On 11 April 2025, Zimbabwe officially gazetted the Private Voluntary Organisations (PVO) Amendment Bill into law. This marks a major shift in how Civil Society Organisations (CSOs) are regulated in the country. The Act, first reintroduced in Parliament on 1 March 2024, moved through all legislative stages despite ongoing concerns from CSOs about some of its provisions and their impact on civic space.
Throughout the process, CSOs engaged openly with the government, hoping to help shape a law that promotes both accountability and a supportive environment for civic work. CSOs have long been key partners in Zimbabwe’s development, contributing to governance, service delivery, and alignment with international standards. Contrary to popular belief, CSOs are not against regulation. They have always shown a willingness to cooperate with the government to ensure a clear and fair operational space.
As part of their engagement, CSOs submitted proposals to Parliament, met with the Minister of Justice, and responded to a call from the Attorney General to share feedback. At one point, the Attorney General even promised to arrange a meeting with the President to resolve outstanding concerns. However, the law was passed before these discussions could take place—disappointing many in the sector and undermining the spirit of inclusive dialogue.
Although the Act claims to promote a better working environment for PVOs, many of its provisions fall short. One major concern is the very short transition period. Section 14 of the schedule gives existing charitable organisations just 90 days to register under the new law. This is not enough time for most organisations, which often need to hold Annual General Meetings (AGMs), change their constitutions (with at least three months’ notice), complete audits, and consult with members and partners. Some may even need to dissolve or restructure existing trusts—steps that take time and legal support.
Initially, CSOs proposed a 12-month transition period. The Portfolio Committee on Public Service, Labour and Social Welfare recommended nine months. Yet, the final law set the deadline at only 90 days, without explaining why. This rushed process risks disrupting the sector, causing legal confusion and potential non-compliance. It also conflicts with Section 68 of Zimbabwe’s Constitution, which guarantees fair and lawful administrative action.
Another problem is the lack of clarity in the registration process. The law does not outline how applications will be processed, how long decisions will take, or what organisations should do if their applications are rejected or they choose not to re-register. The Registrar has wide powers to demand extra requirements at any time, which could lead to endless delays. Additionally, the new standard constitution model fails to reflect the diversity of CSOs, especially those that are not membership-based.
Public consultations on the Bill also raised concerns. Hearings held in May 2024 were disrupted in cities like Harare, Gweru, Masvingo, and Chinhoyi. Citizens were blocked from participating, and some hearings were abandoned. Still, the Portfolio Committee managed to compile a report with feedback from those who were able to take part.
The law-making process itself also faced issues. Changes made in the National Assembly were not included in the version passed by the Senate in October 2024. These were only partly fixed in February 2025, highlighting poor coordination and transparency in finalising the law.
Beyond legal issues, CSOs have played a vital role in Zimbabwe’s development. They have supported humanitarian efforts, promoted human rights, and worked with the government on health, education, economic development, and disaster response. As Zimbabwe moves from the National Development Strategy 1 (NDS1) to NDS2, strong partnerships with CSOs will remain critical.
CSOs have also supported international development goals and taken part in key reform processes, such as the Arrears Clearance and Debt Resolution initiative. Worryingly, the new law may affect Zimbabwe’s performance on global governance indicators. By April 2025, the country had already dropped in nine of sixteen indicators on the Mo Ibrahim Index—an outcome that could worsen if civic space continues to shrink.
Although the Act claims to support PVO operations, many of its provisions create legal confusion, administrative burdens, and restrictions that could prevent CSOs from carrying out their work effectively. If not improved during implementation, the Act could harm Zimbabwe’s democratic growth and development progress.
Zimbabwean CSOs remain committed to transparency, accountability, and national development. They call on the government to reopen inclusive dialogue to ensure that their work is not disrupted. As NANGO, we believe that a strong, independent, and empowered civil society is essential to Zimbabwe’s success—not only in delivering services but in building trust, encouraging innovation, and making sure no one is left behind.
In a nation striving for open dialogue, citizen engagement, and democratic progress, the principles of civic space serve as a cornerstone of Zimbabwe’s evolving society. These guiding principles form the bedrock upon which citizens, Civil Society Organisations (CSOs), and policymakers work to foster an environment of free expression, participation, and accountability.
Central to the concept of civic space is the freedom of expression and association. Zimbabweans are entitled to express their opinions, engage in public discourse, and associate with groups of their choosing. This legal safeguard is enshrined within the Zimbabwe Constitution’s Declaration of Rights, precisely located in Chapter 4, Section 61. This fundamental principle encourages open dialogue, diverse perspectives, and the ability to collectively address societal challenges.
Civic space embodies the principle of inclusivity, ensuring that every citizen’s voice matters. It is from this realisation that the principle of ‘Leaving No One and No Place Behind’ was coined. Participation extends beyond casting votes during an election process—it includes involvement in decision-making processes, public consultations, and community initiatives. By involving citizens from various backgrounds, the aim is to create policies that resonate with the needs and aspirations of Zimbabwe’s diverse population.
