HON. C. MOYO:
INTRODUCTION
This report presents a consolidated analysis of the Ministry of Environment, Climate and Wildlife’s budget performance for the entire 2024 fiscal year, spanning from the first to the fourth quarter. This analysis builds upon the assessment conducted by the Committee based on the Ministry’s Fourth Quarter Budget Performance Report and incorporates the Ministry’s subsequent responses and clarifications. The Committee’s analysis identified several key areas requiring further scrutiny, including website operational status, persistent staff vacancies, the absence of gender-disaggregated data, low budget utilisation rates, procurement delays and the implementation of Multilateral Environmental Agreements (MEAs) and climate change projects. This consolidated report aims to provide a comprehensive understanding of the Ministry’s financial and operational performance throughout 2024, highlighting key findings, observations and actionable recommendations for the National Assembly’s consideration and adoption.
OBJECTIVES
The primary objectives of this consolidated analysis are to:
- Assess the Ministry of Environment, Climate and Wildlife’s financial performance against its approved budget for the 2024 fiscal year.
- Evaluate the Ministry’s operational performance in relation to its stated objectives and targets, considering both achievements and challenges.
- Identify key trends, discrepancies and areas of concern in the Ministry’s budget execution and programme implementation.
- Provide evidence-based observations and recommendations to the National Assembly to enhance the Ministry’s efficiency, effectiveness and accountability in fulfilling its mandate.
METHODOLOGY
To conduct this analysis report, the Environment, Climate and Wildlife Committee received and reviewed the Ministry of Environment, Climate and Wildlife’s budget performance reports for the first, second, third, and fourth quarters of the 2024 fiscal year. Subsequently, the Committee undertook a detailed analysis of the Fourth Quarter Report that served as the basis for the Committee’s deliberations, during which key gaps and areas requiring further clarification were identified. Following this, the Committee formally requested the Ministry to provide a comprehensive written submission addressing the specific issues raised. This report integrates the information gleaned from the Ministry’s quarterly budget reports and the Ministry’s subsequent written responses, along with the provided “Summary of Projects Implemented under the Climate Change Management Department.” The methodology employed involved a detailed review and comparison of budgetary allocations and expenditures, an examination of the Ministry’s justifications for variances, an assessment of the responses to the Committee’s specific queries and a qualitative analysis of key programmes and projects. Findings and observations were thematically consolidated across the Ministry’s operations, leading to the formulation of evidence-based recommendations.
FINDINGS
The analysis of the Ministry’s budget performance and responses reveals the following key findings:
Persistent Staff Vacancies
Throughout the entirety of the 2024 fiscal year, the Ministry of Environment, Climate and Wildlife grappled with a significant number of unfilled positions within its organisational structure. The vacancy rate consistently remained high at 30.4%, translating to 114 out of the total approved 375 posts remaining vacant. The Ministry attributed this persistent challenge to several interconnected factors. Firstly, the lack of Treasury Concurrence to fill these vacant positions hindered their ability to recruit new staff. Without this crucial approval, the Ministry was unable to initiate the necessary recruitment processes.
Secondly, the non-payment of critical skills retention allowances further exacerbated the staffing situation. These allowances are typically designed to attract and retain professionals with specialised and in-demand skills, particularly in technical or scientific fields crucial to the Ministry’s mandate. The absence of these incentives has made it difficult to attract qualified candidates and contributed to the departure of existing skilled staff, further widening the vacancy gap.
Finally, the absence of an approved Ministry structure aligned with job evaluation created an additional layer of complexity. A well-defined and officially approved organisational structure, informed by job evaluations that determine the relative worth and responsibilities of different roles, is essential for effective recruitment and human resource management. The lack of such a structure could lead to uncertainties in job descriptions, grading and ultimately, the recruitment of suitable candidates. The Ministry reported ongoing engagements with the Public Service Commission to address these structural and approval-related impediments to filling the vacant positions.
