Provincial Governors
Following Zimbabwe's independence in 1980, the government sought to reform the inherited colonial local government system, which featured racially segregated structures with limited autonomy for rural African areas. [1] In 1984, the Prime Minister's Directives on Decentralization and Development introduced provincial-level coordination to promote participatory planning from village to national levels. [1] This led to the enactment of the Provincial Councils and Administration Act [Chapter 29:11] in 1985, which formalized the office of Provincial Governor, first appointed on 2 March 1984, alongside Provincial Councils. [1]
Initially, eight provinces were established: Manicaland, Mashonaland Central, Mashonaland East, Mashonaland West, Masvingo, Matabeleland North, Matabeleland South, and Midlands. In 2004, Harare and Bulawayo Metropolitan Provinces, which had been designated as their own provinces in 1997, were appointed Provincial Governors, extending the role to urban areas. This led to conflict, as these areas were also led by executive mayors. [1] The office operated within a framework of deconcentration, where Provincial Governors extended central control rather than fostering full devolution of powers. [1]
The position was recognized under Section 111A of the Constitution of Zimbabwe, which allowed for the appointment of governors "for the better administration of Zimbabwe." [1] Provincial Governors were ex officio members of Parliament, entitled to sit and speak in both the Senate and House of Assembly, though they could vote only in the House to which they were assigned. [1]
Appointment
Provincial Governors were appointed by the President of Zimbabwe under Section 4(1) of the Provincial Councils and Administration Act. [1] No electoral process or public consultation was required, and appointments were typically aligned with the ruling party's structures. [1] Candidates had to be Zimbabwean citizens qualified for election or appointment as a Member of Parliament. [1]
The term of office was determined by the President and did not exceed two years, though it could be renewed at the President's discretion. [1] The office was classified as a public position but separate from the public service. [1] In practice, all appointments from 1985 onward were from the ZANU–PF party, reflecting the centralised nature of the system.
Role and functions
The role of the Provincial Governor was primarily coordinative and supervisory, emphasising the promotion of provincial development plans and relations between central government, local authorities, and stakeholders. [1] Under Section 10 of the Provincial Councils and Administration Act, the functions included:
- To serve as chairman of the Provincial Council for the province;
- To foster and promote the implementation by Ministries and other agencies of the Central Government of development plans prepared by the provincial council;
- To exercise general supervision and coordination over the planning and carrying out of development by local authorities within the province;
- To perform such other functions as may be conferred or imposed by any other enactment.
Provincial Governors chaired Provincial Council meetings and joint sessions with the Provincial Development Committee, a technical body led by the Provincial Administrator. They facilitated bottom-up planning, consolidating district plans into provincial strategies aligned with national priorities, but lacked independent budgeting or resource-raising powers, relying on central government funding. [1]
As political heads with cabinet status, they represented their provinces at national events, advised on development partnerships, and supervised local authorities such as Urban Councils and Rural District Councils. However, their authority was limited to advisory and facilitative roles, with no direct executive control over implementation. This structure often led to overlaps with Provincial Administrators, who handled civil service coordination, and criticisms of the position as an extension of central rather than provincial accountability. [1]
Ministers of State for Provincial Affairs
The office emerged following the adoption of the 2013 Constitution, which shifted Zimbabwe from a centralized deconcentration model to a devolved system of governance under Chapter 14. Prior to 2013, Provincial Governors—appointed under the Provincial Councils and Administration Act [Chapter 29:11] coordinated central government interests at the provincial level but lacked true autonomy for local decision-making. The new Constitution abolished the Governor position, establishing elected Provincial and Metropolitan Councils to handle planning, economic development, and other functions (sections 268–272), with devolution mandated "whenever appropriate" to promote equitable resource distribution and citizen participation (section 264). [2]
In the July 2013 elections, Provincial Councils were elected for the first time, but President Robert Mugabe immediately appointed ten Ministers of State for Provincial Affairs, all from the ruling ZANU–PF party, to oversee each province. [2] This move was criticized as retaining central oversight, potentially subverting devolution by allowing ministers to override provincial decisions. [2] Mugabe's successor, Emmerson Mnangagwa, has continued the practice, with appointments reflecting party loyalty and regional balancing. As of 2025, the role persists amid slow devolution progress, with central funding dependencies and ministerial interventions in local affairs. [3] The Provincial Councils and Administration Amendment Bill H.B. 5, 2021, sought to formalize the position by renaming Provincial Governors as "Ministers of State and Devolution" and aligning the Act with constitutional devolution requirements, including functions for councils and financial provisions. However, the Bill has not been passed into law as of October 2025, leaving the role operating in a legal vacuum. [4]