Accountability is a central piece of civic space. Public officials and institutions are expected to be transparent in their actions, decisions, and resource allocation. This principle empowers citizens to hold those in power accountable for their actions, fostering a culture of trust between the government and the governed.
In an unsettling turn of events, attempts made by the public to hold the government accountable have taken a distressing path marred by harassment, intimidation, and censorship in the case of the media. The dynamics between the governed and the government have grown increasingly strained. A recent and alarming development fuelling is the enactment of the Criminal Law (Codification and Reform) Amendment Bill 2022. This bill, upon enactment, would criminalise actions deemed “subversive activities” and “economic sabotage.” This development raises substantial apprehensions, as it could potentially be used to target CSOs, pressure groups, and activists among others that are critical of the government or advocate for much-needed social and economic changes.
The introduction of such legislation has sparked debates about the extent to which it could contribute to the restriction of civic space and hamper the role of CSOs in ensuring transparency and democratic values. As citizens and activists grapple with these challenges, the evolving relationship between governance and accountability remains at the forefront of public concern.
Civic space necessitates the protection of human rights. Citizens are entitled to basic rights, such as freedom from discrimination, access to education, healthcare, and more. Upholding human rights ensures that individuals can engage in civic activities without fear of persecution, enabling a thriving civil society.
An essential component of civic space is the adherence to the rule of law. This ensures that legal frameworks are applied consistently, and no one is above the law. Judicial independence guarantees that citizens can seek recourse if their rights are violated, contributing to a just and fair society. However, alarming reports have emerged of individuals being arrested and detained without formal charges or under questionable circumstances, raising significant human rights concerns. A prominent case that underscores these issues is the prolonged detention of Job Sikhala, who has spent nearly a year behind bars.
Mr. Sikhala’s extended confinement without a clear legal basis has ignited debates over the extent to which citizens’ rights are being safeguarded within the judicial system. Advocates argue that such detentions without proper charges not only infringe upon individuals’ rights but also undermine the principles of justice and fairness.
Civic space acknowledges the significance of CSOs as essential actors in creating an open society. These organisations work to amplify citizens’ voices, advocate for rights, and promote social change. Ensuring the protection of CSOs is vital to maintaining a vibrant civic space.
The consequences of the shrinking civic space are already evident in the country, including a dilution of commitments to the rule of law, social accountability, good governance, and upholding democratic principles and values. An enabling operating environment is urgently required to facilitate the effective implementation of CSOs’ actions, which will have positive downstream multiplier effects on the communities they serve. A vibrant, strong, and free civil society is necessary to ensure sustainable development and provide incentives for democracy and good governance.
The majority of these challenges stem from a prevailing lack of comprehensive information concerning the geographic distribution, impact, and experiences of CSOs This deficiency undermines the effective consolidation and profiling of their narratives, impact, and overall legitimacy. These concerns were notably underscored by state actors during the Social Lab process conducted by NANGO under the Action to Protect and Enhance Civic Space in Zimbabwe (APECS) initiative.
In this regard, the APECS initiative seeks to enhance coordination and decision-making through the development and management of a comprehensive CSO database resulting from rigorous due diligence, profiling, and accreditation needs. This also requires strengthening CSO data protection protocols to safeguard sensitive data, managing data access permits, and capacity strengthening as part of decision-making tools and risk management.
Presently, leveraging the APECS initiative, NANGO has successfully engaged with diverse observer missions as the nation moves closer to the 2023 harmonised elections. These missions encompass renowned entities such as the European Commission, COMESA, Africa Council of Churches, ECF-SADC, and the Commonwealth Observer Group. Beyond observer missions, the association has also fostered connections with media platforms, including Newsroom Africa and SABC. Throughout these interactions, NANGO has shared pertinent issues contextualizing the nation’s electoral and civic space landscape, aiming for these matters and suggestions to reach other essential stakeholders such as the government and electoral institutions in forthcoming engagements.
Furthermore, the APECS initiative assumes the crucial role of monitoring and tracking instances of violence, intimidation, harassment, and arbitrary arrests. This vigilant focus extends particularly to incidents directly involving the civil society sector, pressure groups, activists, and human rights defenders, forming an integral assessment of their safety as elections draw near. The initiative’s scope also encompasses scrutinising media reports and narratives surrounding civil society, recognising its significance. The initiative is also tracking the number of non-state actors accredited to participate during the 2023 harmonised elections as observers. One key incident to note is the refusal to approve the accreditation of Zimbabwean lawyer and human rights activist, Dr. Musa Kika by The Zimbabwe Election Commission.
In December 2022, the Zimbabwean government took a significant step by establishing a Structured Dialogue Platform that convenes creditors and development partners. This establishment aims to institutionalise structured dialogues regarding economic and governance reforms integral to arrears clearance and debt resolution. Within this framework, the participation of the civil society sector remains under watchful observation. This inclusive platform presents an opportune avenue for the APECS initiative to highlight challenges tied to Zimbabwe’s civic space and formulate effective resolutions.