Gender-Disaggregated Data
In its reporting on human resources, the Ministry demonstrated a degree of commitment to gender equality by providing a breakdown of its staff establishment by gender. This data revealed that out of the approved total of 375 positions, 261 were filled, comprising 179 male and 82 female employees. This initial provision of gender-disaggregated data for the overall staff establishment is a positive step towards enhancing transparency and understanding the gender balance within the Ministry’s workforce. Furthermore, the Ministry extended this effort to some of its operational activities, providing gender-specific data for participants in project consultations and for incidents related to human-wildlife conflict. This suggests an awareness of the importance of considering gender perspectives in both policy formulation and the impact on environmental issues. However, the Ministry also acknowledged challenges in consistently collecting gender-disaggregated data across all its sectors, specifically noting difficulties in the fisheries and national tree planting initiatives. This indicates that while progress has been made in some areas, a more systematic and comprehensive approach is needed to ensure the routine collection and reporting of gender-disaggregated data across all of the Ministry’s programmes and activities. Consistent and comprehensive gender data is crucial for effective gender mainstreaming, allowing for a better understanding of how environmental policies and programmes impact different genders and enabling the development of more equitable and inclusive interventions.
Low Budget Utilisation
A significant concern highlighted in the analysis was the considerably low overall budget utilisation rate for the 2024 fiscal year. Out of an approved budget of ZWG$266.37 million, the Ministry only expended ZWG$96.7 million, resulting in a utilisation rate of just 36%. The Ministry provided a primary explanation for this substantial underutilisation, citing low disbursements not backed by cash funding. This implies that while the Ministry may have received budgetary allocations on paper, the actual cash resources required to implement the planned activities were not adequately released. This discrepancy between allocated funds and available cash led to the reversal of unfunded documents amounting to ZWG$23.3 million. This reversal occurred when the Ministry initiated expenditure processes based on budget allocations, but these could not be finalised due to the lack of corresponding cash in their accounts. This situation severely hampered the Ministry’s ability to execute its planned programmes and projects.
Additionally, the Ministry acknowledged that procurement delays significantly contributed to the underutilisation of funds specifically allocated for capital assets. Capital assets typically include significant investments in infrastructure, equipment, or other long-term resources. Delays in the procurement processes for these items meant that the allocated funds could not be spent within the fiscal year. These delays stemmed from various factors, including lengthy tender processes, bureaucratic hurdles, or challenges in the availability of goods and services. The combination of insufficient cash-backed disbursements and protracted procurement processes resulted in a substantial portion of the Ministry’s allocated budget remaining unspent, potentially hindering the achievement of its operational and strategic objectives for the year.
Procurement Delays
The analysis specifically identified procurement delays as a major impediment to effective budget execution, particularly concerning the acquisition of capital assets. The Ministry acknowledged the severity of this issue and reported taking remedial actions. To enhance the efficiency and effectiveness of its procurement function, the Ministry stated that all staff within its Procurement Management Unit (PMU) underwent training. This training aimed to equip procurement officers with the necessary knowledge and skills regarding procurement regulations, best practices and efficient process management.
Furthermore, the Ministry reported a proactive approach to the subsequent fiscal year, with the 2025 Annual Procurement Plan having been approved and procurement processes already underway. This early commencement of procurement activities for the following year suggests an intent to mitigate the delays experienced in 2024. To further bolster its procurement capacity, the Ministry also reported the recruitment of an additional procurement officer. Increasing the human resources within the PMU could help to distribute the workload, expedite processes and ensure greater oversight and compliance.
While these reported measures indicate a commitment to addressing the issue of procurement delays, the actual impact on future budget utilisation and project implementation will need to be monitored in subsequent performance reports. Effective and timely procurement is crucial, especially for capital projects that often have significant lead times and are essential for the long-term development and operational capacity of the Ministry.
Impact of Capacity Building Programmes
During the 2024 fiscal year, the Ministry of Environment, Climate and Wildlife placed a significant emphasis on enhancing the skills and knowledge of its workforce through various capacity-building initiatives. Notably, the Ministry significantly exceeded its internal target for such programmes, conducting an impressive total of twenty-three training sessions compared to the planned six. These trainings were financially supported through allocations from the Treasury, indicating the Government’s commitment to investing in the Ministry’s human capital.
