REPORT OF THE PROMOTION MISSION TO THE REPUBLIC OF
ZIMBABWE
BY
HONOURABLE COMMISSIONER JANET RAMATOULIE SALLAH-NJIE
(Former Vice-Chairperson of the Commission;
Commissioner responsible for the promotion of human rights in Zimbabwe;
Special Rapporteur on the Rights of Women in Africa)
HONOURABLE COMMISSIONER MARIA TERESA MANUELA
(Special Rapporteur on Prisons, Conditions of Detention
and Policing in Africa)
and
HONOURABLE COMMISSIONER SELMA SASSI-SAFER (Special
Rapporteur on Refugees, Asylum Seekers, Internally Displaced Persons and
Migrants in Africa
30 March to 2 April 2026
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TABLE OF CONTENTS
ACKNOWLEDGMENTS
EXECUTIVE SUMMARY
1.0
INTRODUCTION
1.1
1.2
1.3
1.4
1.5
Composition of the Delegation
Terms of Reference
Previous Engagements between the Commission and Zimbabwe
Country Profile
Methodology
2.0
FINDINGS
2.1 Legislative and other measures to implement the provisions of the African Charter
2.2
The right to life
2.3
The prohibition and prevention of torture
2.4
Prisons, conditions of detention, and the Police
2.5
Access to justice and the Rule of Law
2.5.1 Constitutional Reform and Democratic Governance
2.6
Transitional Justice
2.7
Freedom of expression and access to information
2.8
Civil Society and Human Rights Defenders
2.9 Refugees, Asylum Seekers, IDPs, Stateless Persons, and Migrants
2.10 The right to participate freely in Government
2.11 The right to employment
2.12 The right to health
2.13 The right to education
2.14 The rights of women
2.15 The rights of children
2.16
The rights of Persons with disabilities
2.17 The rights of Older persons
2.18 Indigenous Populations and Minority Groups
2.19 Environment, Extractive Industries and Climate Change
3.0
RECOMMENDATIONS
ANNEX
•
•
Annex 1: Mission Program
Annex 2: List of Participants
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ACRONYMS AND ABBREVIATIONS
ACHPR - African Commission on Human and Peoples' Rights
ACRWC - African Charter on the Rights and Welfare of the Child
AMTO - Assisted Medical Treatment Order
ARINSA - Asset Recovery Inter-Agency Network of Southern Africa
AU - African Union
AUCEVAWG - African Union Convention on Ending Violence Against Women and Girls
BEAM - Basic Education Assistance Module
CAT - Convention Against Torture and Other Cruel, Inhuman and Degrading Treatment or Punishment
CSO - Civil Society Organisation
ECD - Early Childhood Development
EIA - Environmental Impact Assessment
EMIS - Education Management Information System
ESAAMLG - Eastern and Southern Africa Anti-Money Laundering Group
GANHRI - Global Alliance of National Human Rights Institutions
GBV - Gender-Based Violence
GlobE Network - Global Operational Network of Anti-Corruption Law Enforcement Authorities
HIV - Human Immunodeficiency Virus
HRD - Human Rights Defender
IAACA - International Association of Anti-Corruption Authorities
IDP - Internally Displaced Person
JSC - Judicial Service Commission
MOPA - Maintenance of Peace and Order Act
NANGO - National Association of Non-Governmental Organisations
NCMS - National Case Management System
NEC - National Education Council
NPA - National Prosecuting Authority
NPRC - National Peace and Reconciliation Commission
OPCAT - Optional Protocol to the Convention against Torture
OVC - Orphans and Vulnerable Children
PSIP - Public Sector Investment Project
PVO - Private Voluntary Organisation
SADC - Southern African Development Community
SOP - Standard Operating Procedure
STEM - Science, Technology, Engineering, and Mathematics
TFGBV - Technology-Facilitated Gender-Based Violence
UNCAC - United Nations Convention against Corruption
UNCRC - United Nations Convention on the Rights of the Child
UNCRPD - United Nations Convention on the Rights of Persons with Disabilities
UNHCR - United Nations High Commissioner for Refugees
ZACC - Zimbabwe Anti-Corruption Commission
ZEC - Zimbabwe Electoral Commission
ZGC - Zimbabwe Gender Commission
ZHRC - Zimbabwe Human Rights Commission
ZIMSTAT - Zimbabwe National Statistics Agency
ZPCS - Zimbabwe Prisons and Correctional Service
ACKNOWLEDGMENTS
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The African Commission on Human and Peoples' Rights (the Commission) expresses its profound
gratitude to the Government of the Republic of Zimbabwe for authorizing and facilitating this Promotion
Mission, and for placing at the Delegation's disposal the facilities, support, and personnel that ensured
its success.
The Delegation was honoured to be received by His Excellency the President of the Republic of
Zimbabwe, Dr. Emmerson Dambudzo Mnangagwa, who reaffirmed the Government's commitment to the
promotion and protection of human rights and to constructive engagement with the Commission. His
Excellency committed to hosting a future session of the Commission in Zimbabwe, demonstrating the
Government's dedication to deepening its engagement with the African Human Rights System, and
further assured the Delegation that the Government would ensure the implementation of the
recommendations arising from the Commission's visit.
Particular appreciation is extended to the Acting Minister of Foreign Affairs and International Trade, Hon.
Ambassador F. Shava, for exemplary coordination throughout the visit. The Commission further thanks
the Honourable Speaker of Parliament, Advocate J. Mudenda; the Minister of Justice, Legal and
Parliamentary Affairs, Hon. Ziyambi Ziyambi; the Minister of Mines and Mining Development, Hon.
Minister Dr. Eng. P. Kambamura; the Minister of Women’s Affairs, Community, and Small and Medium
Enterprises Development, Hon. Monica Mutsvangwa; the Ministry of Home Affairs and Cultural Heritage;
the Ministry of Health and Child Care; the Ministry of Public Service, Labour and Social Welfare; the
Ministry of Environment, Climate and Wildlife; the Permanent Secretary for Primary and Secondary
Education; and the Prosecutor General, all of whom engaged constructively with the Delegation.
The Delegation also expresses its gratitude to the Zimbabwe Anti-Corruption Commission, the Zimbabwe
Human Rights Commission, the Zimbabwe Media Commission, the Zimbabwe Gender Commission, the
Zimbabwe Electoral Commission, and the Judicial Service Commission for their valuable contributions.
The Commission further thanks the Law Society of Zimbabwe, the twenty (20) representatives of Civil
Society Organizations, the five (5) media practitioners, and the human rights defenders who engaged
candidly with the Delegation.
The Delegation is especially grateful to the management and staff of the Marondera Female Open
Correctional Institution and the Harare Central Prison for facilitating site visits and open exchanges. The
hospitality and constructive spirit demonstrated by all stakeholders are warmly acknowledged.
The Commission looks forward to continued engagement with all stakeholders in Zimbabwe to advance
human and peoples' rights.
EXECUTIVE SUMMARY
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Pursuant to Article 45(1) of the African Charter on Human and Peoples' Rights (the African Charter) and
Rule 76(1) of its Rules of Procedure, the Commission undertook a four-day Promotion Mission to the
Republic of Zimbabwe from 30 March to 2 April 2026, authorized by the Government of Zimbabwe and
led by Honourable Commissioner Janet Ramatoulie Sallah-Njie (Commissioner responsible for the
promotion of human rights in Zimbabwe, and Special Rapporteur on the Rights of Women in Africa),
Honourable Commissioner Maria Teresa Manuela (Special Rapporteur on Prisons, Conditions of
Detention and Policing in Africa), and Honourable Commissioner Selma Sassi-Safer (Special
Rapporteur on Refugees, Asylum Seekers, Internally Displaced Persons and Migrants in Africa). The
Mission's objectives and timing were publicly announced by the Commission prior to departure.
The Delegation was honoured to be received by His Excellency the President of the Republic of
Zimbabwe, Dr. Emmerson Dambudzo Mnangagwa, who reaffirmed the Government's commitment to the
promotion and protection of human rights and to constructive engagement with the Commission. His
Excellency committed to hosting a future session of the Commission in Zimbabwe, demonstrating the
Government's dedication to deepening its engagement with the African Human Rights System, and
further assured the Delegation that the Government would ensure the implementation of the
recommendations arising from the Commission's visit.
The Delegation met a broad range of counterparts: the Honourable Speaker of Parliament, Advocate J.
Mudenda; the Acting Minister of Foreign Affairs and International Trade, Hon. Ambassador F. Shava; the
Minister of Justice, Legal and Parliamentary Affairs, Hon. Ziyambi Ziyambi; the Minister of Mines and
Mining Development, Hon. Minister Dr. Eng. P. Kambamura; the Minister of Women’s Affairs, Community,
and Small and Medium Enterprises Development, Hon. Monica Mutsvangwa; the Ministry of Home Affairs
and Cultural Heritage; the Ministry of Health and Child Care; the Ministry of Public Service, Labour and
Social Welfare; the Ministry of Environment, Climate and Wildlife; the Permanent Secretary for Primary
and Secondary Education; and the Prosecutor General, Hon. Loyce Matanda-Moyo. The Delegation also
met with the Zimbabwe Anti-Corruption Commission, the Zimbabwe Human Rights Commission, the
Zimbabwe Media Commission, the Zimbabwe Gender Commission, the Zimbabwe Electoral
Commission, and the Judicial Service Commission. Additionally, the Delegation met with the Law Society
of Zimbabwe, twenty (20) representatives of Civil Society Organizations, five (5) media practitioners, and
human rights defenders. The Mission included site visits to the Marondera Female Open Correctional
Institution and the Harare Central Prison to assess conditions of detention and rehabilitation programmes.
Positive developments observed include: a robust constitutional foundation under the 2013
Constitution, particularly Chapter 4, the Declaration of Rights, which guarantees a broad spectrum of civil,
political, economic, social, and cultural rights, and establishes key independent institutions; the historic
abolition of the death penalty through the Death Penalty Abolition Act of 2024, aligning domestic law with
global abolitionist trends; the establishment of the Marondera Female Open Correctional Institution,
representing a landmark shift toward rehabilitation, with programmes including digital and vocational
training and home leave, exemplifying a progressive correctional philosophy aligned with international
standards; strengthened gender equality institutions, including the 2025 National Gender Policy, the
National Gender Coordination Framework, and a network of one-stop centres supplemented by mobile
units to combat gender-based violence and reach remote communities; a constitutional quota system
reserving 60 seats for women in Parliament, demonstrating a commitment to women's political
participation; and advancements in access to education, including national gender parity in enrolment
with girls outnumbering boys at the secondary level, the prohibition of corporal punishment, the ban on
discrimination based on gender, the protection of pregnant girls from exclusion, and the Basic Education
Assistance Module (BEAM), Grant-in-Aid programmes, School Feeding Programme, and sanitary wear
provision addressing barriers to attendance.
Key concerns include:
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➢ Ratification Gaps: Zimbabwe has not yet ratified several core international and regional human
rights instruments, including the Convention Against Torture (CAT), the Optional Protocol thereto
(OPCAT), the African Union Convention on Ending Violence Against Women and Girls
(AUCEVAWG), the Protocol to the African Charter on the Specific Aspects of the Right to a
Nationality and the Eradication of Statelessness in Africa, and the Protocol to the African Charter
on the Establishment of an African Court on Human and Peoples' Rights.
➢ Prison Overcrowding and Detention Concerns: Despite the success of the open prison model,
the broader prison system remains critically overcrowded, with facilities operating at 120–135%
of capacity, pre-trial detainees accounting for an estimated 25–30% of the prison population, and
conditions in police holding cells remaining precarious.
➢ Gaps Between Constitutional Guarantees and Practice: While the Constitution provides
robust protections, significant implementation gaps remain. The age of criminal responsibility is
fourteen years, falling short of international standards. Child labour persists, particularly in
agriculture and artisanal mining, and child marriage continues in some communities, contributing
to high dropout rates among girls.
➢ Challenges Related to the Constitutional Review Process: The Delegation received concerns
regarding the Constitution of Zimbabwe Amendment (No. 3) Bill, 2026, including:
• Inclusivity of the review process – The four-day timeline and the limited number
of public meetings scheduled for the whole of Zimbabwe were considered severely
restricted and inadequate for an issue of such national importance, with allegations
of some venues being inaccessible to some citizens, thus having a negative impact
on transparency and inclusivity of the whole process, as required by section 328 of
the Constitution;
• Judicial and prosecutorial appointments – The proposed amendment of the
procedural safeguard for the appointment of judges and the Prosecutor-General
raises concerns about dilution of the independence of the judiciary and due process;
• Extension of Presidential and Parliamentary terms– The proposed extension
from five to seven years raises concerns about undermining the principle of
constitutional supremacy and the integrity of amendment safeguards, and
adherence to both domestic constitutional standards and international norms that
emphasize accountability and the rule of law;
• Dissolution of the Zimbabwe Gender Commission – The proposed repeal of Part
4 of Chapter 12 of the Constitution, which establishes the Zimbabwe Gender
Commission, raises concerns about a regression in gender equality protections, a
concern shared by the Minister of Women's Affairs, the Zimbabwe Human Rights
Commission, and the Zimbabwe Gender Commission.
➢ Constraints on Civic Space and Freedom of Expression: Journalists and human rights
defenders allegedly continue to face harassment, surveillance, and arbitrary arrests. The
Patriotic Act (2023) contains provisions that restrict civic engagement, and the Private Voluntary
Organisations Amendment Act (2025) has raised concerns about increased state oversight of
civil society. Allegations of discrimination based on political affiliation also persist.
➢ Impact of Economic Challenges on Socio-Economic Rights: Zimbabwe's economic
instability, inflationary pressures, and currency volatility continue to undermine access to
healthcare, education, clean water, and adequate housing. The gap between law and practice is
most acute in the realization of economic, social, and cultural rights.
➢ Persistent Gender-Based Violence and Marginalization of Vulnerable Groups: Genderbased violence remains a significant concern, with limited access to support services in rural
areas. Women with disabilities, indigenous communities (San, Doma, Tonga, and Shangani
peoples), and persons with albinism face barriers to inclusion, with limited access to healthcare,
education, and public services.
➢ Statelessness and Refugee Protection Concerns: There is currently no official data on
stateless persons in Zimbabwe. The Government has not yet ratified the 1961 Convention on
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the Reduction of Statelessness. Registration issues persist, with cases reported of children being
denied birth certificates due to administrative barriers, creating risks of statelessness.
Furthermore, the revision of the Refugees Act (Chapter 4:03), originally announced for 2023,
remains delayed, leaving gaps in the legal framework for refugee protection. Concerns were also
raised regarding the risk of statelessness for returning refugees.
➢ Internally Displaced Persons (IDPs): Despite ratifying the Kampala Convention in 2013,
Zimbabwe has been slow to domesticate the treaty, lacking specific legislation or a
comprehensive policy framework to address IDPs displaced by climate disasters, development
projects, and drought, leaving many without adequate shelter or essential services.
➢ Detention of Migrants: While alternatives to detention exist under the Immigration Act, the
default position for immigration offences remains a criminal procedure process, risking
unnecessary detention based solely on immigration status. Children are not detained and are
referred to Social Welfare—a positive practice—but concerns persist regarding the detention of
adult migrants.
➢ Lack of Comprehensive Transitional Justice: Despite the Government's outreach programme
in Matabeleland, the full scope of the Gukurahundi atrocities remains unaddressed. Victims
continue to call for truth, reparations, and accountability. The findings of the 1983 Commission
of Inquiry, chaired by Justice Simplius Chihambakwe, have never been released, and the
proposed repeal of the National Peace and Reconciliation Commission raises concerns about
the future of transitional justice in Zimbabwe.
The report sets out targeted recommendations, including:
➢ On Ratification: Expedite the ratification of CAT, OPCAT, AUCEVAWG, the Protocol on the
Right to Nationality and the Fight against Statelessness, and the Protocol establishing the African
Court. Establish a focal point within the Ministry of Justice to follow up on the Commission's
decisions on individual Communications.
➢ On Prison Reforms: Expand the open prison model to reduce overcrowding and promote
rehabilitation. Incorporate the Luanda Guidelines into training for correctional and police officers.
➢ On Constitutional Reform: Ensure that future constitutional amendments are inclusive and
transparent, in line with Section 328 of the Constitution and Article 13 of the African Charter.
Reconsider proposals that dilute judicial appointment processes, extend presidential and
parliamentary terms, and dissolve the Zimbabwe Gender Commission.
➢ On Access to Justice: Enact legislation mandating legal representation for all children in conflict
with the law and reduce reliance on pre-trial detention.
➢ On Statelessness, Refugees, and IDPs: Strengthen the protection of refugees and IDPs by
expediting the revision of the 1983 Refugees Act and aligning it with international and regional
standards. Accelerate the implementation of the Kampala Convention to address the needs of
IDPs displaced by climate disasters, development projects, and drought. Publish up-to-date,
disaggregated data on stateless persons in the country, complete the national survey, and ratify
the 1961 Convention on the Reduction of Statelessness and the African Protocol on the Right to
Nationality. Strengthen the civil registration system to prevent statelessness and ensure
universal access to identity documents.
➢ On Detention of Migrants: Ensure detention of migrants is used only as a last resort, expand
alternatives to detention, and maintain the positive practice of not detaining children.
➢ On Children's Rights: Intensify enforcement of laws against child labour and child marriage.
Expedite the enactment of the Inclusive Education Policy for children with disabilities.
➢ On Women's Rights: Allocate resources for the Domestic Violence Act, fully implement the
Maputo Protocol, and ratify AUCEVAWG.
➢ On Persons with Disabilities: Fully implement the Persons with Disabilities Act (2025) and
enforce the two percent employment quota.
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➢ On Anti-Corruption: Enact the Whistleblowers and Witness Protection Bill.
➢ On Transitional Justice: Release the findings of the 1983 commission of inquiry and establish a
successor mechanism to the National Peace and Reconciliation Commission.
➢ On Civic Space: Adopt legislation to protect human rights defenders and ensure the PVO
Amendment Act does not unduly restrict civil society.
➢ On Health and Education: Increase health financing to meet the Abuja benchmark and improve
Net Intake Rates for Grade 1 and Form 1.
➢ On Extractive Industries: Finalize the Mines and Minerals Bill, strengthen enforcement, and
establish a mechanism for complaints related to displacement and environmental damage.
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1.0 INTRODUCTION
1.1 Composition of the Delegation
1. The Commission's Delegation comprised the following:
i.
ii.
iii.
