Civil Service Woes: The Curious Case of Mulenga Chanda

It was on a cold June day at the bustling offices at Zambia's Cabinet Office, a peculiar figure emerged from the doors. No one really knew who he was or what he was there for but he seemed to know what or who he wanted. After usual formalities, introductions and onboarding, it was learnt that the man who was later known as Mulenga Chanda had just been appointed to Cabinet Office as an Assistant Director-General of the Emoluments Commission. 

Big Mule (as he was fondly called by his peers due to his larger than life personality) or Chanda Beu (named after the late famous dancer in Amayenge Asoza Cultural Ensemble by his foes due to his small stature) used to be a District Education Board Secretary (DEBS) in one of the districts and used to be very vocal against the previous administration. The then ruling political party even labeled him an enemy of the party and pushed him out of the public service when he was retired in public interest. 

Now the retiring of someone in public interest is usually triggered at the pleasure and volition of the President and in the context of Zambia, it is a tool which is susceptible to abuse as politicians use it to punish certain individuals purely for political reasons. Based on this, it is open to speculation whether Mulenga deserved the boot from the civil service or not. Different political spectra have different explanations. 

Mulenga was a typical village staring who walked with a rhythmic bounce in every step and with shoulders high, his nose always in the air and his eyes sparking with self-assurance that can only be rivaled by stars. He exuded an air of confidence that commanded admiration and envy. Real to him and imaginary to those surrounding him. He was brash and full of braggadocio colloquially referred to as the 'Bemba Arrogance'. 

He wore those suits you would get for K500 at salaula joints common on every street corner. Suits that you don’t have to take for professional laundry but could just hand it over to your helper to wash it. The suits also allowed him to carry roasted groundnuts and cassava, his favourite snacks. But it seemed it also had pockets for stationery, coins, a shoe brush and a packet of cigarette with matches. 

As he made his way to the new office which was extemporaneously prepared, Mulenga couldn't resist sharing his thoughts on how he wants things to moving forward with anyone who would listen. He loved to hear the sound of his own voice, and his colleagues would soon learn due to his incessant chatter. Despite his chatter, he colleague often found themselves lost on what he would be talking about, searching for a glimpse of substance amidst the verbal desert.

"A whole desert of nothingness without any oasis of sense," his workmate, Titameni Phiri, would often whisper to others while rolling her eyes in exasperation and resignation. 

Titameni was the self-appointed spokesperson for everyone as she was the only who would object to Mulenga’s outrageous demands. This was due to two possible reasons. Firstly, she was a Chewa and a woman. Chewa women are verbal artists with a reputation of entertaining nothing and taking no prisoners. These original feminists are assertive and sometimes abrasive. 

Secondly, by virtue of her hailing from the eastern part of Zambia, she had diplomatic immunity over Mulenga. She was his tribal cousin. There is a longstanding social reciprocal relationship premised on jokes and power formally described as traditional cousinship in Zambia or Chimbuya. However, this cannot be exercised by anyone. You can't get away with condescending jokes if you are not a tribal cousin. Context and names are the key.

Due to his tendency to speak at length without saying anything of substance, Mulenga’s charm and charisma - as he thought of it - won over less people. His reason for having that new job and know it all attitude made him a divisive figure in the office.

One day, while presenting a critical project to his superiors, Mulenga launched into a lengthy monologue which was laced with threats and accusations. It was woved in a tapestry of words that left everyone bewildered. It had to take Mr. Mwaba, his supervisor, to intervene and gently guided Mulenga back on track and throwing a lifeline to a meeting which was on a precipice of a disaster.

"Mr Chanda, my fellow Alice Lenshina descendant," Mr. Mwaba said with a smile, "hide that wisdom from the many rat-eating easterners in this room. They will steal that wisdom and claim its theirs since they've always claimed that wise people are from the east. For now, let's just on the task at hand.”

Everyone busted out laughing but the message was clear to Mulenga who nodded and stuck to reading the presentation word for word to avoid veering off in a troubling direction. Again. 

At the time of writing, Mulenga isn’t a man to make even little concessions that would eviscerate his opportunity to demonstrate his authority. However, in life, a little bit of nonsense can be a welcome respite in the midst of the chaos. We must forgo validation and status for the greater and collective goal. 