The overarching objectives of these programmes were multifaceted, aiming to cultivate a more skilled and effective workforce capable of improved service delivery. Specifically, the training sessions were designed to enhance employee skills across various domains, ultimately leading to greater efficiency in the provision of the Ministry’s services. Furthermore, the programmes sought to foster a culture of innovation within the Ministry, encouraging employees to adopt new approaches and solutions to environmental and climate-related challenges. Accountability was another key focus, with training aimed at strengthening understanding and adherence to regulations and ethical practices. Finally, recognising the rapidly evolving technological landscape, the programmes also aimed to facilitate the adaptation of the Ministry’s staff to technological advancements relevant to their roles. While the Ministry demonstrated a strong commitment to staff development by exceeding its training targets, the analysis notes a crucial gap; the absence of a thorough assessment of the tangible benefits of these programmes on actual service delivery. Without a systematic evaluation, it remains unclear to what extent these training sessions translated into measurable improvements in the quality, efficiency and effectiveness of the Ministry’s operations and its ability to fulfill its mandate.
Implementation of Multilateral Environmental Agreements (MEAs)
The Ministry of Environment, Climate and Wildlife demonstrated a strong commitment to international environmental governance through the successful implementation of eight Multilateral Environmental Agreements (MEAs) during 2024. These included the United Nations Framework Convention on Climate Change (UNFCCC), the Montreal Protocol on Substances that Deplete the Ozone Layer, the Convention on International Trade in Endangered Species of Wild Fauna and Flora (CITES), the Basel Convention on the Control of Transboundary Movements of Hazardous Wastes and their Disposal, the Stockholm Convention on Persistent Organic Pollutants (POPs), the United Nations Convention on Biological Diversity (UNCBD), the United Nations Convention to Combat Desertification (UNCCD), and the Convention on Wetlands of International Importance (Ramsar Convention).
These agreements represent international legal frameworks designed to address a wide range of environmental challenges on a global scale. The Ministry provided detailed overviews of several key MEAs to which Zimbabwe is a party, highlighting their core objectives and the specific obligations that Zimbabwe has undertaken as a signatory. Furthermore, the Ministry articulated the expected national benefits that accrue to Zimbabwe through its active participation and compliance with these agreements. These benefits span critical environmental domains, including concerted efforts to mitigate and adapt to climate change, the phasing out of ozone-depleting substances to protect the stratospheric ozone layer, the conservation of Zimbabwe’s rich biodiversity and sustainable use of its biological resources, the sound management and control of hazardous waste to protect human health and the environment, and the combating of desertification and land degradation to ensure the long-term productivity of the land. The successful implementation of these eight MEAs underscores Zimbabwe’s commitment to addressing global environmental issues and aligning its national policies and actions with international standards and best practices.
Climate Change Projects
In its efforts to address the pressing challenges of climate change, the Ministry of Environment, Climate and Wildlife successfully implemented eleven distinct climate change projects during 2024, exceeding its initial target of eight. These projects represent concrete actions undertaken to mitigate greenhouse gas emissions and enhance the country’s resilience to the adverse impacts of a changing climate. The Ministry provided summaries of these projects, detailing their specific scope of work, the primary funding sources, which were predominantly international, highlighting the reliance on global partnerships in this area, and the anticipated and achieved measurable outcomes. These outcomes were diverse, encompassing tangible achievements such as the establishment of solar mini-grids to provide clean energy access, initiatives focused on building national capacity for enhanced transparency in climate reporting and the development of crucial national climate change strategies and plans to guide future action.
The Ministry also acknowledged the various implementation challenges encountered during the execution of these projects, providing valuable insights into the practical hurdles of translating climate policy into on-the-ground action. For instance, projects often faced funding delays, where the anticipated financial resources from international partners or national budgets were not disbursed in a timely manner, thereby impeding the progress of planned activities and potentially affecting project timelines. Procurement issues also presented significant obstacles, with delays in acquiring necessary equipment, technologies, or services hindering the smooth implementation of project components. Furthermore, coordination challenges among the diverse array of stakeholders involved, including government agencies, international organisations, local communities, and implementing partners, sometimes proved to be a complex undertaking requiring significant effort to ensure alignment and effective collaboration. In some instances, capacity limitations, whether in terms of technical expertise or institutional infrastructure, posed constraints on the pace and scale of project implementation. Additionally, logistical complexities, particularly in reaching remote or underserved communities, added another layer of difficulty to project execution.