Honourable Commissioner Janet Ramatoulie Sallah-Njie, Commissioner responsible for
the promotion of human rights in the Republic of Zimbabwe, and Special Rapporteur on
the Rights of Women in Africa (Head of the Delegation).
Honourable Commissioner Maria Teresa Manuela, Special Rapporteur on Prisons,
Conditions of Detention and Policing in Africa.
Honourable Commissioner Selma Sassi-Safer, Special Rapporteur on Refugees,
Asylum Seekers, Internally Displaced Persons and Migrants in Africa.
2. The Promotion Mission was supported by Ms. Irene Desiree Mbengue and Mr. Pedro Rosa Co,
both Senior Legal Officers at the Secretariat of the Commission.
1.2 Terms of Reference
3. The Terms of Reference for the Mission were as follows:
i.
ii.
iii.
iv.
v.
vi.
vii.
viii.
ix.
x.
xi.
xii.
Promote the African Charter, and other regional and international human rights
instruments, as well as soft law standards and guidelines adopted by the
Commission;
Advocate for the ratification of outstanding regional and international human
rights instruments that have not yet been ratified by the Republic of Zimbabwe;
Strengthen collaboration between the Commission and the authorities of the
Republic of Zimbabwe in relation to the promotion and protection of rights
guaranteed under the African Charter and other relevant international
instruments;
Engage in dialogue with the Government of Zimbabwe on legislative and other
measures taken to implement the African Charter and other ratified instruments;
Raise awareness and visibility of the Commission's mandate and work,
especially among relevant Government departments, national institutions, and
Civil Society Organisations (CSOs);
Evaluate the implementation of the Maputo Protocol and discuss measures to
combat gender-based violence and promote women's political and economic
participation;
Gather information on the specific situation of women and girls from vulnerable
groups, including those in detention, with disabilities, and living in poverty;
Examine the legal and institutional framework for the prevention of torture and
cruel, inhuman, or degrading treatment or punishment;
Visit places of detention to assess conditions and hold discussions with officials
on custody procedures, accountability mechanisms, and rehabilitation services;
Inquire into the human rights impact of extractive and other industrial operations,
including issues of land rights, displacement, environmental pollution, and
access to remedy for affected communities;
Gather information on the situation of human rights defenders and assess the
challenges they face in the exercise of their rights and the conduct of their work;
Meet with representatives of national human rights institutions and CSOs
involved in human rights promotion and protection;
xiii.
xiv.
Follow up on the monitoring and implementation of the recommendations from
previous Commission engagements with the Republic of Zimbabwe;
Advocate for the timely submission of Periodic Reports to the Commission in
accordance with Article 62 of the African Charter, and Article 26 of the Maputo
Protocol.
1.3 Previous Engagements between the Commission and Zimbabwe
4. The Commission has previously engaged with Zimbabwe through the examination of its periodic
reports under Article 62 of the African Charter.
5. The Commission reviewed Zimbabwe's 16th Periodic Report covering the period 2019–2023
during its 83rd Ordinary Session held in Banjul, The Gambia, from 2 to 22 May 2025. In its
Concluding Observations, the Commission encouraged Zimbabwe to continue its commitment
to the submission of Periodic Reports and to include in its next report a section on the
implementation of the Kampala Convention and the Protocols on the Rights of Persons with
Disabilities and the Rights of Older Persons, which Zimbabwe ratified in May 2024.
6. The Commission has also considered several Communications against Zimbabwe and has
issued decisions and recommendations, which formed part of the follow-up discussions during
the Mission.
1.4 Country Profile
7. The Republic of Zimbabwe is a landlocked country located in Southern Africa, positioned
between the Zambezi and Limpopo Rivers. Zimbabwe shares borders with Zambia to the north,
Mozambique to the east and northeast, South Africa to the south, and Botswana to the
southwest.
8.
Zimbabwe is a unitary constitutional republic operating under the 2013 Constitution, which
establishes a multi-party democratic system founded on the principles of separation of powers,
constitutional supremacy, and the rule of law. The capital city is Harare, which serves as the
political, administrative, and economic centre of the country. Administratively, Zimbabwe is
divided into ten provinces.
9.
As of March 2026, Zimbabwe's population is approximately 17.16 million. The population is
characterized by considerable ethnic, linguistic, and cultural diversity. The Shona-speaking
peoples constitute the largest ethnic group, followed by the Ndebele, and several other minority
groups, including the Tonga, Venda, Sotho, and San (Tshwao) peoples. The Constitution
recognizes 16 official languages, while English is the language of national governance,
education, and commerce.
10. Zimbabwe's economy is diversified and historically anchored in agriculture, mining, and
manufacturing. The country is richly endowed with mineral resources, including gold, platinum
group metals, diamonds, lithium, and coal. The economy has experienced prolonged periods of
volatility over the past two decades, marked by hyperinflation, currency instability, and
constrained access to international credit markets.
11. Socially, Zimbabwe has historically maintained relatively high literacy rates compared to many
countries in the region. Access to primary education is widespread, and the country continues to
produce a skilled diaspora across multiple professions. However, public service delivery,
particularly in health care, water and sanitation, and infrastructure, has faced strain due to fiscal
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limitations and economic contraction. Poverty levels, especially in rural areas, are influenced by
recurrent droughts and climate variability, which affect food security and agricultural output.
1.5 Methodology
12. During the Mission, the Delegation met with a wide range of stakeholders, including the following
senior Government officials:
i.
ii.
iii.
iv.
v.
vi.
vii.
viii.
His Excellency the President of the Republic of Zimbabwe, Dr. Emmerson
Dambudzo Mnangagwa;
The Honourable Speaker of Parliament, Advocate J. Mudenda;
The Acting Minister of Foreign Affairs and International Trade, Hon. Ambassador F.
Shava;
The Minister of Justice, Legal and Parliamentary Affairs, Hon. Ziyambi Ziyambi;
The Minister of Mines and Mining Development, Hon. Minister Dr. Eng. P.
Kambamura;
The Minister of Women’s Affairs, Community, and Small and Medium Enterprises
Development, Hon. Monica Mutsvangwa;
The Prosecutor General, Hon. Loyce Matanda-Moyo;
The Permanent Secretary for Primary and Secondary Education, Mr. Moses Mhike.
13. The Delegation also met with the following:
i.
ii.
iii.
iv.
v.
vi.
vii.
viii.
ix.
x.
The Zimbabwe Anti-Corruption Commission;
The Zimbabwe Human Rights Commission;
The Zimbabwe Media Commission;
The Zimbabwe Gender Commission;
The Zimbabwe Electoral Commission;
The Judicial Service Commission;
The Law Society of Zimbabwe;
Twenty (20) representatives of CSOs;
Five (5) media practitioners;
Human rights defenders.
14. The Delegation also conducted visits to key institutions relevant to the promotion and protection
of human rights in Zimbabwe, including:
i.
ii.
Marondera Female Open Correctional Institution, the first female open prison in the
SADC region, where the Delegation assessed conditions of detention and observed
rehabilitation programmes;
Harare Central Prison, to examine conditions of detention and engage with correctional
staff and inmates.
15. The Mission concluded with a Press Conference in Harare, during which the Delegation
presented its preliminary findings and recommendations, and engaged with national media to
raise public awareness of the Commission's mandate and the purpose of the visit.
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2. FINDINGS
16. During the Mission, which lasted four (4) days, the Delegation observed that its interactions with
Government representatives, independent institutions, civil society actors, media professionals,
and other stakeholders were extensive and constructive. These engagements allowed the
Delegation to gather meaningful insights into the human rights situation in the Republic of
Zimbabwe.
17. The Delegation welcomed the high-level access and openness granted by the Government,
particularly the audience granted by His Excellency the President of the Republic of Zimbabwe,
Dr. Emmerson Dambudzo Mnangagwa, and the substantive meetings held with various Ministers
and heads of institutions. The commitment shown by officials to engage on key human rights
matters was commendable. The Delegation also acknowledges the best practice demonstrated
by Mrs. V. Nyemba, Permanent Secretary in the Ministry of Justice, Legal and Parliamentary
Affairs, who paid a courtesy visit to the Delegation the day before the start of the Mission, setting
a positive tone of openness and collaboration.
18. In light of the above, the findings presented in this report are based solely on the interviews
conducted, institutional visits undertaken, and documents accessed during the in-country phase
of the Mission.
2.1 Legislative and Other Measures to Implement the Provisions of the African Charter
19. The Delegation received comprehensive information on the constitutional and legislative
framework of Zimbabwe, which provides strong guarantees for civil, political, economic, social,
and cultural rights. The Constitution of Zimbabwe (2013) establishes a progressive legal
foundation, particularly Chapter 4, the Declaration of Rights, which guarantees a broad spectrum
of fundamental rights and freedoms. The Constitution also establishes key independent
institutions under Chapter 12, including the Zimbabwe Human Rights Commission, the
Zimbabwe Gender Commission, the Zimbabwe Electoral Commission, the Zimbabwe Media
Commission, and the Zimbabwe Anti-Corruption Commission, which are mandated to support
democracy and protect human rights.
20. The Delegation was informed that the Government has undertaken several legislative reforms to
align domestic laws with the Constitution and international human rights standards. Notable
legislative developments include the Death Penalty Abolition Act (2024), which removed capital
punishment from Zimbabwe's criminal justice system; the Education Amendment Act, which
prohibits discrimination based on gender, outlaws corporal punishment, and protects pregnant
girls from exclusion; the Domestic Violence Act (Chapter 5:16); the Freedom of Information Act
(2020); the Persons with Disabilities Act (2025), which repeals the outdated Disabled Persons
Act and aligns disability legislation with the UNCRPD and the African Protocol on the Rights of
Persons with Disabilities; the Labour Amendment Act, which criminalizes sexual harassment in
the workplace; and the new Marriage Act, which aligns with the Constitutional Court's 2016
decision declaring marriage under the age of 18 unlawful.
21. The Delegation was also informed of the National Gender Policy (2025), reviewed to align with
regional and international instruments, and the National Gender Coordination Framework, which
aims to strengthen gender coordination structures across government.
22. Regarding National Human Rights Institutions, the Delegation was informed that the Zimbabwe
Human Rights Commission (ZHRC) was accredited by the Global Alliance of National Human
Rights Institutions (GANHRI) with "A status" in May 2017 and has participated in most sessions
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of the African Commission. The Zimbabwe Gender Commission has influenced the enactment
of key legislation, including the Marriage Act, the Education Amendment Act, and the Labour
Amendment Act. The Zimbabwe Anti-Corruption Commission (ZACC) has adopted nonconviction-based asset forfeiture and maintains active membership in international anticorruption networks, including the GlobE Network, IAACA, AAACA, and ARINSA.
23. On ratification of international and regional instruments, the Delegation welcomed Zimbabwe's
recent ratifications of the Protocol to the African Charter on the Rights of Persons with Disabilities
in Africa (May 2024), the Protocol to the African Charter on the Rights of Older Persons in Africa
(May 2024), the Protocol to the African Charter on the Rights of Citizens to Social Protection and
Social Security (May 2024), and the International Convention on the Protection of the Rights of
All Migrant Workers and Members of Their Families. These ratifications demonstrate Zimbabwe's
commitment to the African human rights system and to the protection of vulnerable groups.
24. The Delegation noted that Zimbabwe is up to date with its periodic reports under Article 62 of the
African Charter. The Commission reviewed Zimbabwe's 16th Periodic Report covering the period
2019–2023 during its 83rd Ordinary Session in May 2025. The Delegation also noted the
existence of an Inter-Ministerial Committee on Human Rights and Humanitarian Law, with
dedicated sub-committees responsible for following up on the implementation of human rights
treaties and responding to communications from the African Commission.
25. However, the Delegation also noted that several key international and regional human rights
instruments remain unratified by Zimbabwe. These include the CAT; OPCAT; the International
Convention for the Protection of All Persons from Enforced Disappearance; the Second Optional
Protocol to the International Covenant on Civil and Political Rights; the Optional Protocol to the
Convention on the Elimination of All Forms of Discrimination against Women; the 1961
Convention on the Reduction of Statelessness; the Protocol to the African Charter on the
Establishment of an African Court on Human and Peoples' Rights; the AUCEVAWG; and the
Protocol to the African Charter on the Specific Aspects of the Right to a Nationality and the
Eradication of Statelessness in Africa.
26. The Delegation also observed that the International Treaties Bill, first published in 2019 and
passed by Parliament, is awaiting gazetting. The Bill is intended to bring clarity and transparency
to the treaty ratification and domestication process. Furthermore, the Delegation noted the
absence of a dedicated committee on human rights and social affairs within the National
Assembly, which could strengthen parliamentary oversight of human rights issues.
2.2 The right to life
27. During its engagements, the Delegation received information regarding the protection of the right
to life in Zimbabwe. The Delegation noted that the Constitution of Zimbabwe, under Section 48,
expressly protects the inherent right to life. In a landmark development, Zimbabwe formally
abolished the death penalty through the Death Penalty Abolition Act of 2024, removing capital
punishment from the criminal justice framework. Prior to abolition, the 2013 Constitution had
already significantly restricted the death penalty to cases of murder committed in aggravating
circumstances and prohibited its imposition on women, persons under 21 at the time of the
offence, and persons over 70. Zimbabwe had also maintained a long-standing de facto
moratorium on executions. The 2024 Act, therefore, consolidated an existing trajectory toward
abolition by formally eliminating capital punishment from domestic law.
28. The Delegation welcomed the abolition of the death penalty as a historic achievement that
strengthens Zimbabwe's compliance with the evolving interpretation of Article 4 of the African
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Charter, which guarantees the inviolability of human life and the integrity of the person. The
Delegation noted that the Government is compiling a database of persons who were on death
row prior to abolition and who have since been resentenced or released, though this process is
ongoing.
2.3 The Prohibition and Prevention of Torture
29. The Delegation engaged with the Ministry of Home Affairs and Cultural Heritage, the Zimbabwe
Republic Police, and the Zimbabwe Prisons and Correctional Service on the legal and
institutional framework for the prohibition and prevention of torture. The Delegation was informed
that the Constitution of Zimbabwe, under Section 53, expressly prohibits torture and cruel,
inhuman or degrading treatment or punishment. The Police Act contains provisions for
disciplinary action against any officer who engages in torture, and the Criminal Law (Codification
and Reform) Act contains provisions to punish perpetrators of torture.
30. The Ministry of Home Affairs reported that all security officers are trained on human rights during
their initial training and receive refresher courses throughout their careers. In the Zimbabwe
Prisons and Correctional Service, officers are given lectures on the African human rights system,
including the African Charter. The Ministry also conducts regional trainings for SADC and
provides lectures on the Constitution and human rights. Standard operating procedures are in
place, and body cameras are deployed to monitor officers during operations. Hotlines are also
available for members of the public to make complaints against the police.
31. The Delegation was informed that the Government has recently established an Independent
Complaint Mechanism in compliance with constitutional provisions, designed to deal with
complaints against the entire police set-up. The Ministry emphasized that the requirement for
public demonstrations is notification, not authorization, and that the Police are mandated to
protect assemblies free of charge.
32. However, the Delegation noted that Zimbabwe has not yet ratified the Convention Against
Torture and Other Cruel, Inhuman and Degrading Treatment or Punishment (CAT) or the
Optional Protocol thereto (OPCAT). The Delegation was informed that the Government is
considering ratification, but no specific timeline was provided.
33. The Delegation further noted that while violence is criminalized in Zimbabwe, torture is a distinct
offence under international law, and the existing legal framework does not explicitly criminalize
torture as a distinct offence. The Criminal Law (Codification and Reform) Act contains provisions
on assault and causing grievous bodily harm, but these do not specifically address torture as
defined under international law, which includes elements such as the infliction of severe pain or
suffering, whether physical or mental, for purposes such as obtaining information, punishment,
intimidation, or discrimination.
34. The Delegation also received concerns from CSOs regarding allegations of torture and illtreatment, particularly in the context of arrests of human rights defenders and opposition
members. These concerns were noted by the Delegation, which recalled the Robben Island
Guidelines and the obligation of States to ensure independent oversight, prompt medical
documentation of injuries, and effective remedies for victims of ill-treatment.
2.4 Prisons, Conditions of Detention and Policing
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35. The Delegation visited the Marondera Female Open Correctional Institution and the Harare
Central Prison, and held meetings with the Zimbabwe Prisons and Correctional Service (ZPCS),
the Zimbabwe Republic Police (ZRP), and the Ministry of Home Affairs and Cultural Heritage.
The Delegation also received information from the Prosecutor General, the Judicial Service
Commission, and CSOs regarding conditions of detention and policing practices.
Marondera Female Open Correctional Institution
36. The Delegation visited the Marondera Female Open Correctional Institution, which was officially
opened on 2 June 2021 as the first female open correctional facility in the SADC region and the
second of its kind in Zimbabwe, following Connemara Open Correctional Institution, established
in 2000. The facility, conceived under the leadership of the Commissioner General, is supported
by the Zimbabwe Female Open Correctional Foundation Trust, with the First Lady of Zimbabwe
serving as its Patron. Since its opening, 185 inmates have been admitted, 174 have been
released, and the current population stands at 11 inmates.
37. The Officer-In-Charge explained that the open prison system operates as a pre-release plan,
granting privileges to inmates who have demonstrated good behaviour. Its philosophy is rooted
in rehabilitation and reform, offering a structured transition back into society. The system seeks
to rehabilitate inmates through education, skills training, and counselling; to empower them
economically and socially; and to facilitate reintegration, particularly for female offenders, many
of whom are first-time, non-violent offenders and mothers.
38. The legal framework supporting the open prison system draws from international, regional, and
domestic instruments, including the United Nations Standard Minimum Rules for the Treatment
of Prisoners (the Nelson Mandela Rules), the United Nations Rules for the Treatment of Women
Prisoners and Non-custodial Measures for Women Offenders (the Bangkok Rules), the Kampala
and Arusha Declarations, and domestically, Section 227 of the Constitution of Zimbabwe, the
Prisons and Correctional Act (Chapter 7:11), and the Open Prison Guidelines, which remain a
green paper.