Appointments like Mulenga’s are part of the reason why the public service has been in the doldrums. People like him rarely go to the office to work and contribute to the greater good. Using the same algorithms that were used against them, they are usually on the lookout for opportunities to exert their authority or 'sort out' others, and this usually stretches to frustrate those who may decide to use anything else but political lenses when conceptualizing or analyzing things. 

It can be hard to understand why someone like Mulenga who had been abused and treated so unfairly to the point of even being dismissed from the public service would perpetuate abuse. However, literature has shown that such patterns are familiar and serve as a way to regain a sense of power. Woe to the land whose king was a servant, Ecclesiastes 10 v. 16 warns. 

Secondly, toxicity, inefficiencies and corruption are usually brewed by individuals like Mulenga who get positions on patronage. Another debate can be held on whether Mulenga is qualified to hold such a senior position as Assistant Director General without any prior experience in the similar environment. Then wouldn’t Mulenga go out hunting for everyone who he thinks may have contributed to his earlier career demise? But again, what is the best way of righting the wrongs that were done to Mulenga through politics? 

Clearly, political or discretionary appointments do not lead to the selection of meritocratic qualified appointees since politics values loyalty more than expertise. The feeling of entitlement by the appointees also harms the integrity, efficiency, and effectiveness of the public services. Mulenga is both cause and effect of a flawed system of governance in Zambia, a microcosm of deep rooted problems.

A CALL TO OPTIMIZE THE CONSTITUENCY DEVELOPMENT FUND (CDF) MANAGEMENT

The Constituency Development Fund (CDF) is a transformative force that promises to uplift the lives of many people out of poverty, particularly those at the lower end of the socioeconomic spectrum. This is because it is remedying the problems of access to basic services, education and employment opportunities which all serve to perpetuate poverty.

As a legacy of the colonialism, significant development has been concentrating in cities and urban areas along the railway line stretching from Livingstone through Lusaka to the Copperbelt. Conversely, rural areas have witnessed limited participation in economic advancement. To address this disparity, successive governments have prioritized devolution as a fundamental aspect of their governance strategy. The objective is to cater to the specific needs and priorities of local communities by allocating funds for infrastructure development, social services, education, healthcare, water and sanitation, agriculture, and various other sectors. This is where CDF becomes pivotal as the aim of this fund is to promote citizen participation and engagement in decision-making processes concerning local development initiatives.

However, implementation has always presented challenges. To break free from this cycle and demonstrate their dedication to enhancing devolution, the UPND-led administration has increased allocations since their inaugural budget presentation from K1.6 million to K25.7 million in 2022 and to now K28.3 million. By the next election, constituencies will have received north of K140 million. This is a lot of money that should not only acceleration the wheels of the economy but also improve on human development and dignity by supporting community projects across all the 156 constituencies.

Around the world, CDF is being used to prevent the arbitrary exercise of power by central elites and to improve the effectiveness of social service delivery. Various countries such as Kenya, South Sudan, the Philippines, Honduras, Nepal, Pakistan, Jamaica, Solomon Islands, Tanzania, Malawi, Namibia, Zambia, Uganda, Ghana, and Malaysia have adopted and are implementing their own versions of the CDF or similar programs. Zambia has taken huge steps on this by the launch of the decentralization policy and the commissioning of US$210 million Zambia Devolution Support Programme by President Hakainde Hichilema in May 2023.

In this article, I shall refrain from delving extensively into the challenges pertaining to the alignment of the CDF Guidelines and CDF Act, as well as the delegation of additional responsibilities from Lusaka to the districts. The reason for this omission is that the government has already acknowledged these challenges and is currently devising mechanisms to facilitate the necessary realignment. I will look at why there is need to urgently and deliberately introduce private sector led CDF management and remove certain functions from the fund.

INCORPORATING THE PRIVATE SECTOR IN FUND MANAGEMENT IS IMPERATIVE.

The government should contemplate the involvement of private fund managers in overseeing the management of CDF. The fund manager can receive compensation of 5% operation cost provided for in the CDF Guidelines, which amounts to approximately K1.5 million. Most importantly, considering that numerous districts have multiple constituencies, the inclusion of Fund Management would also contribute to job creation and stimulate economic growth.