These multifaceted challenges underscore the practical realities and intricate processes involved in realising climate policy goals through on-the-ground projects, highlighting the need for adaptive management, robust partnerships and sustained commitment to overcome these inherent hurdles. The successful implementation of these eleven climate change projects signifies the Ministry’s active engagement in addressing climate change and its commitment to achieving both mitigation and adaptation goals, often, through collaborative efforts with international partners and leveraging global financial mechanisms.
Revenue from Other Sources
The Ministry of Environment, Climate and Wildlife also reported receiving financial resources from sources beyond its primary budgetary allocation during the fourth quarter of 2024. These “other sources” comprised two main categories. Firstly, the Ministry benefited from direct project funding provided by international partners for specific environmental initiatives. This included ZWG$9 698.08 from UNICEF for the Mainstreaming Migration into Climate and Environment Policies (MECC) project, ZWG$30 000.00 likely from a climate-focused organisation for work on Short-lived Climate Pollutants, and ZWG$150 000.00 allocated towards the preparation of Zimbabwe’s Fifth National Communication under the UNFCCC. These ZiG-denominated amounts were specifically intended to support the activities and objectives outlined within the agreements for each respective project.
Secondly, the National Ozone Unit (NOU), a division within the Ministry, generated revenue through its regulatory oversight of ozone-depleting substances (ODS) and greenhouse gases (GHGs). The NOU charges a fee of USD 50, or its equivalent in ZiG, for each import, export, or transit permit issued for these controlled substances and related equipment. Over the fourth quarter, the NOU issued a total of 370 such permits. This resulted in a direct revenue of USD 18,500, with an additional amount collected in ZiG from permit applicants who paid using the local currency. This revenue stream is distinct from direct project grants, representing income generated through the Ministry’s regulatory functions in managing environmentally sensitive substances. Thus, the “Revenue from Other Sources” encompasses both targeted international project funding in ZiG and income generated in USD (and its ZiG equivalent) by the National Ozone Unit through its permitting processes.
Meteorological Station Upgrades and Expansions
The Meteorological Department undertook a significant endeavour in 2024 to modernise and extend its weather monitoring infrastructure across the nation. This initiative involved a dual approach, enhancing the technological capabilities of existing observation points and broadening the reach and detail of the network by augmenting the functionalities of selected stations. In terms of modernisation, forty-seven existing meteorological stations, exceeding the initial target of forty, underwent comprehensive upgrades. Beyond the upgrades to existing infrastructure, the Ministry also focused on expanding the capabilities of nine strategically chosen stations, slightly below the intended target of ten. These upgrades have enhanced the capacity for district-level weather forecasting, which is being disseminated through community radio stations to aid farmers and improve disaster preparedness.
Seismology Station Upgrades
Only 30 seismology stations were upgraded against a target of 40. The Ministry attributed this shortfall to challenges in procuring specialised equipment from international manufacturers who often lack local agents, hindering participation in standard tender processes. The lack of local agents for these specialised international manufacturers creates a significant hurdle for standard government procurement processes. These processes often favour local suppliers or require in-country representation for tendering, making it difficult to directly acquire the necessary, often highly technical and niche, equipment from overseas. A request for special formal tender processes for seismology equipment was made.
Website Operational Status
The Ministry of Environment, Climate and Wildlife acknowledged a current deficiency in its operational website, specifically the absence of a fully functional and operational official website. Recognising the increasing importance of online platforms for disseminating information, engaging stakeholders and enhancing transparency in the modern era, the Ministry reported that significant steps had been taken to rectify this situation. A new website had been developed, representing an investment in a more contemporary and potentially user-friendly online interface. This newly developed site is currently hosted under a test domain, indicating that it is in the final stages of development and undergoing thorough scrutiny to ensure its functionality, security and overall performance to meet the required standards before its official launch. The next crucial step in this process was the migration of this fully developed and tested website from its temporary test domain to the Ministry’s official web address, www.mecw.gov.zw. This migration to the official domain is currently pending validation. This validation process is a critical quality assurance measure, involving a comprehensive review and approval by relevant technical and administrative authorities within the government to ensure seamless transition, data integrity and alignment with national digital governance standards. Only upon successful completion of this validation will the new website become the official online portal for the Ministry, providing a vital platform for public access to information, resources and engagement opportunities related to environment, climate and wildlife matters in Zimbabwe. The current state of pending validation underscores the Ministry’s commitment to ensuring a robust and reliable online presence before fully launching its new digital platform.