39. The institution boasts a range of facilities and programmes designed to support rehabilitation,
including a fully equipped clinic with a maternity wing, post-natal ward, and pharmacy; a Digital
and Vocational Training Centre offering courses in tailoring, hairdressing, baking, information
technology, crop and animal production, and food preparation; income-generating activities such
as farming, horticulture, and livestock production; psycho-social support through counselling,
mental health awareness sessions, anger management, and focus group discussions; and
spiritual and moral rehabilitation through programmes such as Peace Education, Healing
Through Forgiveness, and the Alpha Bible Course.
40. Privileges granted to inmates include home leave of up to five days per month, with additional
leave for Christmas and New Year; unescorted movement to attend academic or vocational
training, go shopping, or be hospitalised; extended family visits on weekends, allowing children
to see their mothers; and the freedom to possess personal belongings such as radios,
televisions, or fridges. Communication is uncensored, with unmonitored telephone calls and
letters.
41. The Delegation observed well-equipped classrooms, a fully equipped computer lab, a
hairdressing salon under construction, a well-appointed catering room, a clinic with a maternity
wing and pharmacy, a postal outlet serving as a banking agency for inmates, and clean-living
quarters with double bedrooms equipped with warm blankets. The Delegation also spoke with
two inmates who shared their personal experiences, providing valuable insights into the lives of
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women in the open prison system.
42. The main challenge identified by the Officer-In-Charge is late returns from home leave, attributed
to the facility being centralised, with inmates travelling long distances from their home areas. The
Officer-In-Charge recommended the decentralization of open correctional facilities to reduce
travel distances and improve compliance with home leave conditions.
Overview of Prison Conditions in Mashonaland East Province, and the Harare Central Prison
43. The Delegation was informed by Commissioner G. Sibanda, Officer Commanding Mashonaland
East Prison, that while the Marondera facility has a provisional capacity of 860 inmates, it
currently accommodates 1,378 inmates, highlighting significant overcrowding. He reported a total
complement of 1,080 officers, comprising 733 administrative and support staff, of whom 357 are
female officers.
44. The Prosecutor General acknowledged that prisons have not been expanded and were built
when the population was much smaller, and that no new prisons have been built to meet the
current population. The Delegation noted that the broader prison system remains critically
overcrowded, with facilities operating at 120–135% of capacity. Pre-trial detainees account for
an estimated 25–30% of the prison population, reflecting delays in the justice system.
45. The Delegation was informed that the Government has taken steps to address overcrowding,
including presidential amnesties. In 2025, the President granted amnesty to over four thousand
inmates with offences of various degrees. The Judicial Service Commission also uses community
service as an alternative to imprisonment, requiring offenders to work for eight hours. The
Government is also reinventing the open prison system and has established community
correctional facilities and a parole board. Prison officers are now called correctional officers to
remove the stigma associated with the term "prison officer."
46. The Delegation was informed that the Government has a Prisons and Correctional Services Act,
which addresses various aspects of imprisonment, including the philosophy that prisons should
not merely remove undesirable elements from society but should also rehabilitate offenders and
reintegrate them into society. The Minister of Justice acknowledged, however, that the budget
for prisons is not adequate and that there is a need for resources for infrastructure, rehabilitation,
and healthcare.
47. Regarding the training of correctional officers, the Minister confirmed that all prison personnel
are taken through human rights training before they graduate, including training on the Nelson
Mandela Rules. The Minister indicated that Zimbabwe is open to participating in the
Commission's study on prison conditions and would welcome technical assistance in
strengthening correctional officer training, including on the Luanda Guidelines on pre-trial
detention.
48. However, the Delegation noted that the Luanda Guidelines on Pre-trial Detention were not
mentioned in the legal framework presentation, raising questions about whether correctional
officers and staff are familiar with these important regional soft law instruments. The Delegation
also noted that the facility does not currently have specialized facilities or programmes for women
with disabilities, including those with visual impairments. The delivery room in the clinic was noted
to be not fully equipped, and no deliveries have occurred since the clinic's establishment.
The Harare Central Prison
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49. The Delegation visited Harare Central Prison, where they were received by prison officials and
welcomed by a choir and dance group composed of male and female inmates. The prison,
originally built in 1910 during the colonial period as Salisbury Central Prison, was officially
renamed Harare Central Prison in 1982. The Delegation observed that the prison houses only
men and is significantly overcrowded. Cells originally designed to hold three (3) detainees now
accommodate up to seven (7) inmates. To alleviate congestion, prisoners spend most of their
time outside from 7:00 AM until 5:00 PM, returning after dinner. At night, inmates are required to
remove their personal belongings, including water, from their cells to create sufficient space to
sleep, with prisoners sleeping on blankets or light mattresses on the floor due to the lack of space
and beds.
50. Despite the overcrowding and the age of the facility, which needs rehabilitation, the Delegation
found that general hygiene conditions were acceptable, with minimal odour despite the
congestion. All interior and surrounding spaces appeared clean, and inmates showed no visible
signs of fatigue or suffering. However, there appeared to be a water shortage, leading inmates
to store water in their cells for use as needed. The prison operates a hospital with a range of
services, including triage, general practitioner consultations, nursing, inpatient and postoperative rooms, infectious diseases services, pharmacy, nutrition services, and a psychologist's
office. A doctor visits twice weekly, with emergency cases referred to the central hospital nearby.
The prison manages 368 inmates with HIV who are receiving treatment free of charge. The prison
kitchen provides three meals daily, with food largely sourced from the prison's own production,
including a fish production centre. Excess production supplies other prisons and, in some cases,
is sold to generate revenue for prison operations.
51. The prison operates a school providing education from first grade through secondary level,
following the national curriculum, with a capacity for 200 students and currently enrolling 136.
Graduates take national examinations and receive corresponding certificates. A vocational
training school offers instruction in general mechanics, sheet metal work, painting, welding,
carpentry, tailoring, and theoretical classes. The tailoring section produces traditional clothing for
inmates and police officers, though it does not provide external services. Inmates working in the
workshop are not paid, as they are considered apprentices.
Policing
52. The Delegation was informed that the Police Service has established Professional Updating
Centers to provide continuous training to its members on the humane treatment of arrested and
detained persons, in line with constitutional provisions and the Criminal Procedure and Evidence
Act. Police recruits undergo a comprehensive two-year training programme, which includes
dedicated modules on Human Rights, Elections, and Policing. Between 2022 and 2025, a total
of 1,775 Public Order Management training sessions were conducted.
53. On accountability mechanisms, the Police Service maintains registers of arrested and detained
persons, which are subject to inspection, and internal command structures carry out regular
compliance checks. "Complaints Against Police" desks have been established across all districts
and provinces. The Police Service is also accountable to independent oversight bodies, including
the Zimbabwe Anti-Corruption Commission and the Judiciary. The Delegation was informed that
the Government has recently established an Independent Complaint Mechanism in compliance
with constitutional provisions.
2.5 Access to Justice and the Rule of Law
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54. The Delegation held extensive meetings with the Prosecutor General, the Ministry of Justice,
Legal and Parliamentary Affairs, the Judicial Service Commission (JSC), the Law Society of
Zimbabwe, and CSOs on the state of access to justice and the rule of law in Zimbabwe. The
Delegation noted that the Constitution of Zimbabwe (2013) establishes the Judiciary as an
independent arm of the State under Chapter 8, with Section 164 affirming that courts are
independent and subject only to the Constitution and the law.
55. The Prosecutor General informed the Delegation that the National Prosecuting Authority adheres
to Section 56 of the Constitution, which provides that everyone is equal before the law, and
Section 69, which guarantees the right to a fair trial within a reasonable time. For serious
offences, those who cannot afford legal representation have such representation paid for by the
State. The Authority has decentralized its services to approximately seventy-two stations across
the country, and the State covers transport, food, and accommodation costs for witnesses.
56. The Delegation was informed that the JSC operates under Section 190 of the Constitution and
is chaired by the Chief Justice. The JSC's mandate is to promote an accountable and efficient
judiciary and to safeguard the rights of citizens and confidence in the judicial system. The JSC
has decentralized courts, with second courts providing periodic sittings in remote areas once or
twice a week, and is about to roll out mobile courts. The High Court, previously only in a few
provinces, is being decentralized.
57. The Delegation noted with appreciation that the JSC has rolled out an electronic case
management system in all courts, allowing litigants to file cases from home. For those without
internet, e-filing centres with officers ready to assist are available. The JSC has also established
access to information desks to assist vulnerable litigants. Courts have ramps for persons with
physical disabilities, sign language interpreters, and disability stickers to fast-track matters.
Victim-friendly systems allow children to testify in a different room without seeing the perpetrator.
58. The JSC also trains traditional leaders, who are part of the judiciary, every month to be bound
by judicial principles. The Delegation was informed that the JSC has recruited persons with
disabilities, including a visually impaired judge and a magistrate who uses a wheelchair,
demonstrating a commitment to inclusivity.
59. However, the Delegation identified several challenges affecting access to justice. The Prosecutor
General acknowledged that no legal instrument currently mandates legal representation for child
offenders, and mechanisms are being implemented on an ad hoc basis, resulting in inconsistent
protection across jurisdictions. The Minister of Justice acknowledged that the legal aid system is
being reviewed, and the Legal Aid Act is under revision.
60. The Delegation also noted concerns regarding the excessive reliance on pre-trial detention.
While the Prosecutor General stated that bail is granted to every accused person unless there
are motivating factors for denial, CSOs reported that many detainees remain in prolonged pretrial detention without timely access to legal assistance. The Delegation noted that the default
position for immigration offences remains a criminal procedure process, which may result in
unnecessary detention.
61. On the independence of the judiciary, the Minister of Justice defended the proposal in the
Constitution Amendment Bill for the direct appointment of judges by the President, with the
proposed amendment of the appointment process for judges by repealing subsections (3), (4),
(4a), and (5) of Section 180. However, under the 2013 Constitution, section 180(3)–(5)
established a transparent, merit-based appointment process, including:
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•
•
•
•
Public advertisement of vacancies
Public interviews conducted by the Judicial Service Commission (JSC)
Preparation of a shortlist of qualified candidates
The President is required to appoint from that shortlist
62. This framework is widely regarded as promoting transparency, accountability, and insulation
from political influence. Stakeholders, including the Law Society of Zimbabwe and ZHRC, have
expressed the view that the proposed amendments significantly weaken procedural
safeguards and reduce transparency in how judges are selected.
2.5.1 Constitutional Reform and Democratic Governance
63. During the Mission, the Delegation was informed of the ongoing constitutional review process
under the Constitution of Zimbabwe Amendment (No. 3) Bill, 2026. The Delegation
acknowledges and respects the sovereign right of the Republic of Zimbabwe to amend its
Constitution in accordance with its national laws and the procedures set out in Section 328 of the
Constitution, which requires a two-thirds majority in Parliament and, for certain amendments
affecting the Bill of Rights, a referendum. The Delegation recognizes that constitutional reform is
legitimate and that States Parties to the African Charter have the prerogative to evolve their
governance frameworks to respond to national needs.
64. The Bill introduces significant changes to Zimbabwe's constitutional architecture, including: the
introduction of a parliamentary method for electing the President, replacing direct presidential
elections; the extension of presidential and parliamentary terms from five to seven years; the
creation of a separate Zimbabwe Electoral Delimitation Commission, transferring delimitation
functions away from the Zimbabwe Electoral Commission; the transfer of voter registration and
maintenance of the voters' roll to the Registrar-General; the expansion of the Senate from eighty
to ninety members, with ten appointed by the President; the expansion of the Constitutional
Court's jurisdiction to hear matters raising arguable points of law of general public importance;
the amendment of the functions of the Defence Forces by deleting the words "to uphold this
Constitution" and substituting "in accordance with the Constitution"; the removal of the
requirement for the President to appoint the Prosecutor-General on the advice of the Judicial
Service Commission; the amendment of the appointment process for judges; the repeal of Part
4 of Chapter 12, which establishes the Zimbabwe Gender Commission; and the repeal of Part 6
of Chapter 12, which establishes the National Peace and Reconciliation Commission.
65. The Delegation notes with appreciation the proposed expansion of the Constitutional Court's
jurisdiction, which has the potential to enhance access to justice by allowing the Court to hear
matters of general public importance beyond purely constitutional questions. The creation of a
separate Zimbabwe Electoral Delimitation Commission addresses concerns about the
concentration of electoral functions in a single body and may promote good governance and
institutional integrity.
66. However, the Delegation heard concerns from stakeholders, including the Law Society of
Zimbabwe, the Zimbabwe Human Rights Commission (ZHRC), and CSOs, regarding the
inclusivity and transparency of the public consultation process. It was reported that during a
public meeting on 31 March 2026, participants were prevented from freely expressing their views,
with disruptions, chanting, and the confiscation of a lawyer's phone. The Delegation further heard
that the process has been described as not sufficiently inclusive, with some stakeholders feeling
that their views were not adequately considered.
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67. Stakeholders expressed concern about the arrest and raiding of the offices of lawyers and other
interested citizens for allegedly having expressed contrary and dissenting views on the
substance of the proposals in the Constitution Amendment Bill.
68. The Delegation notes that the ZHRC, in its legal analysis of the Amendment Bill, raised several
significant human rights concerns. The Delegation shares these concerns—for example, the
ZHRC found that the memorandum accompanying the Bill overstates the benefits of stability and
efficiency while understating the risks of reduced accountability. Extending presidential and
parliamentary terms weakens accountability by reducing opportunities for citizens to exercise
their right to regular participation in government, raising concerns under Article 25 of the
International Covenant on Civil and Political Rights (ICCPR) (periodic elections) and Article 3 of
the African Charter on Democracy, Elections and Governance (ACDEG).
69. On the transfer of voter registration functions from the Zimbabwe Electoral Commission (ZEC)
to the Registrar-General, the ZHRC noted that while the rationale of efficiency and custodianship
of records has merit, the negatives weigh heavily. The ZHRC observed that the Civil Registry
Department still has gaps regarding computerisation of its processes in some areas, and
registration of voters could impose an added burden on already constrained resources. The
ZHRC concluded that elections demand independence, transparency, and trust above all else,
and that efficiency without impartiality risks delegitimizing the entire electoral process.
70. On the parliamentary method for selecting the President, the ZHRC noted that removing the
electorate from directly voting for the President risks creating a democratic deficit, as citizens
lose a direct voice in choosing the head of state. This diminishes popular sovereignty and could
weaken public trust in institutions. Concentrating presidential selection within Parliament also
raises the danger of parliamentary capture, where dominant parties could control the presidency
without popular endorsement.
71. On the extension of presidential and parliamentary terms, the ZHRC highlighted that the Bill
creates an exception to the constitutional safeguards under section 328(7), allowing the
President to remain in office beyond the limits ordinarily imposed by constitutional amendment
procedures. The ZHRC concluded that this undermines the principle of constitutional supremacy
and the integrity of amendment safeguards, raising serious concerns about adherence to both
domestic constitutional standards and international norms that emphasize accountability and the
rule of law.
72. On senatorial appointments, the ZHRC noted that while the provision can strengthen the quality
of parliamentary deliberations by bringing in technical expertise, it also risks undermining the
independence of Parliament by increasing executive influence over the legislative branch. The
ZHRC further noted that the amendment may erode the prospects of gender parity, unless a
mandatory percentage is set aside for women.
73. On the Zimbabwe Electoral Delimitation Commission, the ZHRC observed that while the creation
of a separate commission has the potential to enhance transparency and institutional integrity,
its success depends on the robustness of its independence and the clarity of its mandate. Without
strong safeguards against politicization and duplication, the reform could inadvertently weaken
accountability and fragment electoral governance.
74. On judicial appointments, the ZHRC noted that removing the requirement for the President to
appoint judges from a list generated through public interviews risks undermining transparency
and meritocracy. The ZHRC concluded that the amendment risks eroding the safeguards of
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transparency, merit, equal accessibility, and independence that underpin constitutional
governance, and that strong procedural safeguards must accompany presidential discretion to
prevent the change from tilting the balance too far toward executive control.
75. On the redefinition of the Defence Forces' constitutional mandate, the ZHRC observed that the
removal of the phrase "to uphold this Constitution" may weaken the symbolic and normative
obligation of the Defence Forces to act as guardians of constitutionalism. "In accordance with
the Constitution" narrows their role to compliance with instructions, whereas "upholding"
suggests a proactive duty to defend constitutional values, including democracy and the rule of
law.
76. On traditional leaders and partisan politics, the ZHRC noted that while repealing section 281(2)
restores the political rights of traditional leaders, it simultaneously threatens the impartiality and
unifying role that chiefs are meant to play in society. The reform risks politicizing traditional
authority, undermining community trust, and eroding democratic fairness. The ZHRC
recommended that any Act of Parliament regulating traditional leaders must include strong
safeguards to preserve neutrality and prevent the abuse of traditional authority for partisan ends.
77. The Delegation also notes concerns raised regarding the extension of presidential and
parliamentary terms from five to seven years. While the extension was justified as necessary to
make up for time lost due to the COVID-19 pandemic and Cyclone Idai, some stakeholders
expressed concern about the absence of a referendum for this amendment, as it does not directly
affect the Bill of Rights. The ZHRC emphasized that because the tenure of the President is a
core constitutional matter, such a change requires approval through a referendum under section
328(7) of the Constitution
78. The Delegation also notes that the amendment of the functions of the Defence Forces to remove
the words "to uphold this Constitution" raises questions about the continued commitment to
constitutional supremacy, which is a foundational principle of democratic governance.
2.6 Transitional Justice and Reconciliation
79. The Delegation engaged extensively with the Ministry of Justice, Legal and Parliamentary Affairs,
the Ministry of Home Affairs and Cultural Heritage, and CSOs on the state of transitional justice
and reconciliation in Zimbabwe, particularly regarding the Gukurahundi atrocities that occurred
between 1983 and 1987.
80. The Minister noted that the Government has initiated an outreach programme in Matabeleland,
led by traditional chiefs under the National Council of Chiefs, to address the atrocities. He stated
that the outreach hearings are intended to provide a platform for victims to share their
experiences and for communities to begin the process of healing and reconciliation.
81. The Delegation was informed that the Government has described this as a culturally grounded
and victim-centred approach, recognizing that affected communities are more likely to engage
openly in truth-telling within safe, trusted spaces facilitated by traditional leadership. The process
is guided by the Community Engagement Outreach Programme Manual and Operational
Handbook. As of 5 January 2026, the programme is active under 73 Chiefs across Matabeleland
North and Matabeleland South, with implementation having moved beyond awareness and
sensitisation into a more structured phase focused on community hearings. Citizens have
participated broadly, with women making up the majority of participants, reflecting the uptake of
gender-sensitive measures such as dedicated forums and confidential interview arrangements.