Here is a breakdown of the rationale behind my proposal.

Firstly, at the core of their operational procedures, Fund Managers prioritize value for money and a good return on investment as they need to demonstrate their relevance. Their effectiveness in managing funds proves to be an efficient and fruitful approach, surpassing traditional activity-based funding. By partnering with technically proficient and reliable fund managers, optimal utilization of public funds can be ensured, leading to successful project implementation and collaborative attainment of development goals alongside responding to beneficiaries’ needs. This aligns with the objectives of Vision 2030 and the 8th National Development Plan (8NDP).

Furthermore, it is crucial to acknowledge that achieving national developmental goals requires innovative approaches that leverage private sector capacities, while fostering economic growth and development. Sustained development in the long run demands a departure from traditional government funding models, envisioning a future where the private sector plays a pivotal role. Without such efforts, there remains a significant disparity between the needs of the local communities and the current allocation of the CDF.

Thirdly, fund managers bring their expertise to the table by identifying viable investment opportunities, effectively controlling and monitoring risks. They can make investment decisions based on the fund's objectives, investment guidelines, and the risk tolerance of the investors. In addition to managing the CDF, fund managers can handle administrative tasks such as accounting, reporting, and compliance with CDF regulations.

The inclusion of fund managers in CDF project management also provides multiple benefits to the government. Firstly, it relieves the burden on Local Authority personnel, allowing them to focus on their other responsibilities, while also creating employment opportunities for graduates and addressing high unemployment rates. The private sector's dynamic nature and responsiveness to market demands make it more effective at generating employment. Secondly, fund managers have the potential to generate tax revenue through corporate taxes and employee income taxes, providing vital funding for the CDF. Additionally, their involvement can drive innovation and technological advancements through research and development, fostering productivity and competitiveness in the economy. These strategic benefits contribute to more efficient CDF project management and hold the potential to positively impact the country's socioeconomic development. 

GRANTING LOANS AND PROVIDING GRANTS SHOULD REMAIN WITH THE CITIZENS ECONOMIC EMPOWERMENT COMMISSION (CEEC).

As proposed by the Private Sector Developmental Association (PSDA) Chairperson, Yusuf Dodia, CDF should not be channeled towards the empowerment of small-scale businesses. It is imperative to allocate CDF resources exclusively for developmental projects in constituencies. It is essential to emphasize the clarity of the matter at hand: the allocation of 20% of CDF specifically designated for Youth and Women Empowerment, consisting of 40% in grants and 60% in soft loans is misguided.

Maybe this allocation is warranted due to the existing challenges faced by the Citizens Economic Empowerment Commission (CEEC). The commission requires significant reforms as it is currently grappling with numerous internal and external obstacles. These challenges include inadequate financial resources, insufficient office space, a shortage of personnel, non-repayment of loans by micro, small, and medium-sized enterprises (MSMEs), lack of autonomy, absence of CEEC officials at the district level, problematic appointments of CEEC officials, and political interference. These hurdles hinder the commission's ability to efficiently and effectively carry out its responsibilities.

To address these issues, the commission should be perceived as an independent and competent body that actively promotes the empowerment of marginalized or disadvantaged citizens. These measures will help the commission operate more effectively in its mission of economic empowerment. And more importantly, the commission can effectively take on the financing of SMEs, that will also benefit from CDF through contracts. It is a great positive-sum game. Its primary goal should be to address the constraints faced by SMES in accessing economic resources and developing their capacity for growth, all while mitigating various factors that have hindered their progress. Besides, there is an entire ministry for SMEs.

It is disheartening to hear stories of community members forming groups with the sole intention of obtaining CDF loans or grants, only to later misuse the funds by distributing cash among themselves.

CONCLUSION

In conclusion, allocating K28.3 million to an agency which had previously struggled with managing K1.6 million just sets them up for failure. This also contributes to project implementation delays and potential neglect of other mandates by the Local Authority staff to solely focus on CDF projects which have more political pressure. However, although on paper there is a minimal role of Members of Parliament (MPs) in the implementation of the fund at the constituency level, providing for the constitution of local committees by citizens themselves, MPs still return a greater influence on who gets to be in the CDF committees and which projects gets prioritized due to the lack of safeguards.