Late Submission of Reports
The Ministry of Environment, Climate and Wildlife openly acknowledged the untimely submission of its preceding quarterly performance reports. In explaining this lapse in adherence to statutory requirements, the Ministry cited two primary contributing factors. Firstly, the relative inexperience of the officers entrusted with the responsibility of compiling and submitting these critical reports was noted. Newly appointed personnel, still in the process of familiarising themselves with the Ministry’s operational procedures, data collection systems, and reporting protocols, understandably faced a learning curve that contributed to the delays. Secondly, the Ministry highlighted persistent operational challenges that further compounded the issue. These challenges included inadequate staffing levels, which placed a significant burden on existing personnel and stretched their capacity to manage routine tasks alongside the additional responsibility of timely report preparation. Furthermore, the lack of essential tools and resources, such as reliable computer equipment and necessary software, hindered the efficiency of data processing and report compilation, inevitably leading to delays in the final submission. Despite these challenges, the Ministry offered a firm commitment to ensuring strict adherence to all statutory reporting requirements in the future, recognising the paramount importance of timely submissions.
For the Portfolio Committee, the early submission of these quarterly budget performance reports is of critical importance for several fundamental reasons. These reports serve as vital instruments for effective parliamentary oversight, enabling the Committee to diligently monitor the Ministry’s financial and operational performance regularly. Timely receipt of these documents allows the Committee ample time to thoroughly review the reported expenditures against the allocated budget, scrutinise the progress made in achieving planned targets and identify any potential discrepancies, variances, or areas of concern that may warrant further investigation or intervention. Early submissions facilitate a proactive approach to oversight, enabling the Committee to engage with the Ministry in a timely manner to seek clarifications, raise pertinent questions, and address any emerging issues before they escalate or negatively impact the Ministry’s ability to fulfil its mandate effectively. This proactive engagement fosters a culture of accountability and transparency, ensuring that public funds are being utilised appropriately and that environmental and climate-related programmes are being implemented efficiently and effectively.
Moreover, the insights gleaned from the timely review of these reports informed the Committee’s ability to make well-informed recommendations to the National Assembly regarding budgetary allocations, policy adjustments and legislative interventions necessary to strengthen the Ministry’s performance and ultimately contribute to sound environmental governance and the achievement of national sustainable development goals. Delayed submissions, conversely, impede the Committee’s ability to conduct thorough and timely oversight, potentially hindering its capacity to hold the Ministry accountable and to provide informed guidance to the National Assembly.
OBSERVATIONS
Based on the findings, the following key observations were made by the Committee:
5.1 While a fully functional website is still pending, the development of a test domain indicates progress towards enhancing public access to information, a crucial aspect of e-governance.
5.2 The persistently high vacancy rate poses a significant risk to the Ministry’s ability to effectively deliver its mandate. The outlined reasons require urgent attention and collaborative efforts with the Public Service Commission and Treasury.
- The provision of gender-disaggregated data for the staff establishment is a positive step towards complying with constitutional requirements and SDG 5. However, consistent and comprehensive gender data collection across all programmes and projects needs strengthening.
- The low budget utilisation rate raises serious concerns about the Ministry’s capacity to implement planned programmes and projects within the fiscal year. The reliance on cash-backed disbursements and the impact of reversals necessitate a more predictable and timely funding mechanism.
- The measures taken to address procurement delays, including staff training and the recruitment of an additional officer, are encouraging. However, the specific challenges in procuring specialised equipment, such as seismology stations, require tailored solutions.
- While exceeding training targets is commendable, the lack of a reported impact assessment on service delivery limits the ability to determine the effectiveness and value for money of these programmes.