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82. Regarding key issues such as truth-seeking, justice, reparations, and memorialisation, the
Government has indicated that the community-based consultations are intended not only for
truth-telling but also to ensure that the voices of those affected directly inform the outcomes of
the process. The Government has also taken steps to address challenges related to national
identity documents, with the Registrar General's Office, working in coordination with traditional
leadership structures, facilitating access to birth and death registration for affected individuals
and their descendants as an interim measure.
83. The Ministry of Home Affairs and Cultural Heritage further explained that outreach is conducted
through local chiefs, with communities holding meetings and targeted outreach to identified
places. An outreach was conducted in 2022. Everyone has been registered, and there are
waivers for statutory fees.
84. However, the Delegation noted that the National Peace and Reconciliation Commission (NPRC),
which previously held the constitutional mandate for conflict resolution, is no longer operational
as its term has expired. The proposed constitutional amendments under the Constitution of
Zimbabwe Amendment (No. 3) Bill, 2026, include the repeal of Part 6 of Chapter 12, which
establishes the National Peace and Reconciliation Commission, effectively removing this
institution from the constitutional architecture. This development raises significant concerns
about the future of transitional justice and reconciliation in Zimbabwe.
85. On reparations, the Delegation was informed that traditional chiefs are dealing with this issue,
with the matter described as sensitive. On reconciliation, the Minister of Justice stated that
reconciliation was effectively concluded through a political settlement, noting that Zimbabwe
celebrates Unity Day on 22 December each year, which commemorates the 1987 Unity Accord
between ZANU and ZAPU. He suggested that this political settlement represents a conclusion
of the reconciliation process.
86. The Delegation expressed concern that the proposed repeal of the NPRC and the
characterization of reconciliation as already concluded may prematurely close the door on
addressing the full scope of the Gukurahundi atrocities and the legitimate claims of victims. The
ongoing outreach programme and the active engagement of communities under 73 Chiefs
suggest that the process remains ongoing and that victims continue to seek truth, justice,
reparations, and memorialisation.
87. CSOs and victims' groups have continued to call for the release of the findings of the 1983
Commission of Inquiry, chaired by Justice Simplius Chihambakwe, which have never been made
public. They have also called for a comprehensive framework for reparations, truth, and
memorialisation, with meaningful participation of affected communities.
2.7 Freedom of Expression and Access to Information
88. The Delegation engaged with the Zimbabwe Media Commission, the Ministry of Home Affairs
and Cultural Heritage, journalists and Media Practitioners, the Law Society of Zimbabwe, and
CSOs on the state of freedom of expression and access to information in Zimbabwe. The
Delegation noted that the Constitution of Zimbabwe, under Section 61, guarantees freedom of
expression, including freedom of the press and freedom of artistic and academic expression.
Section 62 guarantees the right of access to information held by the State or by any institution
where such information is required in the interests of public accountability.
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89. The Delegation was informed that the Freedom of Information Act was enacted in 2020 to
guarantee access to public information and promote government transparency and
accountability. The Zimbabwe Media Commission, which is the country's constitutional regulator
of media, reported that it has conducted massive training targeting senior levels of management
to ensure compliance with the Act. As a result of that process, the Commission is seeing
improvement as orders are implemented. The central government is very supportive, and the
Ministry of Information has assisted where there have been challenges. Public awareness
campaigns have been conducted to educate citizens about their rights under the Act.
90. The Media Commission also reported that it has seen a high rate of appeals, and that government
institutions are showing compliance with directives to release information. The Commission
noted that this is one of the areas where Zimbabwe is doing well.
91. On public media and elections, the Media Commission trained approximately 1,500 journalists
in 2023 on their responsibility to enable citizens to make informed decisions. All public media in
that meeting signed a pledge to be responsible, and there were very few complaints.
Comparatively, the Commission noted that the situation is more positive, though it remains a
work in progress.
92. On harassment of journalists, the Media Commission reported that in 2023, it did not receive a
single complaint, which they attributed to training and awareness. The Commission also
conducted safety training for journalists and provided them with jackets for identification. The
Commission noted that there is a challenge where, if somebody doubts something that is not
related to a journalist's work, the report that comes out is that a journalist was arrested, but this
is not always accurate.
93. However, the Delegation heard concerns from CSOs and media practitioners regarding the
chilling effect of certain laws on freedom of expression. The Patriotic Act of 2023 (Criminal Law
Codification and Reform Amendment Act) was cited as a concern, although the Media
Commission noted that it has received no claims relating to it. The Delegation noted that in June
2025, the High Court struck down Section 22A(3) of the Act, which had criminalised participation
in meetings and discussions regarding sanctions against Zimbabwe, and that the case is pending
hearing before the Constitutional Court.
94. CSOs also raised concerns about the Maintenance of Peace and Order Act (MOPA) and insult
provisions under the Criminal Law (Codification and Reform) Act, which they argued have
enabled violations of freedom of expression. The Delegation was informed of recent incidents,
including the arrest of Tendai Biti, the assault and torture of Lovemore Madhuku, and the
persecution of Blessed Mhlanga, following statements made at an international forum, as
illustrative of these trends.
95. On digital rights, the Media Commission acknowledged that there is a significant challenge where
the right to freedom of expression is not accompanied by equal responsibility. There is an
alarming rate of digital rights violations. One of the challenges is that many digital platforms are
not managed in Zimbabwe, so the ability to regulate them is limited. The Delegation noted the
absence of a comprehensive legal framework to address technology-facilitated gender-based
violence, including AI-generated image abuse, deepfakes, and algorithmic stalking.
96. On self-censorship, CSOs reported that evidence of this phenomenon is inherently difficult to
quantify because journalists are not willing to express themselves openly for fear of reprisals.
The absence of documented cases does not indicate the absence of the problem; rather, it
reflects the chilling effect created by an environment where journalists anticipate negative
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consequences for exercising their freedom of expression. Self-censorship manifests in various
ways, including journalists avoiding coverage of sensitive topics such as corruption, political
dissent, governance failures, and human rights abuses.
97. On whistleblower protection, the Delegation was informed that there is currently no Whistleblower
and Witness Protection Law in place. The Chairperson of the Zimbabwe Anti-Corruption
Commission acknowledged that while a Whistleblowers and Witness Protection Bill will soon be
gazetted for its introduction to Parliament, the absence of such legislation leaves whistleblowers
vulnerable to retaliation and may deter individuals from coming forward with information about
corruption, environmental violations, and other wrongdoing. The Delegation notes that
whistleblowers play a critical role in exposing corruption and holding public and private actors
accountable, and that their protection is essential for the effective enjoyment of freedom of
expression and access to information.
98. The Delegation also noted concerns regarding equitable access to public media, particularly
during election periods. The Delegation learned that while the Broadcasting Regulations ensure
equity, and political parties and candidates sign a code of conduct, the national media were
criticized for biased coverage that favours the ruling party and limits visibility for dissenting
voices.
2.8 Civil Society and Human Rights Defenders
99. The Delegation held extensive meetings with representatives of CSOs, human rights defenders,
the Law Society of Zimbabwe, and media practitioners. The Delegation also received a
comprehensive briefing note from CSOs operating in Zimbabwe. The Delegation wishes to
acknowledge that CSOs in Zimbabwe are very well organised and that they welcomed the
Delegation in an organised and professional manner, demonstrating their commitment to
constructive engagement with the Commission.
100.
The Delegation noted that CSOs play an essential role in monitoring government
accountability, documenting rights violations, and educating citizens about their entitlements
under the Constitution and the African Charter and its related Protocols.
101.
The Delegation was informed that the Government of Zimbabwe has twenty-two
Memoranda of Understanding with CSOs, including the Law Society of Zimbabwe, as a formal
way of engaging civil society in legislative processes. The Ministry of Home Affairs reported that
it conducts top regulators' sessions where they meet with the umbrella NGOs body, the National
Association of Non-Governmental Organisations (NANGO), to ascertain issues affecting the
sector. The last meeting was in February 2025.
102.
However, the Delegation heard significant concerns from CSOs and human rights
defenders regarding the shrinking civic space in Zimbabwe. The Private Voluntary Organisations
Amendment Act (PVO Amendment Act), enacted in April 2025, was identified as a major
concern. The Act expands the definition of a PVO to include any legal person, legal arrangement,
body, or association of persons; provides for the designation of a "high-risk PVO" by the Minister;
requires full disclosure of beneficial ownership and all sources of funding for funds coming out of
the country; and dissuades PVOs from acting in a partisan manner by directing money to
favoured political parties or candidates.
103.
CSOs reported that the prohibition of political activity has a chilling effect on civil society,
with an overly broad definition. Even if registered, organizations can be deregistered in
accordance with national interest. The PVO amendment has put CSOs in the same block as
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other entities, including small community-based organisations that find it very difficult to meet the
stringent requirements for registration. However, CSOs acknowledged that there is some
progress because there is an appeal process, and the law is now broader. However, a case has
been filed to test the PVO Act in court.
104.
On practical challenges with the PVO Act, CSOs reported delays in the registration
process, with timelines for lodging applications and receiving feedback being lengthy. Small
community-based organizations working with limited funds are finding it difficult to satisfy the
requirement of having a minimum of seven board members.
105.
The Delegation also heard concerns regarding the arrest of human rights defenders. The
Law Society of Zimbabwe reported that human rights defenders continue to face criminalisation
and heightened attacks for exercising their fundamental freedoms, contributing to an increasingly
hostile and precarious operating environment. There has been a rise in dragnet arrests targeting
HRDs, often accompanied by violations of fair trial rights, including prolonged pre-trial detention.
For example, HRD Godfrey Karembera has been arbitrarily detained since his arrest on 20
October 2025, and his trial has not commenced.
106.
The Delegation was informed that the Government has not yet decided on adopting
specific legislation to protect human rights defenders, despite the Commission's
recommendation in its 2025 Concluding Observations on Zimbabwe's 16th Periodic Report. The
Minister of Justice expressed the view that all citizens should be afforded the same kind of
protection and that it is best to look at human rights protections holistically rather than creating
separate legislation for specific categories of rights defenders.
107.
Regarding women human rights defenders, the Delegation heard that they face genderspecific risks, including online abuse, harassment, and threats. The absence of a comprehensive
legal framework for the protection of human rights defenders exacerbates their vulnerability and
reflects non-compliance with regional standards.
108.
The Delegation also received a briefing on the National Artificial Intelligence Strategy
(2026-2030). While welcoming the Strategy as a forward-looking initiative, the briefing identified
critical gaps, including the absence of gender-responsive safeguards, risking the automation of
gender discrimination prohibited under the Maputo Protocol. The Strategy also omits protections
against technology-facilitated gender-based violence, including AI-generated image abuse,
deepfakes, and algorithmic stalking.
109.
On self-censorship, CSOs reported that evidence of this phenomenon is inherently
difficult to quantify because journalists are not willing to express themselves openly for fear of
reprisals. The absence of documented cases does not indicate the absence of the problem;
rather, it reflects the chilling effect created by an environment where journalists anticipate
negative consequences for exercising their freedom of expression.
2.9 Refugees, Asylum Seekers, IDPs, Stateless Persons, and Migrants
110.
The Delegation engaged with the Ministry of Home Affairs and Cultural Heritage, the
Ministry of Public Service, Labour and Social Welfare, the Legal Services Department, and CSOs
on the situation of refugees, asylum seekers, stateless persons, IDPs, and migrants in
Zimbabwe.
111.
The Delegation was informed that Zimbabwe is currently reviewing the Refugees Act
[Chapter 4:03], with principles having been approved and the draft Bill in the process of
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finalization. The Ministry of Home Affairs and Cultural Heritage explained that when Zimbabwe
ratified the 1951 Convention on the Status of Refugees, it made three reservations, including
access to social security for refugees. However, in practice, refugees have been given pathways
to move out of the settlement with approvals within the Ministry, and they have access to social
security services, including education and health. The revision of the Refugees Act is intended
to capture developments since 1983, and the revised Act will align with regional and international
standards.
112.
The Delegation was informed that steps are being taken to ensure that refugees and
asylum seekers in Zimbabwe are provided with a legal identity card. Refugees have access to
identity documents, with the only difference being that there is an "R" on their ID indicating
refugee status. They also have travel documents. The validity of refugee IDs has been extended
from two years to five years, reflecting a positive development.
113.
The Delegation heard that the following rights are guaranteed for all refugees and
asylum seekers: the right to work as an employee, health care, education, legal assistance, and
social protection services. The Government of Zimbabwe has the main responsibilities in
protecting the rights of refugees and asylum seekers and remains committed to ensuring these
rights are upheld in line with national legislation and international obligations.
114.
The Delegation was informed that Zimbabwe has moved from a "camp concept" to a
"settlement system" for refugees. This involves a mapping process, after which there will be wider
development of the settlement to ensure refugees have access to more land. The current camp
population is less than the capacity. Regardless of living in the Tongogara Refugee Camp,
refugees are allowed to move. They are given permission to work and can live anywhere they
are qualified. The authority to work is given by the Immigration Department following a provisional
acceptance of a job offer, and the Ministry of Home Affairs verifies the permit.
115.
On statelessness, the Delegation was informed that there is currently no official data on
stateless persons in Zimbabwe. However, the United Nations Refugee Agency (UNHCR)
estimates that approximately 300,000 individuals are at risk of statelessness. Research by
Amnesty International Zimbabwe indicates that many descendants of migrant workers from
neighbouring countries have become stateless, largely due to historical cross-border and labour
migration involving Mozambique, Zambia, South Africa, and Malawi. Changes in borders, laws,
and nationality provisions have left significant populations with unclear nationality status.
116.
The Ministry acknowledged that the 1961 Convention on the Reduction of Statelessness
has not yet been ratified. The Government is currently collecting data on statelessness in
collaboration with the Zimbabwe National Statistics Agency (ZIMSTAT). A desk survey has been
conducted, and the 2022 census data were analyzed for questions relating to statelessness. The
Government is working to analyze this data and will conduct a national survey. Following the
survey, the Government will be in a position to inform the ratification of the Convention. The
Delegation encouraged Zimbabwe to ratify the African Charter Protocol on the Right to
Nationality and the Eradication of Statelessness.
117.
It was reported that in 2024, the Zimbabwe Lawyers for Human Rights (ZLHR)
intervened in the case of two minor children, aged 10 and 12, who had been stateless and
undocumented since birth after the Registrar General withheld their birth certificates. The
Registrar General had demanded a disclaimer affidavit from their mother's estranged husband,
whose whereabouts were unknown, and DNA test results from their biological father to confirm
paternity.
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118.
On migrants and human trafficking, the Delegation was informed that Zimbabwe has an
Act on human trafficking. However, human trafficking is not easily decipherable, which is a
challenge for prosecution. Regarding smuggling, the Ministry is amending the Immigration Act
because it currently does not have provisions relating to the smuggling of persons. The
amendment is at an advanced stage.
119.
The Ministry of Home Affairs explained that standard procedures require that embassies
of migrants be informed before placing them in detention, to establish that the individuals are
from the country and to provide consular services to them. Regarding alternatives to detention,
the Ministry noted that the scope exists within the Immigration Act. Children are not detained;
they are referred to the Department of Social Welfare. The Ministry also has mechanisms for not
detaining irregular migrants, who may be placed on a temporary permit instead of detention and
are monitored. There is also an option of immediate removal back to their own jurisdiction.
120.
The Delegation was informed that illegal migration is treated as an administrative offence
under the Immigration Act, which allows the Government to impose certain prohibitions relating
to immigration offences. However, the default position when one commits an immigration offence
is that a criminal procedure process is followed. The Ministry is currently amending the Act to
introduce exclusion periods of varying durations, during which individuals convicted of
immigration offences may be prohibited from re-entering Zimbabwe.
121.
The Delegation was also informed that in November 2024, ZLHR secured a landmark
High Court judgment striking down unconstitutional provisions of the Immigration Act that
permitted immigration officers to detain immigrants for 14 days without judicial proceedings,
addressing violations of fair trial rights.
122.
On Internally Displaced Persons (IDPs), the Delegation noted that Zimbabwe has
internally displaced persons due to climate disasters, development projects, and drought.
Although Zimbabwe ratified the Kampala Convention (the African Union Convention for the
Protection and Assistance of Internally Displaced Persons in Africa) in 2013 and is part of the
Bureau of the Conference of States Parties, domestic implementation of the treaty remains slow,
leaving many IDPs with inadequate shelter and limited access to essential services. The Ministry
indicated that it would provide further information on achievements following ratification and on
policies formulated to find sustainable solutions for IDPs.
2.10 The Right to Participate Freely in Government
123.
The Delegation received detailed briefings from the Speaker of Parliament, the
Zimbabwe Electoral Commission, the Ministry of Justice, Legal and Parliamentary Affairs, and
CSOs on the right to participate freely in government in Zimbabwe.
124.
The Delegation was informed that Zimbabwe's Constitution guarantees the right to vote
and to be voted for under Section 58. The Zimbabwe Electoral Commission is the elections
management body established to prepare for and conduct elections in Zimbabwe. Its mandate
includes ensuring gender sensitivity and inclusion, establishing the Electoral Court for the
expeditious resolution of political disputes, and conducting voter education on electoral
procedures.
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125.
The Delegation was informed that multiparty liaison committees are formed immediately
after the nomination of candidates to discuss potential disputes. The Commission ensures
gender balance in the recruitment of electoral officers and ensures that polling stations are
accessible to persons with disabilities, including the use of ramps and braille systems for visually
impaired voters. The Commission trains staff who participate in elections and invites political
parties to the training. The Commission also engages through weekly radio programs.
126.
On access to media during elections, the Delegation was informed that the Broadcasting
Regulations ensure equity. Political parties and candidates sign a code of conduct and must
comply. The Media Commission trained approximately 1,500 journalists in 2023 on their
responsibility to enable citizens to make informed decisions. All public media signed a pledge to
be responsible, and there were very few complaints.
127.
The Speaker of Parliament informed the Delegation that Parliament receives petitions
under Section 141 of the Constitution, which provides that every citizen or resident has the right
to petition Parliament to improve existing legislation, enact new legislation, or, where necessary,
abolish legislation. Parliament has received such petitions, and the relevant portfolio committee
conducts public hearings to ascertain public views on the legislation, with the outcome tabled
before Parliament.
128.
