Dwindling funds and increased responsibilities: Decentralization, unfunded mandates, and Harare's infrastructure crisis

Abstract

Zimbabwe's capital city, Harare, faces severe infrastructural challenges. The city is presented with major constraints in its ability to adequately provide services for its growing population while losing essential streams of revenue required for infrastructural maintenance and development. This occurs in the context of the decentralization from the Zimbabwean national government to its cities. Cities like Harare are tasked with mandates to govern but are not provided the adequate financial means nor support to sustain their population or aging infrastructure. In this paper, we study this issue by conducting a broad literature review on decentralization and unfunded urban mandates, before narrowing our focus to decentralization and urban governance in sub-Saharan Africa. We then interrogate Harare as a case study, drawing on two rounds of interviews in 2015 and 2022 to identify key aspects of Harare's infrastructure crisis, which we tie to its unfunded mandates. We conducted 51 semi-structured expert interviews, and 4 extensive focus groups with a total of 32 people in order to revisit key themes that were prevalent during the first round of interviews. This was complemented by a review and analysis of national and city budgets and other relevant reports to demonstrate trends on revenue generation, capital expenditure and dynamics around intergovernmental fiscal transfers (IGFTs). We offer novel insights into Harare's infrastructure crisis, while also raising several urban financing and decentralization themes that are applicable from a global perspective.