- The Ministry demonstrates a strong commitment to international environmental governance through its active participation in and implementation of various MEAs. The detailed overviews provided enhance transparency and understanding of these commitments.
- The successful implementation of several climate change projects, with tangible outcomes in areas like clean energy access, water provision and capacity building, highlights the Ministry’s efforts in addressing climate resilience and low-carbon development. However, consistent engagement with the Ministry by implementing partners is crucial.
- The reported revenue from permit fees and specific projects indicates potential for the Ministry to supplement its budgetary allocations, although the overall contribution remains relatively small.
- The upgrades and expansions of meteorological stations are yielding positive results in improving weather forecasting at the district level and enhancing disaster preparedness through community-based dissemination.
- The unique challenges in procuring seismology equipment require a more tailored approach to ensure the effective monitoring of seismic activity.
- The apology and commitment to timely reporting were noted. Addressing the underlying operational challenges, such as staffing and resources, is crucial for consistent compliance.
RECOMMENDATIONS
In light of the findings and observations, the following recommendations were proposed by the Committee for adoption by the House: –
6.1 The Ministry should expedite the validation and migration of the new website to the official domain www.mecw.gov.zw and ensure its consistent operation, providing comprehensive information and online services to the public by 30 September 2025.
6.2 The Ministry, in collaboration with the Public Service Commission and the Treasury, should urgently address the persistent staff vacancy issue by 31 December 2025 through; seeking and justifying the need for Treasury Concurrence to fill critical vacant posts, expediting the approval and implementation of critical skills retention allowances to attract and retain qualified personnel, particularly in technical fields and engaging with the Public Service Commission to finalise the Ministry’s approved structure in line with job evaluation to facilitate targeted recruitment.
6.3 The Ministry should, by 31st December 2025, institutionalise the systematic collection and reporting of gender-disaggregated data across all its programmes and projects to ensure compliance with constitutional mandates and SDG 5, and to inform gender-responsive policy and implementation.
6.4 While acknowledging the steps taken to optimise the procurement processes, by 31st December 2025, the Ministry should continuously review and optimise its procurement processes to minimise delays, particularly for capital projects and engage with the Procurement Regulatory Authority of Zimbabwe to explore the possibility of special formal tender processes for highly specialised equipment like seismology stations to broaden bidder participation.
6.5 The Ministry should develop and implement a framework to assess the impact of its capacity-building programmes on service delivery and overall effectiveness to ensure value for money and inform future training initiatives by 31st December 2025.
6.6 The Ministry should continue its active engagement in the implementation of MEAs, ensuring adequate resources are allocated for compliance and leveraging on the potential national benefits, including access to international funding and technical support.
6.7 The Ministry should explore opportunities to enhance revenue generation from its various functions and ensure transparent reporting and utilisation of these funds to support its programmes by 31st December 2025.
6.8 The Ministry should prioritise the continued upgrading and expansion of meteorological infrastructure to further enhance national weather forecasting capabilities and disaster preparedness.
6.9 The Ministry should urgently address the shortfall in seismology station upgrades by pursuing the proposed special tender processes or exploring alternative procurement strategies to ensure comprehensive seismic monitoring across the country by 31st December 2025.
6.10 The Ministry must consistently adhere to statutory reporting deadlines for each quarterly budget report in 2025.
CONCLUSIONS
The analysis reveals a mixed picture of the Ministry of Environment, Climate and Wildlife’s budget performance in 2024. While the Ministry has demonstrated commitment to international environmental agreements and achieved notable successes in certain areas, particularly in climate change project implementation and meteorological infrastructure development, significant challenges remain in critical areas such as staffing, budget execution and procurement efficiency. Addressing these challenges through targeted interventions and enhanced inter-ministerial collaboration is crucial for the Ministry to effectively fulfill its mandate of managing, conserving and promoting the sustainable use of natural resources and contributing to Zimbabwe’s economic development. The recommendations outlined in this report provide a framework for the National Assembly to engage with the Ministry and relevant stakeholders to ensure improved performance, accountability and ultimately, the effective stewardship of Zimbabwe’s environment and wildlife resources. I thank you.