The Delegation noted that Zimbabwe has held free and fair elections resulting in a
peaceful transfer of power, and an amendment to the electoral law specifies election dates, thus
ensuring predictability. However, opposition parties and civil society raised concerns about
partisan treatment of opposition Members of Parliament in the National Assembly, limited access
to the voter register, and the risk that diaspora voting initiatives could contravene residency
requirements
2.11 The Right to Employment
129.
The Delegation engaged with the Ministry of Public Service, Labour and Social Welfare,
the Ministry of Mines and Mining Development, and CSOs on the right to employment in
Zimbabwe.
130.
The Delegation was informed that Zimbabwe has a legal framework that protects the
right to employment, including the Constitution, the National Development Strategy 2 (2026–
2030), the Employment Act, and the Labour Amendment Act, which criminalizes sexual
harassment in the workplace. The Delegation was also informed of the establishment of a
National Consultative Committee on Employment with the responsibility of reviewing policies and
matters related to employment and ensuring that workers' rights are upheld.
131.
The Delegation was informed that the Government is working on developing the National
Formalisation Strategy and reviewing the National Employment Policy. The National
Employment Policy focuses on creating decent work, increasing employment levels, and shaping
labour market regulations, while the National Formalisation Strategy specifically targets moving
workers and enterprises from the informal to the formal economy.
132.
The Ministry of Public Service, Labour and Social Welfare reported that various special
employment programmes, such as reskilling and skills development programmes, are available,
allowing persons with disabilities, teenage mothers, and those following rehabilitation for
substance abuse an equal chance to gain employment and contribute to society.
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133.
The Representative from the Ministry of Youth Empowerment informed the Delegation
that in Zimbabwe, youths are those aged between 15 and 35 years. In terms of numbers, they
constitute 5.4 million, representing 33 percent of the national population. However, of those,
about 2.5 percent are not in education, not in training, and not employed—referred to as
discouraged youths. The Ministry's programs are aimed at helping them. The National
Empowerment Strategy is aimed at unlocking the potential of youths for national development,
and the youth economic empowerment pillar enables youth employment and entrepreneurship.
134.
The Government is also reviewing the 2020 to 2025 Youth Policy to ensure it is
consistent with the national youth agenda and other standards, including regional and
international frameworks. The Ministry is developing a Youth Bill at an advanced stage, which
will be subjected to a peer review process before submission to Cabinet. The Bill will address all
issues that deal with children's rights.
135.
However, the Delegation noted that Zimbabwe's economic instability, inflationary
pressures, and currency volatility continue to undermine employment opportunities, particularly
for youth and women. The Delegation was informed that youth unemployment and
underemployment remain significant concerns, driving migration and informal sector
participation.
136.
The Delegation also heard concerns regarding the working conditions of migrant
workers. The Ministry of Public Service, Labour and Social Welfare reported that Zimbabwe is
reliant on non-Zimbabwean workers to further the country's sustainable development agenda
and provide skills and expertise that are lacking. However, CSOs raised concerns about the
exploitation of migrant workers, including the confiscation of passports, unpaid wages, lack of
shelters for abused workers, and intimidation by employers to prevent complaints.
Section 2.12 The Right to Health
137.
The Delegation engaged with the Ministry of Health and Child Care, the Ministry of Public
Service, Labour and Social Welfare, and CSOs on the right to health in Zimbabwe. The
Delegation noted that the Constitution of Zimbabwe, under Section 76, provides that every citizen
and permanent resident has the right to access basic healthcare services, including reproductive
healthcare services, and that no person may be refused emergency medical treatment. The
Constitution also obliges the State to take reasonable legislative and other measures, within the
limits of available resources, to progressively realize the right to health.
138.
The Delegation was informed that the Government has developed a number of national
policies and institutional frameworks to support the delivery of healthcare services, including the
National Health Strategy, which aims to strengthen the health system by improving access to
essential health services, enhancing health infrastructure, and addressing key public health
challenges. The Public Health Act and related regulations provide the legal framework for
disease prevention, health promotion, and the regulation of public health services.
139.
The Ministry of Public Service, Labour and Social Welfare reported that the health
assistance programme promotes access to inclusive quality health care services for all
vulnerable members, as guided by the Social Welfare Assistance Act [Chapter 17:06]. Under this
programme, the Government pays health fees for vulnerable people, including orphaned and
vulnerable children, persons with disabilities, vulnerable adults, the chronically ill, and victims of
disasters. Payments are made through the Hospital Referral System, and beneficiaries are
issued with medical treatment vouchers known as the Assisted Medical Treatment Order (AMTO)
by the Department of Social Development.
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140.
The Delegation was informed that Zimbabwe has one of the largest HIV epidemics in
Southern Africa, although significant progress has been made in recent years in reducing
infection rates and expanding treatment. According to UNAIDS, the adult HIV prevalence rate in
Zimbabwe is estimated at around 11–12%, reflecting a substantial decline from the peak levels
recorded in the late 1990s and early 2000s. The epidemic continues to disproportionately affect
women, adolescent girls, and key populations, including sex workers and migrants.
141.
Zimbabwe's response to HIV has been widely recognized for its relatively strong
institutional framework. The National AIDS Council (NAC) coordinates the national response to
HIV and AIDS, supported by partnerships with international organizations such as UNAIDS,
PEPFAR, and the Global Fund. The country has expanded antiretroviral therapy (ART) coverage
significantly and adopted a "test and treat" approach, enabling individuals diagnosed with HIV to
begin treatment immediately. Prevention initiatives also include programs aimed at reducing
mother-to-child transmission, voluntary medical male circumcision, and community-based
awareness campaigns.
142.
The Delegation was also informed of the existence of the Communicable Disease
Control (CDC) Unit, which runs seven structured programmes, including HIV, Tuberculosis, viral
hepatitis, and harm-reduction schemes such as needle and syringe exchanges.
143.
However, the Delegation noted significant challenges affecting the realization of the
right to health. The Delegation was informed that the health system faces significant constraints,
including shortages of medical personnel, limited health infrastructure in rural areas, and periodic
shortages of medicines and equipment, which affect the availability and quality of services. The
Government continues to fall short of the 15% Abuja Declaration benchmark for health financing.
144.
CSOs reported that access to healthcare in detention facilities remains severely limited
and, in some cases, specifically restricted for human rights defenders. Prison clinics remain
under-resourced and are unable to meet both routine and specialised healthcare needs. In one
case, the High Court ordered authorities to urgently provide a prisoner with free surgical removal
of a lipoma, which he had endured for nearly a decade without adequate medical intervention.
145.
The Delegation also heard that recent industrial action by nurses has further disrupted
service delivery, reflecting broader systemic concerns regarding working conditions,
remuneration, and resource allocation. The withdrawal of key international support, including
from USAID, has exacerbated gaps in the provision of HIV/AIDS-related services, threatening
continuity of care for vulnerable populations. Moreover, access to healthcare for minorities
remains limited due to stigma, discrimination, and inadequate legal protections.
146.
The Delegation noted that while the Constitution recognizes the right to health, resource
constraints and economic challenges have hindered its full realization. The Minister of Justice
acknowledged that implementation challenges persist due to resource constraints, institutional
capacity limitations, and economic challenges.
2.13 The Right to Education
147.
The Delegation held extensive meetings with the Ministry of Primary and Secondary
Education, the Ministry of Youth Empowerment, and CSOs on the right to education in
Zimbabwe. The Delegation noted that the Constitution of Zimbabwe, under Section 75,
guarantees the right to education.
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148.
The Delegation was informed that the Education Act [Chapter 25:04] has undergone
significant amendments to align with the Constitution, including the explicit prohibition of
discrimination based on gender; the outlawing of corporal punishment; and the protection of
pregnant girls under Section 68C, which explicitly prohibits exclusion of pupils based on
pregnancy.
149.
The Permanent Secretary for Primary and Secondary Education presented statistical
data from the Education Management Information System (EMIS) 2024 and the 2025 Primary
and Secondary Education Statistics Report. It demonstrated that Zimbabwe's education system
serves a total of 4,671,149 pupils across Early Childhood Development (ECD), primary, and
secondary levels, achieving national gender parity with 50.2% female and 49.8% male
enrolment.
150.
The Delegation was informed that the Government has implemented several safety nets
to ensure no child is excluded from education due to financial constraints, including the Basic
Education Assistance Module (BEAM), which supports tuition and examination fees for
vulnerable learners targeting 1.5 million beneficiaries from 2023 to date, and the Grant-in-Aid of
Tuition, which benefits 119,704 learners in satellite schools, 651,961 learners in P3 schools, and
284,285 learners in S3 schools.
151.
The Delegation noted with appreciation that Zimbabwe has achieved national gender
parity in education enrolment, with girls outnumbering boys at the secondary level. The
Delegation also welcomed the provision of sanitary wear to address period poverty, the School
Feeding Programme, and the policy of ensuring schools within a five-kilometre radius to avoid
abuse.
152.
However, the Delegation identified significant challenges. The Net Intake Rate (NIR) for
Grade 1 stands at only 27.95%, meaning nearly 72% of children enter primary school at an age
older than the official entry age of six years. Over-age enrolment affects 70% of pupils in Grades
1-4 and 64.9% of Grade 7 pupils. The Net Intake Rate for Form 1 is only 22.6%, indicating that
the vast majority of pupils transition to secondary school after the official age of thirteen.
153.
Approximately 22.26% of secondary school pupils are classified as Orphans and
Vulnerable Children (OVC), with female OVC prevalence consistently higher than male at the
secondary level. Financial constraints remain the leading cause of dropout at the secondary
level, accounting for 37.35% of all dropouts. Marriage and pregnancy account for 23.78% of
female dropouts at the secondary level.
154.
Bullying is the most frequently reported incident at both the primary level (7,928 cases)
and secondary level (3,601 cases). Early marriage and pregnancy are significant issues reported
at the secondary level, with 2,381 and 2,125 cases, respectively.
155.
On school infrastructure, while 98.28% of primary schools have access to a water
source, only 45.69% treat their water. Electricity access remains a challenge, with 29.54% of
primary schools and 22.73% of secondary schools operating without electricity. At the primary
level, 22.88% of pupils lack seating, and 25.47% lack writing places. At the ECD level, 37.70%
of pupils lack writing places.
156.
On inclusive education, a total of 73,606 pupils were identified with functional difficulties,
with a steep drop-off at the secondary level, especially for those with severe impairments. The
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Inclusive Education Policy remains in draft form and has not yet been enacted. The training rate
for ECD teachers is only 81.75%, leaving a significant gap in early childhood development.
157.
Despite a female-majority teaching force, women hold only 36% of Head or Principal
posts in primary schools and only 20% in secondary schools.
158.
On the progressive realization of free education, the Permanent Secretary reaffirmed the
Government's commitment to fully implementing basic state-funded education from early
childhood development through to lower secondary levels, with a phased approach to extending
state-funded education to the upper secondary level once resources are secured.
Impact of Sanctions on the Enjoyment of Socio-Economic Rights
159.
During the Mission, the Delegation engaged with the Acting Minister of Foreign Affairs
and International Trade and other government representatives on the issue of sanctions imposed
on Zimbabwe. The government representatives expressed appreciation for the Commission's
adoption of Resolution ACHPR/Res.610 (LXXXI) 2024 on the Impact of Sanctions on the
Realisation of Human Rights in Zimbabwe, particularly on socio-economic rights. They argued
that the restrictive measures have severe impacts on the enjoyment of human rights by
Zimbabwean citizens, including access to healthcare, education, clean water, and adequate
housing, as well as on economic development and the realization of the right to development.
The Delegation noted that while the imposition of sanctions is a matter of international relations,
the humanitarian and socio-economic consequences on ordinary citizens merit attention. The
Delegation also observed that the impact of sanctions, combined with the country's existing
economic challenges, inflationary pressures, and currency volatility, continues to undermine the
full realization of economic, social, and cultural rights guaranteed under the African Charter.
2.14 The Rights of Women
160.
The Delegation held extensive meetings with the Minister of Women’s Affairs,
Community, Small and Medium Enterprises Development, the Zimbabwe Gender Commission,
the Ministry of Justice, Legal and Parliamentary Affairs, and CSOs on the rights of women in
Zimbabwe. The Delegation noted that the Constitution of Zimbabwe (2013) contains several
provisions aimed at advancing gender equality, including Section 56 on equality and nondiscrimination, Section 80 on women's rights, and Section 124 on the gender quota system in
Parliament.
161.
The Delegation was informed that Zimbabwe has made significant progress in
mainstreaming gender in leadership. The constitutional quota system reserving sixty seats for
women in Parliament, extended until 2033 under Constitutional Amendment Number 2 of 2022,
demonstrates a commitment to women's political participation. The National Gender Policy was
launched in 2025 and reviewed to align with regional and international instruments. There is also
a National Gender Coordination Framework aimed at strengthening gender coordination
structures across government.
162.
The Delegation was informed that the Ministry of Women's Affairs has established onestop centres for survivors of gender-based violence, which have proven effective in providing
comprehensive services. To reach remote areas, the Ministry has introduced mobile one-stop
centres. The Ministry operates across 1,935 wards with ward coordinators and business
developers, and across 10 provinces with provincial and district structures.
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163.
The Minister of Women's Affairs reported that the Government has signed a high-level
political compact to combat violence against women and girls. The Ministry works closely with
the Ministry of Primary and Secondary Education to ensure girls attend school, and with the
Ministry of Health to strengthen health services. The Government ensures that all ministries have
gender mainstreaming, with gender focal persons in each ministry who report on progress.
164.
On economic empowerment for women, the Minister of Women’s Affairs reported that
there are two government-owned banks: a microfinance bank targeting women who have no
collateral, providing them with collateral-free loans, and a commercial bank. The Ministry is also
responsible for economic cooperatives. The Government has provided machines to villages so
that communities can produce sanitary wear, creating local employment opportunities.
165.
The Delegation was informed that the Government has created a toll-free line for
reporting violations and has provided vehicles to officers to enable them to reach victims. The
President has provided vehicles to officers to enable them to reach victims.
166.
The Delegation was also informed that Zimbabwe is preparing for the third report on the
implementation of the Maputo Protocol.
167.
However, the Delegation identified several challenges affecting the rights of women. The
Minister acknowledged that one-stop centres are often donor-driven and that when donors
withdraw, challenges arise. The Government has not yet fully transitioned to sustainable
domestic funding for these critical services.
168.
Despite the constitutional quota for women in Parliament, women remain
underrepresented, especially at the local government level. Women constitute only
approximately 31% of the National Assembly, largely due to the 60-seat proportional
representation quota for women, and at the local government level, women account for
approximately 15–20% of local authority councillors.
169.
The Minister acknowledged that while the Domestic Violence Act exists, legislation must
be resourced for it to be implemented effectively, suggesting that resource constraints hinder
enforcement. The Minister also acknowledged that there have been no prosecutions for child
marriage, despite the constitutional prohibition.
170.
The Delegation was informed that the Government has not yet ratified the AUCEVAWG,
a critical regional instrument for addressing gender-based violence. The Minister indicated
support for signing the Convention.
171.
On the Maputo Protocol provisions on abortion in cases of incest and rape, the Minister
did not provide a direct response but noted the sensitivity of the issue.
172.
In conclusion, the Delegation noted that deeply entrenched cultural norms remain a
significant barrier to gender equality, indicating that legal and policy reforms have not yet
translated into widespread social change. The Minister acknowledged insufficient disaggregated
data, which hinders the development of evidence-based policies and the monitoring of progress
on women's rights.
Proposed Dissolution of the Zimbabwe Gender Commission
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173.
The Delegation was informed of the proposed dissolution of the Zimbabwe Gender
Commission under the Constitution of Zimbabwe Amendment (No. 3) Bill, 2026. The Bill
proposes the repeal of Part 4 of Chapter 12, which establishes the Zimbabwe Gender
Commission, and the transfer of its functions to the ZHRC.
174.
The Delegation notes that the Minister of Women's Affairs expressed her strong
opposition to the proposal, clarifying that she is against subsuming the Gender Commission into
the Zimbabwe Human Rights Commission. She indicated that she has formally submitted a
written opinion against the proposal, articulating her concerns and advocating for the retention
of a dedicated institution focused on women's rights and gender equality.
175.
The ZHRC, in its legal analysis of the Amendment Bill, also raised concerns about the
repeal of the Gender Commission. The ZHRC noted that while the reform could enhance
efficiency and coherence in human rights protection by consolidating functions under one body,
the negatives are significant. The ZHRC observed that the repeal risks diluting the visibility and
prioritization of gender issues. A dedicated Gender Commission ensures that gender equality
receives focused attention, specialized expertise, and targeted advocacy. Transferring these
functions to the ZHRC may result in gender concerns being overshadowed by broader human
rights agendas, particularly in contexts where resources are limited and competing priorities
exist.
176.
The ZHRC further noted that the loss of a specialized body could weaken monitoring of
gender-based discrimination, violence, and inequality, areas that require sustained and
specialized intervention. The ZHRC concluded that the move may be perceived as a step
backward in Zimbabwe's commitment to gender equality, undermining public confidence among
women's groups and civil society organizations that have relied on the Gender Commission as
a dedicated platform. The ZHRC emphasized that the success of this reform depends on whether
the ZHRC is adequately resourced, empowered, and mandated to prioritize gender issues within
its broader human rights framework.
177.
The Delegation shares the concern that subsuming the Gender Commission into the
ZHRC risks weakening the focused attention, specialized expertise, and dedicated advocacy
required to address the distinct and persistent challenges facing women and girls in Zimbabwe.
A dedicated gender institution serves as a critical accountability mechanism for the
implementation of the Maputo Protocol and sends a strong signal that women's rights are a
priority that cannot be subsumed into broader human rights frameworks without risk of dilution.
178.
The Delegation emphasizes that while resource constraints are a reality for all States,
the response should be to strengthen and adequately resource gender equality institutions, not
to dismantle them. The Delegation also notes that the ZHRC is already overwhelmed with
responding to a wide range of human rights issues while remaining chronically understaffed and
under-resourced.
179.
The Delegation also noted that the Zimbabwe Gender Commission currently has only
five sitting members out of a full complement of nine, as others have left after the end of their
tenure. The Gender Commission has a full staff complement of 115, comprising 54% female and
46% male, and has a presence in five out of ten provinces, to be present in all provinces.
180.
