Villagers cry foul over new levy

Villagers in Zimbabwe's rural areas have accused local authorities of squeezing impoverished households following the introduction of a controversial per-capita development levy that is now mandatory for every rural resident, including infants.

Previously, the levy was charged on a per-household basis, with landowners paying a single fee on behalf of their families. However, late last year, residents say they were caught off guard by a shift to a per-individual payment system, regardless of age.

Under the new arrangement, rural district councils are charging between US$1 and US$5 per person. Villagers argue that the model is unrealistic in communities characterised by large families, widespread poverty and limited income-generating opportunities.

"This means a household with 10 children is now expected to pay more than US$20," said one villager, who requested anonymity for fear of victimisation. "They are even demanding money for new-born babies. Children born on January 1 this year are expected to pay the levy."

Residents allege that enforcement of the levy has been heavy-handed, with village heads and councillors accused of intimidating households into paying. Some villagers claim local leaders are incentivised by commissions linked to collections.

"They move door-to-door demanding proof of payment," said another resident. "If you fail to pay, you are threatened with being reported or denied access to community services or benefits such as food aid and agricultural inputs. With climate change affecting our harvests, it's very difficult to raise that money as we rely on farming to survive."

The levy has triggered resistance in some districts. In Chikomba, the Rural District Council began collecting the per-capita levy last year amid objections from traditional leaders. One chief from the area, who also spoke on condition of anonymity, said he barred village heads under his jurisdiction from collecting the levy, describing it as exploitative.

"It is unheard of that local authorities would extract money from impoverished villagers," the chief said. "People are struggling to survive. Many rural dwellers are elderly and are caring for grandchildren whose parents have migrated in search of work. They simply cannot afford such levies."

Local authorities, however, insist the levy is lawful and grounded in government policy. Council officials say they are implementing the per-capita system in line with section 96 of the Rural District Councils Act.

While section 96 empowers councils to impose development-related levies, it distinguishes between a land development levy and a development levy. A land development levy is assessed according to the Third Schedule of the Act or, if directed by the minister, in the same manner as a rate. In contrast, a development levy may be assessed at a per-capita rate fixed by council, subject to ministerial approval, and allows councils to set different rates for different classes of heads of households.

In Bikita, the Rural District Council is relying on a March 2024 directive from then Local Government permanent secretary John Basera, which instructed councils to comply with section 96 of the Act. Bikita RDC chief executive officer Arnold Tapiwa Mutuke said the council's actions were guided by the conditions attached to its 2024 budget approval.

"If you check the 2024 budget approval letter, bullet point number two specifies the legal instrument every local authority is supposed to follow," Mutuke said. "That section clearly states that the development levy is charged per capita."

Critics, however, argue that while the law permits per-capita assessment, it does not clearly outline how such levies should be enforced, particularly with regard to charging minors and using traditional leaders as collection agents.

The Association of Rural District Councils of Zimbabwe (ARDCZ) has acknowledged confusion around the levy, saying its interpretation varies widely across districts. ARDCZ secretary-general Matsilele said the definition of a development levy is often shaped by local practice rather than uniform policy.

"In most areas, the levy is collected by village heads and, in the local language, it is referred to as mari yemusoro [loosely meaning household levy]," Matsilele said. "A village head may therefore interpret it as a levy required per individual."

He added that charges range from US$1 to US$5, depending on the revenue needs of each council. "We need to sit down as local authorities and agree on a common position," Matsilele said. "This issue should be prioritised as we begin this year's meetings."

Villagers say beyond the financial strain, the levy has failed to deliver tangible development in their communities.

"We are paying more, but nothing is changing," said one resident. "There are no proper roads, no clinics and no clean water. We don't understand why we are paying for development that we are not seeing."