. 40% will be reserved for the general public.

However, allocations are based on affordability.

2.14 ENVIRONMENT, CLIMATE CHANGE AND NEW BUILDING TECHNOLOGY

Inadequate development control in urban and rural local authority areas,

weak integration of institutions and absence of robust regulatory instruments
(e.g. by-laws) have contributed to climate change and human actions leading
to environmentally disruptive events. Poorly planned, developed and governed
settlements have become vulnerable to natural disasters like floods.
Settlements are also lacking in early warning systems, disaster response
capabilities and established recovery-development pathways. Given this
reality, the Policy guides as follows:

108. The planning, development and management of settlements will be

consistent with national and international7 disaster risk reduction
frameworks, environmental and climate change policies, laws and
standards.

7
The Sendai Framework for Disaster Risk Reduction 2015 to 2030

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109. Construction of housing and social amenities on wetlands is prohibited.
Where possible, reclamation of same will be instituted with alternatives.

110. Up to date scientific and indigenous knowledge on environment and

climate change issues will guide settlement planning, development and
management. This will ensure that settlements are sited optimally, built
safely, do not adversely affect the natural environment and host societal
activities that are resilient.

111. In their planning of infrastructure systems, supporting of economic

activities and delivery of services, settlement institutions will be guided by
relevant constitutional provisions and international protocols relating to the
environment and climate change.

112. Singularly and in partnership with communities, the state and all its
institutions, research institutions, local and international private sector and
civil society settlement institutions will promote sustainable inter and intra-
settlement linkages, safeguard heritage, improve culture, build resilience,
promote green energy buildings and enhance sustainable mobility.

113. Investment in climate proofing building technology will help to build

resilience and sustainability without overlooking affordability. Thus,
research and development becomes imperative in building technologies
and methods.

Local authorities will work closely with relevant state institutions that lead on
environmental and climate change policies, laws and standards. They will be
responsible for building critical awareness amongst their residents (natural
and corporate) to ensure effective environmental stewardship.

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2.14. ECONOMIC DEVELOPMENT AND R EGULATION OF SETTLEMENTS

All settlements in the country are established and sustained by an economic

activity. Even settlements initiated to deliver administrative services eventually
trigger economic streams that need facilitation. Economic drivers may weaken
over time affecting settlement sustainability. Mining, commercial farming,
manufacturing, tourism and heavy industrial activities have gone through
localized and national economic „recessions‟ straining the growth and
sustenance of settlements these economic activities drove. Further, recent
urban settlement growth in the country has generally been devoid of
sustainable industrial development. Green options (energy, jobs etc.) needs to
be optimized.

Planning and implementing economic development initiatives at local levels

have not been sufficiently emphasized or effectively coordinated. Where
anchor economic activities collapsed, the settlements they sustained have not
received support to adapt or identify viable alternatives. Economic drivers like
presence of minerals have not always guided local infrastructure
development, asset valuation and the administrative activities of managers in
local authorities.

In this context, the Policy guides as follows:

114. Every settlement shall have an Economic Development Plan and

Program overseen by existing or specially established local authority staff.
The development plans and programs bring together urban, industrial and
rural development aspects. Updated plans with clear competitive sectors
shall govern settlement design or redesign and overall governance. The
Economic Plan will influence local authority budgets, spatial and
infrastructure plans that frame a settlement‟s claim to national resources.

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115. Local authority policies will be expected to emphasize local economic
development (LED) facilitation including options for green jobs and
integrated transport services.

116. Incentives extended to Special Economic Zone enterprises will not apply
to Council-provided basic services, property, lease and rental charges.

117. Local authorities, with national government support, will address design
and zoning inefficiencies of settlements in their jurisdictions. This will
address land and labor misallocations that limit productivity, land market
efficiency and coordinated infrastructure investments.

118. National companies (state and non-state) with operations in local

authority areas will be expected to develop and share plans appropriately
reflecting the value to be delivered in terms of their contributions to decent
jobs and common services including environmental stewardship, education,
renewable energy, roads and health within an overall framework of „good
citizenship‟ critical for sustainable settlements.

119. Economic rules and incentives governing border settlements will take
account of the relevant regulations of neighboring countries to ensure local
competitiveness and livability.

3.0. POLICY ACTION PLAN AND ITS RESOURCING

A number of national policies have not been sufficiently communicated to

allow for appropriate understanding and broad-based implementation of
principles of sustainable human settlements in the country.

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As such, resident and organizational actions have often not been mobilized let
alone coordinated. Recognizing these previous failings, the Ministry
responsible for human settlements shall:

120. Prepare and roll-out a national program for i) popularizing the policy, ii)
setting up relevant institutions, and iii) supporting policy implementation at
all levels.

121. Ensure that standards and guidelines for national and local settlement
programs by state and non-state organizations advance the principles and
values of the ZNHSP.

122. Build appropriate research and documentation capacity on human

settlement issues including by engaging and working closely with
knowledge institutions, public, private and civil society organizations active
in the sector.
123. Address challenges in the local and national fiscal framework for human
settlement development to unlock investment across the sub-sectors of
land and housing markets, building materials, land servicing or
development, operation, maintenance and expansion or renewal.

124. Finance the Policy Action Plan and Program through the Ministry‟s
budget with local and international development support.

4.0. CONCLUSION/SUMMARY POLICY MESSAGE

The country‟s settlements face unique challenges and opportunities with

varying growth trajectories.

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The functions each settlement performs (and has performed) are enduring in
how they shape growth and development yet not enough has been invested
in terms of local-national spatial and economic planning to articulate and
facilitate these comparative advantages. The intensity of planning,
development and management varies. Actors steering settlement
development have been chopped and changed while their performance was
fluctuating.

With more urban centers (at least 500), the growth of complex rural
settlements and climate change-induced disasters a new framework for
managing settlement development is needed. The Zimbabwe National Human
Settlements Policy (ZNHSP) provides such a framework. It amplifies the
central role of the Ministry responsible for human settlements as sector leader
on housing delivery as well as local authorities and their residents (as
individuals, households, communities, corporates and non-state local
organizations) in the governance of all categories of settlements. This includes
long neglected settlements around schools, places of worship and hospitals,
which have had non-state leadership often creating uneasy local relations
affecting expansion and productive integration into local political economies.

Interpretation of this Policy rests with the Secretary for National

Housing and Social Amenities.

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