On violence against women in politics, the Gender Commission engages political parties
and aspiring candidates before elections, focusing on confidence building, rights awareness, and
responsible media reporting. The Cybersecurity Act serves as a shield against digital violence
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targeting women in politics. The Gender Commission also has a Gender Observatory, working
with Chapter 12 institutions to monitor women's participation in politics and decision-making.
2.15 The Rights of Children
181.
The Delegation held extensive meetings with the Ministry of Primary and Secondary
Education, the Ministry of Public Service, Labour and Social Welfare, the Ministry of Youth
Empowerment, the Ministry of Justice, Legal and Parliamentary Affairs, and CSOs on the rights
of children in Zimbabwe. The Delegation noted that the Constitution of Zimbabwe, under Section
81, guarantees the rights of children, including equal treatment before the law, protection from
economic and sexual exploitation, protection from maltreatment, neglect, or abuse, and access
to basic nutrition, healthcare services, shelter, and education. The Constitution also affirms that
the best interests of the child are paramount in every matter concerning the child.
182.
The Delegation was informed that Zimbabwe has adopted several legislative and policy
measures aimed at strengthening child protection. Key legislation includes the Children's Act
[Chapter 5:06], which regulates issues related to the care, protection, and welfare of children,
and the Education Act, which promotes access to education for all children. Zimbabwe is a State
Party to the United Nations Convention on the Rights of the Child (CRC) and the African Charter
on the Rights and Welfare of the Child (ACRWC).
183.
The Delegation was informed that the Government has established a National Case
Management System (NCMS) to identify, report, and respond to cases of child abuse. Efforts
include training social workers and frontline service providers, expanding psychosocial support
services, promoting girls' education in all rural areas, introducing gender-responsive early
detection and response to harmful practices, providing linkages to address child marriage, and
linking health and education to ensure comprehensive support for children.
184.
The Delegation was also informed that the Government has established a Children's
Parliament, a platform that gives children the opportunity to advocate for policy changes and
practices that affect their rights, and to influence policy. The Government has also introduced
structures in Parliament, such as the youth quota, with young parliamentarians who articulate
issues on children.
185.
On child marriage, the Delegation noted that the Constitutional Court ruled in 2016 that
marriage under the age of 18 is unconstitutional. However, the Delegation was informed that
child marriage remains a challenge in some communities, with socio-economic pressures,
cultural practices, and limited enforcement mechanisms continuing to contribute to its
persistence. The Minister of Women's Affairs acknowledged that there have been no
prosecutions for child marriage, despite the constitutional prohibition.
186.
The Delegation was informed that the Government has invested in a multi-sectoral
approach to address child marriage, working together with civil society and development
partners. An Action Plan to End Child Marriage exists, where CSOs and partners come together
to raise awareness against child marriages. There are compacts signed by churches, traditional
leaders, and development partners to roll out programs. There is also a campaign called "Not in
My Village," where chiefs say no to that common practice.
187.
On child labour, the Delegation was informed that child labour remains a concern in
Zimbabwe, particularly in sectors such as agriculture, artisanal mining, and informal trade, where
economic hardship pushes children into hazardous forms of work that interfere with their
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education and health. The Ministry of Primary and Secondary Education reported that there have
been reports from areas, especially in sugar plantations, where children are used for labour. The
Ministry is sensitizing heads of schools to ensure that children are not used for labour.
188.
On children in detention, the Delegation was informed that child offenders are detained
as a last resort and are always separated from adults. The Prosecutor General explained that
children below fourteen years are generally presumed incapable of committing offences, though
this presumption can be challenged in rare circumstances. The Minister of Justice acknowledged
that the minimum age of criminal responsibility remains fourteen years.
189.
The Delegation was informed that a recent High Court judgment mandates legal
representation for children in conflict with the law, and the National Prosecuting Authority has
engaged the Legal Aid Directorate to take up these matters. On legal aid for children, the Minister
of Justice confirmed that Zimbabwe is in the process of reviewing the Legal Aid Act. The objective
of the review is to ensure that the final result is fair and just for all children in conflict with the law.
190.
On children with disabilities, the Delegation was informed that a total of 73,606 pupils
were identified with functional difficulties, with a steep drop-off at the secondary level, especially
for those with severe impairments, indicating barriers to inclusive education and transition
support. The Inclusive Education Policy remains in draft form and has not yet been enacted.
191.
The Delegation also noted concerns regarding child-sensitive complaint mechanisms
and exposure to drug-related risks in certain communities. Stakeholders also pointed to
insufficient rehabilitation opportunities for children in conflict with the law, as juvenile facilities
remain under-resourced and limited in scope.
2.16 Persons with Disabilities
192.
The Delegation held meetings with the Ministry of Public Service, Labour and Social
Welfare, the Ministry of Justice, Legal and Parliamentary Affairs, the Judicial Service
Commission, and CSOs on the rights of persons with disabilities in Zimbabwe. The Delegation
noted that the Constitution of Zimbabwe, under Section 22, specifically addresses the rights of
persons with disabilities, requiring the State and all institutions to recognize their rights and take
measures to ensure accessibility, dignity, and equal participation in society.
193.
The Delegation was informed that Zimbabwe has enacted the Disabled Persons Act,
which provides that at least two percent of jobs should be given to persons with disabilities. The
Ministry of Finance provides incentives to employers who recruit persons with disabilities. A new
Persons with Disabilities Act was signed in 2025, repealing the outdated Disabled Persons Act.
The new Act expands the definition of persons with disabilities in line with international best
practices, introduces an inclusive approach to disability issues, and carries a human rights-based
approach to disability.
194.
The Delegation was informed that Zimbabwe is a State Party to the United Nations
Convention on the Rights of Persons with Disabilities (UNCRPD) and ratified the Protocol to the
African Charter on Human and Peoples' Rights on the Rights of Persons with Disabilities in Africa
in May 2024.
195.
The Delegation noted with appreciation that the Judicial Service Commission has
recruited persons with disabilities, including a visually impaired judge and a magistrate who uses
a wheelchair. Courts have ramps for persons with physical disabilities, sign language
interpreters, and disability stickers to fast-track matters.
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196.
The Ministry of Public Service, Labour and Social Welfare reported that areas of focus
under the new Persons with Disabilities Act include awareness raising, assistive technologies,
education and vocational training, fees, empowerment loans, institutional care grants, and
educational and vocational training fees. There is also a focus on multisectoral coordination in
disability affairs.
197.
However, the Delegation identified several challenges affecting the rights of persons with
disabilities. The Delegation was informed that a total of 73,606 pupils were identified with
functional difficulties, with a steep drop-off at the secondary level, especially for those with severe
impairments, indicating barriers to inclusive education and transition support.
198.
The Inclusive Education Policy remains in draft form and has not yet been enacted,
meaning teachers currently rely on handbooks without a binding legal framework. Access to
education for persons with disabilities remains uneven, particularly outside urban centres.
199.
The Delegation noted that while the Disabled Persons Act provides for a two percent
employment quota, enforcement mechanisms remain weak, and persons with disabilities
continue to face barriers to employment. The Minister of Justice noted that the Government is
working to strengthen enforcement.
200.
The Delegation also noted that the Marondera Female Open Correctional Institution
does not currently have specialized facilities or programmes for women with disabilities, including
those with visual impairments. It was acknowledged that the institution is working towards
ensuring inclusivity in the future.
201.
The Delegation observed that persons with disabilities face significant exclusion and
stigma. Accessibility challenges in transport, public buildings, and information systems remain
acute, limiting full participation in social and economic life. The pre-mission report noted that
children with disabilities face additional barriers, including stigma, limited access to inclusive
education, and inadequate specialized support services.
2.17 Older Persons
202.
The Delegation held meetings with the Ministry of Public Service, Labour and Social
Welfare, and CSOs on the rights of older persons in Zimbabwe. The Delegation noted that the
Constitution of Zimbabwe, under Section 82, recognizes the rights of older persons, affirming
their entitlement to reasonable care and assistance from their families and the State. The
Constitution further provides that older persons should receive protection from neglect and abuse
and should have access to social welfare and healthcare services necessary to ensure their wellbeing.
203.
The Delegation was informed that Zimbabwe ratified the Protocol to the African Charter
on Human and Peoples' Rights on the Rights of Older Persons in Africa in May 2024. The
Delegation welcomed this ratification as a demonstration of Zimbabwe's commitment to the
protection of older persons.
204.
The Delegation was informed that the Ministry administers a programme catering for
vulnerable and destitute older persons as provided for under the Older Persons Act [Chapter
17:11]. The Department has the mandate to offer social protection services to older persons who
are vulnerable, have no place to stay, have been neglected by relatives, or are unable to look
after themselves.
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205.
Under this programme, private Residential Care Homes which provide shelter for
vulnerable elderly persons are provided with administration grants paid once a year based on
the institution's carrying capacity, and per capita grants which are monthly maintenance
allowances for older persons in institutional care, paid at a rate of US$20 per person per month,
calculated based on the number of days an inmate spends under institutional care and paid at
the prevailing bank rate.
206.
The Delegation was informed that the Department also supports vulnerable older
persons in the community through various social safety nets, including the Cash Transfers
Programme, the Food Deficit Mitigation Strategy, and Health Assistance.
207.
However, the Delegation identified several challenges affecting the rights of older
persons. Many older persons in Zimbabwe experience economic vulnerability, particularly
because a large proportion of the population has historically worked in the informal sector, where
access to formal pension systems and social protection schemes is limited. As traditional family
support systems evolve due to urbanization and migration, some older persons face increased
isolation and limited access to regular care and income support.
208.
The Delegation was informed that the National Council for the Elderly was dissolved,
leaving a policy and institutional gap. The Delegation noted that without a dedicated institutional
framework, services remain dependent on political will and are vulnerable to shifting priorities.
209.
The Delegation noted that access to healthcare services for older persons remains a
challenge. The health system faces resource constraints, and specialized geriatric care services
are limited, making it difficult to adequately address the complex health needs associated with
ageing.
210.
The Delegation also noted the discrepancy between the Older Persons Act (defining
older persons as aged 65 and above) and the Constitution (defining older persons as aged 70
and above), which may create gaps in service delivery for persons aged 65 to 69.
2.18 Indigenous Populations and Minority Groups
211.
The Delegation held meetings with the Ministry of Justice, Legal and Parliamentary
Affairs, the Ministry of Primary and Secondary Education, the Ministry of Home Affairs and
Cultural Heritage, and CSOs on the situation of indigenous populations and minority groups in
Zimbabwe.
212.
The Delegation noted that the Constitution of Zimbabwe recognizes 16 official
languages, including Chewa, Chibarwe, English, Kalanga, Koisan, Nambya, Ndau, Ndebele,
Shangani, Shona, Sign Language, Sotho, Tonga, Tswana, Venda, and Xhosa. This constitutional
recognition reflects a commitment to linguistic diversity and cultural inclusion.
213.
The Ministry of Primary and Secondary Education reported that examinations for Grade
7 are offered in 9 languages, Ordinary Level in 8 languages, and Advanced Level in 5 languages.
There is a sign language dictionary. The Government has a phased and strategic approach, and
with time, the Government will be able to prepare examinations in all 16 languages.
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214.
However, the Delegation identified several challenges affecting indigenous and minority
communities. The Delegation noted that Zimbabwe does not formally recognize distinct
categories of indigenous peoples in its Constitution or national legislation. Several minority
communities with indigenous characteristics, including the San (Tshwao), Doma (Vadema),
Tonga, and Shangani peoples, have historically maintained unique cultural identities, languages,
and traditional livelihoods.
215.
The Minister of Justice offered a perspective that the notion of distinct indigenous
populations has been largely dismantled in Zimbabwe, stating that there is no "province of origin"
per se and that the demographic distribution of the population is no longer along tribal lines. The
Delegation noted that this perspective may overlook the unique vulnerabilities and
marginalization experienced by these communities.
216.
The Delegation was informed that communities such as the Tonga people were
historically displaced during the construction of the Kariba Dam in the 1950s, which led to longterm challenges related to land access, livelihoods, and infrastructure development in the
affected areas.
217.
On the right to education for minority groups, the Permanent Secretary for Primary and
Secondary Education stated that when dealing with education as the Government, they do not
look at minorities; it is education for all. The Delegation highlighted that while this approach is
inclusive in principle, the question is how intentional the Government is in ensuring that minorities
are encouraged to access education, particularly given the remote nature of their habitats.
218.
The Delegation noted that language barriers and cultural marginalization affect access
to education and public services. Although the Constitution recognizes 16 official languages, the
practical implementation of multilingual policies in schools and public institutions remains
uneven.
219.
The Delegation also noted that indigenous communities have raised concerns regarding
land rights, natural resource management, and participation in development projects, particularly
where mining, wildlife conservation, or infrastructure initiatives affect their traditional territories.
In some cases, communities report limited consultation or inadequate benefit-sharing from
development activities occurring in their areas.
2.19 Environment, Climate Change, and Extractive Industries
220.
The Delegation held extensive meetings with the Minister of Mines and Mining
Development, the Ministry of Environment, Climate and Wildlife, the Ministry of Home Affairs and
Cultural Heritage, the Zimbabwe Anti-Corruption Commission (ZACC), and CSOs on the
environment, climate change, and extractive industries in Zimbabwe.
221.
The Delegation noted that Zimbabwe is richly endowed with mineral resources, including
gold, platinum, diamonds, lithium, and coal, and that the mining sector plays a critical role in the
national economy. The Delegation also noted that the Constitution of Zimbabwe, under Section
73, guarantees every person the right to an environment that is not harmful to their health or
wellbeing and obliges the State to prevent ecological degradation and promote sustainable use
of natural resources.
222.
The Minister of Mines and Mining Development outlined the legal framework governing
the mining sector, including the Environmental Management Act (Chapter 20:27) of 2009 and
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the Mines and Minerals Bill, which is currently before Parliament for amendment. The Minister
acknowledged that the existing legal framework is outdated and does not adequately address
the complexities of modern mining operations. The amended legislation is expected to be
finalized before the end of the year.
223.
The Minister explained that before any mining activity commences, there is a mandatory
engagement process with the local community. Mining titles are issued only in areas identified
as having mineral potential, and the process begins with stakeholder consultations designed to
involve local communities and gather their views. The Ministry uses indigenous knowledge
systems to share information with investors and ensure an inclusive process. Traditional leaders
are included in the consultations.
224.
The Delegation was informed that, following stakeholder consultations, a Parliamentary
Agency under the Ministry of Environment issues an Environmental Impact Assessment (EIA)
confirming that the community was consulted. The Ministry of Mines also maintains an inspection
team that visits mining sites to verify compliance with the EIA requirements. Companies and
miners are required to present environmental and governance plans, as well as mine closure
plans, to the Government. The Ministry is currently introducing a cap-and-trade initiative to
ensure that companies emitting pollution comply with environmental standards.
225.
On corporate social responsibility, the Minister noted that the Corporate Social Policy
Bill mandates mining companies to present to the Government a framework for engagement with
the communities in which they operate. The Ministry is moving beyond corporate social
responsibility (CSR) to what they term "corporate social accountability," recognizing that some
companies mine and leave without properly closing sites or fulfilling their commitments.
226.
The Ministry has imposed employment quotas on mining companies, requiring them to
recruit a certain percentage of workers from the local community. This measure addresses the
practice of companies bringing employees from outside rather than hiring locally. The Ministry
has also established a Women's Desk where women can seek assistance and support in the
mining sector.
227.
On child labour in the mining sector, the Minister noted that there is legislation prohibiting
the employment of children below the age of 18. To ensure compliance, officials from the Ministry
of Mines, the Ministry of Environment, the Ministry of Home Affairs, and the Zimbabwe Republic
Police collaborate to monitor mining sites and ensure that children are not employed. The
Minister acknowledged that some miners hire refugee children, and the inter-ministerial approach
is intended to address this challenge.
228.
The Delegation was also informed that some companies in the mining sector fail to
comply with the National Employment Council's wage standards. The Ministry of Mines
acknowledged that a task team has been established to address abnormalities and make
recommendations, but enforcement remains a challenge.
229.
On corruption in the mining sector, the Chairperson of ZACC informed the Delegation
that the Commission maintains a significant interest in extractive industries and is empowered
by law to engage directly with the Ministry of Mines whenever irregularities are suspected,
including the authority to request explanations and access relevant information. The Chairperson
acknowledged that corruption remains prevalent in the mining industry, a reality that has
prompted Parliament to initiate amendments to the mining law. ZACC also highlighted concerns
regarding the conduct of certain traditional chiefs who have been implicated in the illegal sale of
communal land. The Chairperson noted that, to date, no chief has been convicted, as such
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transactions typically involve collusion between the chief and the purchaser, with both parties
mutually concealing the offence to avoid prosecution.
230.
On displacement and compensation, the Minister of Mines stated that he was not aware
of cases of forced displacement related to mining. However, he explained that if a mining title is
issued in an area where there are existing communities, the miners are required to propose how
they will compensate the affected people. The Ministry of Mines, together with the Ministry of
Local Government and the Ministry of Lands, identifies alternative land for relocation. The mining
company then funds the relocation and constructs better facilities, including social amenities such
as schools.
231.
The Minister acknowledged that enforcement remains a challenge, particularly in
communities where some individuals prefer not to report violations because they have been
bribed. To address this, the Ministry conducts environmental awareness campaigns to help
communities understand that environmental protection is not solely the Government's concern
but also their own. The issue of whistleblowers was raised, and the Minister noted that there is a
need to strengthen mechanisms for reporting non-compliant companies.
232.
On environmental damage, the Minister acknowledged that mining activities cause land
degradation, water body pollution, and air pollution. While no specific cases of water pollution
have been formally registered, the Minister did not dispute that pollution of water tables occurs.
The Ministry promised to obtain data on the impact of mining on deforestation from the Ministry
of Environment.
233.
The Minister identified several challenges facing the mining sector, including
environmental degradation, the exportation of raw minerals instead of local beneficiation, and
smuggling. He noted that there is a need to strengthen monitoring of mining activities to ensure
compliance with legal and regulatory standards.
234.
On climate change, the Delegation noted that Zimbabwe remains highly vulnerable to
climate change, with recurrent droughts, floods, and cyclones intensifying the vulnerability of
communities and ecosystems. Events such as Cyclone Idai in 2019 highlighted the
environmental and humanitarian impacts of extreme weather events and the need for
strengthened disaster preparedness and climate resilience measures.
235.
CSOs reported that communities living in areas where mining activities take place often
experience environmental degradation, land displacement, and limited access to the economic
benefits generated from resource extraction. Multinational corporations operating in extractive
industries have been reported to violate labour laws, including exposing workers to unsafe
conditions and exploitative practices. The Delegation was informed that in February 2026, a
Chinese mine owner was convicted for the murder of an artisanal miner in Zhombe.
236.
The Delegation also noted that weak and poorly enforced environmental laws have
exacerbated these challenges, creating regulatory gaps that hinder compliance and
accountability.
3.0 RECOMMENDATIONS
237.
Based on the findings of the Delegation, the Commission calls on the Government of
Zimbabwe to adopt the following recommendations in order to enhance the promotion and
protection of human rights in the country.
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Legislative and Other Measures to Implement the Provisions of the African Charter
238.
Ratify the outstanding international and regional human rights instruments, including the
CAT); the OPCAT; the International Convention for the Protection of All Persons from Enforced
Disappearance; the Second Optional Protocol to the International Covenant on Civil and Political
Rights; the Optional Protocol to the Convention on the Elimination of All Forms of Discrimination
against Women; the 1961 Convention on the Reduction of Statelessness; the Protocol to the
African Charter on the Establishment of an African Court on Human and Peoples' Rights; the
AUCEVAWG; and the Protocol to the African Charter on the Specific Aspects of the Right to a
Nationality and the Eradication of Statelessness in Africa.
239.
Expedite the gazetting and operationalization of the International Treaties Bill to bring
clarity and transparency to the treaty ratification and domestication process.
240.
Establish a dedicated committee on human rights and social affairs within the National
Assembly to strengthen parliamentary oversight of human rights issues.
241.
Provide adequate human and financial resources to oversight institutions, including the
Zimbabwe Human Rights Commission, the Zimbabwe Gender Commission, the Zimbabwe AntiCorruption Commission, and the Zimbabwe Media Commission, to enable them to fully discharge
their mandates.
242.
Establish a dedicated focal point within the Ministry of Justice for following up on the
implementation of the Commission's decisions on individual Communications.
The Right to Life
243.
Complete the compilation of the database of persons who were on death row prior to the
abolition of the death penalty and ensure that all former death row inmates have been
resentenced or released in accordance with the Death Penalty Abolition Act of 2024.
The Prohibition and Prevention of Torture
244.
Ratify the CAT and the Optional Protocol thereto (OPCAT) without further delay.
245.
Enact specific anti-torture legislation that explicitly criminalizes torture as a distinct
offence, in line with international standards and the prohibition of torture under Section 53 of the
Constitution.
246.
Strengthen the implementation of the Independent Complaint Mechanism to ensure it is
fully operational, adequately resourced, and empowered to conduct independent investigations
into allegations of police misconduct and excessive use of force.
247.
Incorporate the African Commission's Guidelines on the Policing of Assemblies (2017)
into training programmes for police officers, ensuring that officers are familiar with soft law
instruments on the use of force and the management of assemblies.
Prisons, Conditions of Detention, and Policing
248.
Expand the open prison model to additional regions to reduce overcrowding and promote
rehabilitation, and expedite the finalization and enactment of the Open Prison Guidelines as a
binding legal instrument.
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249.
Further develop and implement a comprehensive strategy to address prison
overcrowding, including expanded use of bail and pre-trial release, accelerated case processing
to reduce pre-trial detention, investment in prison infrastructure, strengthened alternatives to
imprisonment such as community service and open prisons, and increased budgetary allocations
for prison healthcare and rehabilitation programmes.
250.
Strengthen healthcare provision across all correctional facilities, ensuring that all
inmates have access to quality healthcare services, and fully equip the delivery room in the
Marondera clinic to handle deliveries.
251.
Develop specialized facilities and programmes for women with disabilities in detention,
ensuring inclusivity in rehabilitation and education.
252.
Incorporate the United Nations Guidelines on the Prevention of Pre-trial Detention in
Africa (the Luanda Guidelines) into the training curriculum for correctional and police officers.
253.
Ensure that the gender-responsive approach demonstrated at Marondera Female Open
Correctional Institution is replicated in all facilities housing women offenders, in alignment with
the United Nations Rules for the Treatment of Women Prisoners and Non-custodial Measures
for Women Offenders (the Bangkok Rules).
254.
Strengthen transitional support for inmates moving from closed prisons to open facilities,
including comprehensive pre-transfer assessments and post-transfer follow-up to ensure
successful adjustment.
255.
Strengthen accountability and transparency in policing, including through independent
investigation of deaths and abuses in custody.
256.
Ensure that the determination of the constitutionality of the tenth amendment is
concluded within a reasonable period and, pending that, institute measures that guarantee that
the deployment of armed forces to assist police is limited to exceptional circumstances.
257.
Provide continuous training on human rights standards, lawful use of force, and
implementation of the Luanda Guidelines and the Guidelines on the Policing of Assemblies for
all police and correctional officers.
Access to Justice and the Rule of Law
258.
Enact legislation mandating legal representation for all children in conflict with the law,
ensuring consistency across all provinces.
259.
Strengthen the legal aid system by increasing funding for the Legal Aid Directorate,
reviewing the Legal Aid Act to ensure fair remuneration for legal practitioners, and expanding
partnerships with law schools, the Law Society of Zimbabwe, and CSOs to ensure indigent
persons have effective access to legal representation.
260.
Reduce reliance on pre-trial detention by ensuring that bail is granted as a matter of rule,
and that remand is ordered only where there is clear evidence of flight risk, likelihood of
reoffending, or interference with investigations.
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261.
Strengthen the independence of the prosecuting authority by maintaining the
requirement for the President to appoint the Prosecutor-General on the advice of the Judicial
Service Commission.
262.
Ensure transparent and competitive appointment processes for judges, including public
interviews, to enhance public confidence in the judiciary, while respecting the constitutional
framework governing judicial appointments.
263.
Continue the decentralization of courts and the expansion of the electronic case
management system to all courts, ensuring that vulnerable groups, including persons with
disabilities, have equal access to justice.
Constitutional Reform and Democratic Governance
264.
The Delegation acknowledges and respects the sovereign right of the Republic of
Zimbabwe to amend its Constitution in accordance with its national laws and the procedures set
out in Section 328 of the Constitution. The Commission recognizes that constitutional reform is
a legitimate process in any democratic society and that States Parties to the African Charter have
the prerogative to evolve their governance frameworks to respond to national needs.
265.
In light of the above, and within the framework of the Commission's mandate under
Article 45 of the African Charter to promote human rights and provide advisory services to States
Parties, and taking into consideration concerns raised by stakeholders, the Delegation
recommends that any future constitutional amendment processes be conducted in a manner that
ensures more inclusivity, transparency, and genuine public participation, in line with Article 13 of
the African Charter on the right to participate in public affairs.
266.
Reconsider the transfer of voter registration functions from the ZEC to the RegistrarGeneral, as this risks compromising the independence and impartiality of the electoral process.
If the transfer proceeds, ensure that robust safeguards are put in place to prevent political
interference and that the Civil Registry Department is adequately resourced and computerised
to handle voter registration without compromising other civil registration functions.
267.
Ensure that the parliamentary method for selecting the President does not create a
democratic deficit by removing the direct voice of citizens in choosing the head of state. Any such
reform should be accompanied by mechanisms that preserve popular sovereignty and public
trust in the electoral system.
268.
Ensure that the expansion of the Senate through presidential appointments is
accompanied by clear, transparent criteria for selection, including mandatory provisions for
gender parity and proper minority representation.
269.
Regarding the proposed repeal of the National Peace and Reconciliation Commission,
the Delegation recommends that Zimbabwe ensure that any transitional justice mechanism
established to replace the NPRC is adequately resourced and empowered to address the
ongoing grievances of victims of the Gukurahundi atrocities.
270.
Reconsider the amendment to judicial appointments that removes public interviews and
the binding role of the JSC. If the amendment proceeds, ensure that strong procedural
safeguards accompany presidential discretion, including clear criteria for appointments, and
continued oversight by the JSC to preserve transparency, meritocracy, and judicial
independence.
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271.
Reconsider the amendment to allow traditional leaders to participate in politics. If the
amendment proceeds, take measures to ensure that any Act of Parliament regulating the conduct
of traditional leaders following the repeal of Section 281(2) includes strong safeguards to
preserve neutrality, protect community cohesion, and prevent the abuse of traditional authority
for partisan ends.
Transitional Justice and Reconciliation
272.
Revisit the reconciliation process to ensure it is inclusive, transparent, and victimcentered. The findings of the 1983 commission of inquiry, chaired by Justice Simplius
Chihambakwe, should be released, and a comprehensive framework for reparations, truth, and
memorialisation should be developed with meaningful participation of affected communities and
civil society organizations.
273.
Ensure that the ongoing outreach programme in Matabeleland, led by traditional chiefs
under the National Council of Chiefs, is conducted in a manner that allows for genuine truthtelling, healing, and accountability, and that victims and affected communities are informed of
the outcomes of the process.
274.
Establish a successor mechanism to the NPRC to oversee the implementation of
transitional justice recommendations, including reparations, and to ensure that the rights of
victims to truth, justice, and remedy are fully respected.
275.
Ensure that the proposed repeal of Part 6 of Chapter 12 of the Constitution, which
establishes the NPRC, does not result in a vacuum in the institutional framework for transitional
justice. Any new mechanism should be adequately resourced and empowered to carry out its
mandate effectively.
276.
Institutionalize human rights education in school curricula to promote awareness of the
country's history, the importance of accountability, and the prevention of future violations.
277.
Ensure transparency and political accountability in advancing reconciliation, including
dialogue among political actors and public access to records of past human rights violations,
where appropriate.
Freedom of Expression and Access to Information
278.
Review and amend the Patriotic Act of 2023 (Criminal Law Codification and Reform
Amendment Act) to align with constitutional guarantees of freedom of expression under Section
61 of the Constitution and Article 9 of the African Charter.
279.
Ensure that the implementation of the Freedom of Information Act (2020) is fully
enforced, with adequate resources allocated to the Zimbabwe Media Commission to monitor
compliance and address appeals.
280.
Guarantee pluralism and equitable access for opposition parties and independent voices
in national media, particularly during election periods, in line with Article 9 of the African Charter
and the African Commission's Declaration of Principles on Freedom of Expression in Africa.
281.
Enact the Whistleblowers and Witness Protection Bill without further delay to provide
robust legal protection for individuals who report corruption, human rights violations, and other
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wrongdoing, ensuring that whistleblowers are protected from retaliation and that witnesses are
safeguarded throughout judicial processes.
282.
Strengthen protections for journalists and address self-censorship by ensuring that
criminal laws that curtail freedom of expression are reviewed and aligned with constitutional
guarantees. Investigate and prosecute all allegations of harassment, intimidation, and arbitrary
arrest of journalists and media practitioners.
283.
Develop a comprehensive legal framework to address digital rights violations, including
technology-facilitated gender-based violence, AI-generated image abuse, deepfakes, and
algorithmic stalking, while respecting the right to freedom of expression. Amend the Cyber and
Data Protection Act (2021) to explicitly address these emerging forms of violence.
Civil Society and Human Rights Defenders
284.
Adopt specific legislation to protect human rights defenders, in accordance with the
Commission's recommendation in its Concluding Observations on Zimbabwe's 16th Periodic
Report (2019-2023), adopted during the 83rd Ordinary Session held in Banjul, The Gambia, from
2 to 22 May 2025. Such legislation should explicitly recognize the critical role of human rights
defenders and guarantee their protection from harassment, intimidation, and arbitrary arrest.
285.
Ensure that the implementation of the Private Voluntary Organisations Amendment Act
(PVO Amendment Act) does not unduly restrict the operational space of civil society
organizations. The Government should engage in regular dialogue with CSOs to address their
concerns regarding registration delays, the mandatory requirement of seven board members,
and the overly broad definition of prohibited political activity.
286.
Review the PVO Amendment Act to ensure that any restrictions on the operations of civil
society organizations are in strict compliance with the Constitution of Zimbabwe, particularly
Sections 58, 59, and 61, guaranteeing freedoms of assembly, association, and expression, and
with Zimbabwe's obligations under the African Charter.
287.
Allocate financial resources to support the work of civil society through transparent and
competitive funding mechanisms, while respecting their independence.
288.
Strengthen the legal and operational environment for civil society, ensuring that CSOs
and human rights defenders can operate free from intimidation, surveillance, and arbitrary arrest.
All allegations of harassment, intimidation, and arbitrary detention of human rights defenders
should be promptly investigated and prosecuted.
289.
Ensure that women human rights defenders are specifically protected from genderbased violence, online abuse, and harassment, and that mechanisms are in place to support
them in the exercise of their mandate.
Refugees, Asylum Seekers, IDPs, Stateless Persons, and Migrants
290.
Expedite the finalization and enactment of the revised Refugees Act, ensuring that the
new legislation aligns with regional and international standards and protects the rights of
refugees and asylum seekers, including the right to work, health care, education, legal
assistance, and social protection services.
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291.
Domesticate the 1951 Convention on the Status of Refugees and its 1967 Protocol into
national law, consider the possibility of lifting the reservations to enable full implementation, and
establish a national asylum mechanism to process claims in line with international standards.
292.
Continue efforts to empower refugees and promote their inclusion in socio-economic
systems, in particular through increased access to employment, education, and livelihood
opportunities, and by fully implementing the settlement scheme with access to land, in
accordance with Commission Resolution 565 (2023) on the Protection of Refugees, Asylum
Seekers, Internally Displaced Persons and Migrants in Africa.
293.
Expedite the data collection process on statelessness in collaboration with the
Zimbabwe National Statistics Agency (ZIMSTAT) and, following the completion of the national
survey, ratify the 1961 Convention on the Reduction of Statelessness and the Protocol to the
African Charter on Human and Peoples' Rights on the Specific Aspects of the Right to a
Nationality and the Eradication of Statelessness in Africa.
294.
Strengthen the civil registration system to ensure that all individuals, including those in
remote and marginalized communities, have access to identity documents and that no one is left
stateless due to administrative barriers.
295.
Strengthen the legal framework to combat human trafficking and smuggling, including
through the amendment of the Immigration Act to include specific provisions on the smuggling of
persons, and ensure that perpetrators are prosecuted.
296.
Continue to develop alternatives to detention for irregular migrants, including the use of
temporary permits and community-based monitoring, and ensure that children are never
detained for immigration offences.
297.
Strengthen monitoring of recruitment agencies and employers to prevent exploitation of
migrant workers, including document confiscation and non-payment of wages. Establish shelters
and legal aid mechanisms for migrant workers and trafficking victims.
298.
Fully implement the Kampala Convention by developing a comprehensive legal and
policy framework for the protection of IDPs, particularly those displaced by natural disasters,
development projects, and drought. Ensure that IDPs have access to adequate shelter, essential
services, and durable solutions.
The Right to Participate Freely in Government
299.
Strengthen parliamentary rules and practices to safeguard pluralism, foster constructive
dialogue, and uphold the principle of political neutrality within parliamentary institutions, ensuring
that opposition parties and independent voices are treated equitably.
300.
Continue to build on existing positive reforms, such as the amendment specifying
election dates, ensuring that future electoral processes remain free, fair, and credible, and that
the Zimbabwe Electoral Commission is adequately resourced to fulfill its mandate.
301.
Ensure that all eligible citizens, including those in the diaspora, have access to the voter
register and that any diaspora voting initiatives are implemented in a manner consistent with
constitutional and legal requirements, including residency provisions.
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302.
Strengthen access to the voter register for all political parties and CSOs to enhance
transparency and confidence in the electoral process.
303.
Ensure that public media provides equitable access and balanced coverage to all
political parties and candidates during election periods, in line with the Broadcasting Regulations
and the African Commission's Declaration of Principles on Freedom of Expression in Africa.
The Right to Employment
304.
Develop targeted policies and programmes aimed at reducing youth unemployment,
including expanded vocational training, apprenticeship frameworks, and support for youth
entrepreneurship, in line with the National Empowerment Strategy and the African Youth Charter.
305.
Enhance partnerships between the education sector and industries to align skills
development with labour market needs, particularly in science, technology, engineering, and
mathematics (STEM) fields.
306.
Strengthen monitoring and enforcement mechanisms to ensure that migrant workers
enjoy the same labour rights and protections as nationals, in line with international human rights
and labour standards, including the International Convention on the Protection of the Rights of
All Migrant Workers and Members of Their Families, which Zimbabwe has ratified.
307.
Increase labour inspections, particularly in high-risk sectors such as construction,
tourism, agriculture, and manufacturing, and ensure effective complaint and redress
mechanisms are available to all workers regardless of status.
308.
Finalize and enact the National Formalisation Strategy to move workers and enterprises
from the informal to the formal economy, ensuring that informal sector workers have access to
social protection and labour rights.
309.
Strengthen the enforcement of wage standards in all sectors, including mining, ensuring
that all companies comply with the National Employment Council's requirements and that
workers have access to effective remedies for wage violations.
310.
Ensure that special employment programmes, including reskilling and skills
development programmes, are adequately resourced and accessible to persons with disabilities,
teenage mothers, and those following rehabilitation for substance abuse.
The Right to Health
311.
Increase domestic financing for health to meet the 15% Abuja Declaration benchmark,
ensuring that public health facilities are adequately resourced with essential medicines,
equipment, and trained personnel, particularly in rural and marginalized communities.
312.
Strengthen access to healthcare for vulnerable groups, including persons with
disabilities, older persons, minorities, and key populations such as sex workers and migrants, by
addressing stigma, discrimination, and legal barriers to care.
313.
Expand targeted health services for key populations, including sex workers,
adolescents, inmates, and people living with HIV, ensuring stigma-free access to HIV, hepatitis,
tuberculosis, and reproductive health care.
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314.
Strengthen harm-reduction programmes, including needle and syringe exchanges and
methadone substitution therapy, to address drug-related health challenges and reduce the risk
of HIV and hepatitis transmission among people who inject drugs.
315.
Scale up interventions for non-communicable diseases (NCDs), including cancer,
cardiovascular conditions, diabetes, and mental health, through prevention, early detection, and
treatment programmes.
316.
Integrate health education into school curricula and community programmes to address
lifestyle-related risks, promote preventive care, and raise awareness of sexual and reproductive
health rights.
317.
Strengthen the capacity of prison health services to ensure that all detainees have
access to timely and quality healthcare, including mental health services, and facilitate referrals
to external medical facilities where necessary, in line with the Robben Island Guidelines.
318.
Address the shortages of medical personnel, particularly in rural areas, through
enhanced recruitment incentives, improved working conditions, and expanded training
programmes for health workers.
319.
Mitigate the impact of the withdrawal of international support, including from USAID, on
HIV/AIDS-related services by identifying alternative domestic and international funding sources
to ensure continuity of care for vulnerable populations.
The Right to Education
320.
Address systemic delays in access to education by implementing targeted interventions
to improve the Net Intake Rate for Grade 1 and Form 1, including community awareness
campaigns on the importance of timely enrolment and expanded access to early childhood
development programmes.
321.
Strengthen support for Orphans and Vulnerable Children (OVC), particularly adolescent
girls, through expanded coverage of the Basic Education Assistance Module (BEAM) and Grantin-Aid programmes, ensuring that financial constraints do not force vulnerable learners out of
school.
322.
Intensify efforts to address child marriage and pregnancy as barriers to girls' education,
including strengthened enforcement of laws prohibiting child marriage, expanded access to
comprehensive sexuality education, and enhanced support services for pregnant learners and
young mothers to facilitate re-entry and retention.
323.
Strengthen child protection mechanisms within schools to address bullying, which
remains the most frequently reported incident at both primary and secondary levels, through the
implementation of anti-bullying policies, training for teachers, and awareness campaigns for
learners.
324.
Improve water, sanitation, and hygiene (WASH) infrastructure in schools, including
increasing the proportion of schools that treat their water, reducing the distance to water sources,
eliminating pit latrines without slabs, and addressing rural-urban disparities in sanitation facilities.
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325.
Accelerate efforts to expand electricity access to schools, particularly in rural provinces,
through investments in grid extension, solarisation, and other renewable energy solutions to
improve the quality of learning.
326.
Strengthen inclusive education by addressing barriers that lead to the steep drop-off of
learners with disabilities at the secondary level, including improved accessibility, assistive
devices, teacher training on inclusive practices, and transition support programmes.
327.
Address the gap in Early Childhood Development (ECD) teacher training by expanding
training programmes to ensure that all ECD teachers are qualified, recognizing that early
childhood development is critical for foundational learning and long-term educational outcomes.
328.
Address the gender gap in educational leadership by implementing targeted measures
to support women's advancement to Head or Principal posts, including mentorship programmes,
leadership training, and policies that promote gender balance in school leadership.
329.
Address classroom and furniture shortages by increasing investment in infrastructure
and learning materials, particularly at the primary and ECD levels, where deficits are most
severe, to ensure that all learners have adequate seating and writing places.
330.
Address teacher shortages, particularly in science and mathematics, and in rural areas,
through enhanced recruitment incentives, improved working conditions, and targeted training
programmes. Mitigate the impact of brain drain by developing retention strategies for
experienced teachers.
331.
Expedite the enactment of the Inclusive Education Policy to provide a binding legal
framework for the rights of children with disabilities, and ensure that adequate resources are
allocated for accessible infrastructure, assistive devices, and teacher training on inclusive
practices.
332.
Continue and expand the School Feeding Programme, the provision of sanitary wear,
and the Guidance and Counselling module, which have proven effective in enhancing enrolment,
attendance, and retention.
333.
Invest in permanent educational infrastructure within prisons and detention facilities,
including the registration of prison schools, to ensure that children and young offenders have
consistent access to quality education and skills training as part of rehabilitation and
reintegration.
334.
Adopt targeted measures to ensure that indigenous and minority communities, including
the San, Doma, Tonga, and Shangani peoples, benefit from the education system, including
through mobile schools, boarding facilities, or transport support where remote habitats create
barriers to access.
Impact of Sanctions on the Enjoyment of Socio-Economic Rights
335.
Call upon the international community to consider the humanitarian and socio-economic
impact of sanctions on the civilian population of Zimbabwe, and to explore measures that would
alleviate the suffering of vulnerable groups while maintaining legitimate concerns related to
governance and accountability. Encourage the Government of Zimbabwe to continue its
diplomatic re-engagement efforts and to implement domestic economic reforms to mitigate the
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impact of sanctions on the enjoyment of human rights, in line with Commission Resolution
ACHPR/Res.610 (LXXXI) 2024
The Rights of Women
336.
Increase domestic funding for one-stop centres and other gender-based violence
response services, ensuring that these critical services are sustainable beyond donor cycles and
that mobile one-stop centres are expanded to reach all remote communities.
337.
Strengthen measures to increase women's representation at the local government level,
building on the constitutional quota for Parliament, and address barriers to women's political
participation, including online abuse and harassment.
338.
Allocate adequate resources for the implementation of the Domestic Violence Act
(Chapter 5:16), including funding for shelters, legal aid, and support services for survivors.
339.
Enforce laws against child marriage by investigating and prosecuting cases, and by
strengthening community awareness campaigns to shift cultural norms that perpetuate the
practice.
340.
Fully implement the Maputo Protocol, including its provisions on reproductive health and
access to safe abortion services for survivors of rape and incest, in line with the Protocol's
obligations.
341.
Invest in the collection and analysis of disaggregated data on gender-based violence,
women's economic empowerment, and other indicators of women's rights, to enable evidencebased policy formulation and monitoring of progress.
342.
Strengthen economic empowerment programmes for rural women, including expanding
access to microfinance, training, and markets, and ensuring that women in remote areas can
benefit from these programmes. Continue to support government-owned microfinance banks
providing collateral-free loans to women without collateral.
343.
Strengthen the response to the disproportionate impact of climate change on women
and girls, integrating gender considerations into climate adaptation and disaster risk reduction
strategies.
344.
Sign and ratify the AUCEVAWG, building on Zimbabwe's leadership in positive
masculinity and its commitment to combating gender-based violence.
345.
Address the teacher shortage in STEM subjects, particularly in rural areas, through
enhanced recruitment incentives, training programmes, and retention strategies, to ensure that
girls have access to quality STEM education.
346.
Strengthen support for women in detention, including lactating mothers, by ensuring that
all detention facilities have adequate facilities for women, including separate accommodation,
healthcare, and programmes for mothers with young children.
347.
Strengthen collaboration between the Ministry of Women's Affairs and other ministries,
including Justice, Health, and Education, to ensure a coordinated approach to gender equality
and women's rights.
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348.
Address the impact of sanctions on women entrepreneurs through targeted support
programmes, including access to finance, markets, and technical assistance.
349.
Enact mandatory gender and human rights impact assessments pre-deployment for all
public AI systems, to prevent the automation of gender discrimination.
350.
Establish an independent AI oversight mechanism with gender expertise, auditing
powers, and complaint-handling powers, and ensure gender parity in the proposed Zimbabwe AI
Regulatory Authority (ZAIRA).
351.
Guarantee women's equal and meaningful participation in AI governance bodies and
funding opportunities, including allocating at least 50% of AI innovation funding to women-led
enterprises, supported by measures addressing systemic barriers women face in establishing
these enterprises.
On the proposed Dissolution of the Gender Rights Commission
352.
Reconsider the proposed dissolution of the Zimbabwe Gender Commission under the
Constitution of Zimbabwe Amendment (No. 3) Bill, 2026, recognizing the importance of a
dedicated institution focused on women's rights and gender equality. If resource constraints are
a concern, the Government should explore options for strengthening the Commission's capacity
rather than dissolving it.
353.
If the transfer of the Gender Commission's functions to the ZHRC)proceeds, ensure that
the ZHRC is adequately resourced, empowered, and mandated to prioritize gender issues within
its broader human rights framework. Specific safeguards must be put in place to ensure that
gender equality remains a central focus and is not overshadowed by other human rights
agendas.
354.
Ensure that the ZHRC receives adequate funding, staffing, and technical support to
effectively absorb the functions of the Gender Commission, including the monitoring of genderbased discrimination, violence, and inequality, and the implementation of the Maputo Protocol.
355.
Establish a dedicated gender unit or directorate within the ZHRC with specialized
expertise and a clear mandate to address women's rights and gender equality, ensuring that the
loss of a dedicated Commission does not result in the dilution of gender-focused advocacy and
monitoring.
356.
Ensure that any decision to dissolve the Gender Commission is preceded by broad
public consultation, particularly with women's groups and CSOs that have relied on the
Commission as a dedicated platform for gender equality advocacy.
The Rights of Children
357.
Strengthen the implementation of the 2016 Constitutional Court decision declaring child
marriage unlawful by ensuring consistent enforcement of the Marriage Act penalties, including
the five-year imprisonment provision, and expanding community-level awareness programmes
to address cultural practices that perpetuate child marriage.
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358.
Intensify efforts to combat child labour through enhanced enforcement of labour laws,
targeted interventions in sectors where child labour is prevalent, such as agriculture and artisanal
mining, and expanded support programmes to address the economic drivers that push children
into hazardous work.
359.
Ensure that the Legal Aid Act review results in fair and just treatment for all children.
360.
Strengthen the National Case Management System (NCMS) to identify, report, and
respond to cases of child abuse, ensuring that adequate resources are allocated for training
social workers and frontline service providers, expanding psychosocial support services, and
linking health and education to ensure comprehensive support for children.
361.
Expand child-sensitive complaint mechanisms and ensure that children have access to
safe and confidential reporting channels for abuse, exploitation, and violence.
362.
Strengthen rehabilitation opportunities for children in conflict with the law, ensuring that
juvenile facilities are adequately resourced and that children have access to education,
vocational training, and reintegration support.
363.
Enhance age-appropriate sexual and reproductive health education in schools to
address adolescent pregnancy, child marriage, and exposure to drug-related risks.
364.
Strengthen the Children's Parliament as a platform for children to advocate for policy
changes affecting their rights, and ensure that children's voices are integrated into decisionmaking processes at all levels.
365.
Ensure that children with disabilities have access to inclusive education by expediting
the enactment of the Inclusive Education Policy, providing specialized equipment and reasonable
accommodations in schools, and training teachers on inclusive practices.
366.
Address the exposure of children to drug-related risks through community-based
prevention programmes, awareness campaigns, and support services for affected families.
Persons with Disabilities
367.
Fully implement the new Persons with Disabilities Act (2025) by developing a
comprehensive implementation plan, including clear targets, timelines, budget allocations, and
monitoring mechanisms, with meaningful participation of organizations of persons with
disabilities.
368.
Ensure that the two percent employment quota for persons with disabilities is effectively
enforced, with sanctions for non-compliance and incentives for employers who recruit persons
with disabilities.
369.
Strengthen inclusive education by expediting the enactment of the Inclusive Education
Policy and ensuring that all schools have accessible infrastructure, assistive devices, and trained
teachers to support learners with disabilities.
370.
Develop specialized facilities and programmes for women with disabilities in detention,
ensuring inclusivity in rehabilitation and education, and ensure that the Marondera Female Open
Correctional Institution develops programmes for women with visual impairments and other
disabilities.
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371.
Ensure that all public buildings, transport systems, and information services are
accessible to persons with disabilities, in line with the UN Convention on the Rights of Persons
with Disabilities (UNCRPD) and the Protocol to the African Charter on the Rights of Persons with
Disabilities.
372.
Strengthen data collection and monitoring mechanisms on disability issues, including
disaggregated data on the situation of persons with disabilities in all areas of life, to enable
evidence-based policy formulation and monitoring of progress under the new Act.
373.
Conduct sustained awareness campaigns to combat stigma and discrimination against
persons with disabilities, promoting inclusion and equal participation in all aspects of society.
374.
Ensure that the Judicial Service Commission's accessibility measures, including ramps,
sign language interpreters, and disability stickers to fast-track matters, are replicated across all
courts in the country.
Older Persons
375.
Align the definition of older persons in the Older Persons Act [Chapter 17:11] with the
constitutional definition (70 years and above) to ensure consistency and clarity in service delivery
for persons aged 65 to 69.
376.
Adopt a dedicated law on the rights of older persons, in alignment with the Protocol to
the African Charter on Human and Peoples' Rights on the Rights of Older Persons in Africa,
which Zimbabwe ratified in May 2024. The law should establish enforceable entitlements,
sustainable budget allocations, and institutional accountability.
377.
Strengthen social protection programmes for older persons, including the Cash
Transfers Programme, the Food Deficit Mitigation Strategy, and Health Assistance, ensuring that
these programmes reach the most vulnerable older persons, particularly those in rural areas and
the informal sector.
378.
Improve access to healthcare for older persons by expanding specialized geriatric care
services, training healthcare workers on the specific health needs of older persons, and ensuring
that essential medicines are available and affordable.
379.
Expand community-based care options for older persons, including day centres and
home-based care, to reduce over-reliance on residential facilities and enable older persons to
age with dignity in their communities.
380.
Strengthen the per capita grant system for older persons in institutional care, ensuring
that the US$20 per person per month allowance is regularly reviewed and adjusted to reflect the
cost of living.
Indigenous Populations and Minority Groups
381.
Adopt specific measures to address the vulnerabilities of indigenous and minority
communities, including the San (Tshwao), Doma (Vadema), Tonga, and Shangani peoples, by
ensuring equitable access to healthcare, education, and basic public services.
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382.
Strengthen the practical implementation of the constitutional recognition of 16 official
languages by ensuring that multilingual policies are effectively implemented in schools, public
institutions, and government services, including through the provision of interpretation and
translation services.
383.
Ensure that minority communities are consulted on matters affecting their rights, cultural
heritage, and traditional livelihoods, and that their free, prior, and informed consent is obtained
for development projects affecting their lands and resources.
384.
Address the historical marginalization of communities such as the Tonga people, who
were displaced during the construction of the Kariba Dam, by ensuring that they have access to
land, livelihoods, and infrastructure development.
385.
Strengthen the protection of indigenous knowledge systems and cultural heritage,
ensuring that minority communities benefit from the use of their traditional knowledge and cultural
expressions.
386.
Continue to uphold and strengthen legal and policy frameworks that guarantee the
protection of the rights of all minority groups, in line with constitutional and international human
rights obligations, including the African Charter.
Environment, Climate Change, and Extractive Industries
387.
Expedite the finalization and enactment of the revised Mines and Minerals Bill, ensuring
that the new legislation is fully aligned with international human rights standards and includes
robust provisions for environmental protection, community consultation, and corporate
accountability.
388.
Strengthen enforcement mechanisms in the mining sector, including enhanced
monitoring, inspection, and prosecution of companies that violate environmental and governance
standards, and ensure that penalties are sufficiently deterrent.
389.
Establish a transparent and independent mechanism for receiving and investigating
complaints related to forced displacement, environmental damage, and violations of community
rights, with a clear process for remedy and compensation.
390.
Strengthen monitoring of water quality and environmental impacts, including the
establishment of a publicly accessible database on environmental compliance and pollution
incidents.
391.
Intensify efforts to combat child labour in artisanal mining through targeted interventions,
including community awareness campaigns, enhanced enforcement of labour laws, and the
provision of alternative livelihoods for families engaged in child labour.
392.
Strengthen enforcement of wage standards in the mining sector, ensuring that all
companies comply with the National Employment Council's requirements and that workers have
access to effective remedies for wage violations.
393.
Promote local beneficiation of minerals to maximize the economic benefits of
Zimbabwe's natural resources and reduce the exportation of raw minerals, creating jobs and
supporting local economic development.
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394.
Strengthen coordination between the Ministry of Mines, the Ministry of Environment, the
Ministry of Lands, and other relevant agencies to ensure a holistic approach to environmental
management and land use planning.
395.
Enact the Whistleblowers and Witness Protection Bill without further delay to provide
robust legal protection for those who report environmental violations, corruption in the extractive
sector, and other wrongdoing.
396.
Enhance data collection and public reporting on environmental impacts, including
deforestation, water pollution, and land degradation, to enable evidence-based decision-making
and public accountability.
397.
Strengthen the participation of indigenous and minority communities in decision-making
processes related to mining, ensuring that their rights and traditional livelihoods are protected,
and that their free, prior, and informed consent is obtained for projects affecting their lands.
398.
Expand community engagement and awareness campaigns to ensure that communities
understand their rights and are empowered to report violations without fear of retaliation.
399.
Strengthen the legal and regulatory framework for environmental protection, including
the Environmental Management Act (Chapter 20:27) of 2009, to address gaps that have allowed
companies to operate without adequate environmental safeguards.
400.
Ensure that Environmental Impact Assessments (EIAs) are conducted independently,
transparently, and with meaningful community participation, and that the results are made
publicly available.
401.
Strengthen the capacity of the Environmental Management Agency (EMA) to monitor
compliance with environmental standards, investigate violations, and impose sanctions on noncompliant companies.
402.
Integrate human rights and environmental impact assessments into all major
development projects, including mining, infrastructure, and tourism projects, with particular
attention to vulnerable ecosystems and communities.
403.
Develop and implement a national climate change adaptation and resilience strategy
that addresses the disproportionate impact of climate change on vulnerable communities,
including women, children, and rural populations.
404.
Strengthen disaster preparedness and response mechanisms to address the increasing
frequency of extreme weather events, including cyclones, floods, and droughts, building on
lessons learned from Cyclone Idai in 2019.
405.
Advance Zimbabwe's interests in global climate policy forums to secure financial and
technical support for adaptation and resilience, including through the Green Climate Fund and
other international mechanisms.
To Other Stakeholders
In addition, the Commission calls on the Zimbabwe Human Rights Commission, the Zimbabwe Gender
Commission, the Zimbabwe Anti-Corruption Commission, the Zimbabwe Media Commission, the
Zimbabwe Electoral Commission, the Judicial Service Commission, the Law Society of Zimbabwe, CSOs,
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Media Practitioners, development partners, and the United Nations Country Team to continue their vital
efforts in supporting the promotion and protection of human rights in Zimbabwe. Although the
Commission could not meet with the United Nations Country Team due to time constraints, it
acknowledges their important work in the country and encourages them to remain engaged in supporting
human rights initiatives. The Commission urges these stakeholders to provide all necessary support,
technical assistance, and collaboration to the Government in the implementation of the recommendations
contained in this report.
The Commission further encourages CSOs and human rights defenders to continue their essential work
in monitoring government accountability, documenting rights violations, and educating citizens about their
entitlements under the Constitution and the African Charter. The Commission also calls on development
partners and international organizations to provide technical and financial support to strengthen the
capacity of National Human Rights Institutions and CSOs, while respecting their independence.
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ANNEXES:
•
•
Annex 1: Mission Program
Annex 2: List of Participants
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