ACKNOWLEDGEMENT

We would like to express our gratitude for the invaluable participation and assistance provided
by Accountability Lab Zimbabwe's (ALZ) Civic Action Team (CivActs) in conducting
comprehensive surveys in partnership with National Association of Youth Organisations
(NAYO) in Chitungwiza. Your dedication and efforts have been instrumental in initiating
conversations and contributing to advocacy efforts in arresting drug use among the youth.

Furthermore, we would like to extend our appreciation to the Zimbabwe Civil Liberties and
Drug Network and Youth Empowerment and Transformation Trust for partnering with us in
convening a policy dialogue with key government agencies and stakeholders. The policy
dialogue provided invaluable policy input that has shaped this note.

Our gratitude also goes to the CSOs Working Group consisting of various civil society
organizations (CSOs) namely YETT, Amandla Centre of Zimbabwe, WeLead Trust, Anti-Drug
Abuse Forum, Abangane Trust, Youth Invest, Zimbabwe Civil Liberties and Drug Network and
the Vendors Initiative for Social and Economic Transformation, with whom we have been able
to collect community views, collectively reflect on the subject in the development of this
paper. The collective strength and expertise brought forth by this collaboration hold great
potential for effecting positive change.

We are also indebted to the following stakeholders, the United Nations Resident Coordinator’s
Office (UNRCO), Parliament of Zimbabwe, and the Ministry of Public Service, Labour And
Social Welfare, whose presentations at the policy dialogue provided invaluable input in
unpacking global and local initiatives to curb drug use among the youth.
 SUMMARY

Despite the classification of drug and substance abuse in Zimbabwe as a matter of national
disaster, instances of drug and substance abuse are on the rise in Zimbabwe and set to stay on this
trajectory till 2030. The Zimbabwe Government’s resolve in addressing Drugs and Substance
Abuse, as seen through laws, regulations, and a National Drug Master Plan, is commendable.

Accountability Lab through its Civic Action Teams (CivActs) identified community concerns and
recommendations on alleviating the challenges around Drugs and Substance Abuse. It also
conducted hearings with different government officials, and parliament on the In Harare. These
conversations and research processes showed that there are some policy and action gaps and
room for better policy implementation, strengthening, and closer alignment between policy and
practice. In the main, this paper is motivated by the fact that Zimbabwe leads the sub-Saharan
Africa region in terms of increases in Drug and Substance Abuse, this paper offers the following:

Formalizing the Declaration of a National Systematic and speedy implementation of

Disaster on Drugs and Substance Abuse in the Zimbabwe National Drug Master Plan
Zimbabwe through a Statutory Instrument in (ZNDMP) as well as increasing public
terms of section 27(2) of the Civil Protection awareness on this instrument and all other
Act Chapter 10:06. existing plans and programmes designed and
underway to curb DSA.
Development and implementation of a
National Monitoring System that increases A shift in response from a heavily legalistic
public access to information on the nature and approach towards a public health,
extent of Drugs and Substance Abuse (DSA) in accountability, and human-centred approach
Zimbabwe and which also reports on that increases the uptake of treatment services
government progress in addressing the and promotes healthy social living, especially
problem. among the youth. This entails a dial-down on
the criminalisation of some elements of drug
Strengthening existing laws, primarily the and substance abuse in the country's various
Dangerous Drugs Act and the Criminal Code, laws to ease the challenges and increase the
to allow section 155 of the latter to address chances of young people seeking help when
contemporary drugs and substance abuse. they suffer from Substance Use Disorders
(SUDs).[1]
 LAY OF THE LAND ON DRUGS AND SUBSTANCE
ABUSE IN ZIMBABWE

1.1 Global and Sub-Saharan Africa Drug Abuse Statistics

SUB-SAHARAN
GLOBAL AFRICA Over the last 20 years, there has been a 40%
40
increase in drugs and substance abuse worldwide
30
20
Sub-Saharan Africa is projected to experience an
10 additional 40% increase by 2023
0
Rise in substance abuse over the years

1.2 Drug Abuse situation in Zimbabwe: the percentage of young people involved in heavy
episodic drinking and the proportion of patients admitted for drug and substance abuse-
related issues in mental health institutions

Prevalence and Impact:Zimbabwe has the highest number of 15-19-year-olds in Sub-Saharan Africa who
engage in heavy episodic drinking

AMONG MEN AMONG WOMEN patients in mental health

institutions are admitted for drug
and substance abuse-related
problems in Zimbabwe.

The ZNDMP provides a

comprehensive and integrated
approach to tackle substance abuse
in the country.

President Mnangagwa
instigated the development of 1.3 Efforts to address drug abuse in
the ZNDMP and TRGASUD
through an interministerial Zimbabwe: Government Initiatives
Committee
The TRGASUD ZIM focuses on
infrastructure development, support
groups, and patient care.
Figure 1 below shows neighbouring countries that have emerged as new sources of drug
trafficking and the drugs that have proliferated into Zimbabwe from its neighbouring
countries:

DRUGS AND SUBSTANCE ABUSE AND

THE YOUTH IN ZIMBABWE
The plan establishes a coordinated, Consequently, these factors render young
inclusive, and holistic response to drug use people vulnerable to abuse and exploitation
challenges in Zimbabwe and pursues three by unscrupulous politicians who can
broad objectives: to (a) reduce demand, (b) manipulate them into perpetrating violence
reduce harm/harm reduction, and (c) reduce during election time.[i]
supply.[i] Adolescents and youth involved in drug
and substance abuse are more prone to
The plan notes that adolescents and young engage in violent behaviours such as gang
adults account for the largest share of those violence, gender-based violence (GBV),
using drugs and that young people are also intimate partner violence, self-harm and
the most vulnerable to the long-term suicide.[ii]
adverse effects of drugs and substance
abuse.[ii] The Zimbabwe Human Rights There is a close connection between drug
Commission notes that youths in Zimbabwe abuse, criminal behaviour, and social
are a high-risk group due to demoralisation attitudes, particularly - apathetic
regarding their future. behaviours
 [Link] Public Access to Information on
where citizens are divorced from national the nature and extent of substance use.
and community processes. Drug users There is insufficient public information on
may be associated with higher levels of the character and scope of the crisis, which,
apathy and anhedonia.[i]Apathy in part, is due to a lack of a national
contradicts the intentions of the National monitoring system for substance use in the
Development Strategy 1, which aims to country. Section 62 of the Constitution
increase youth participation in decision ensures that individuals and organisations
making and development processes from are entitled to access information
3.3% in 2020 to 25% by 2025.[ii] maintained by the State to the extent that
such access is necessary and serves the
public interest in accountability, protection
ZIMBABWE'S of other rights, and correction of personal
information. Available reports on the
CHALLENGES IN substance use disorder crisis in Zimbabwe
ADDRESSING DRUG primarily rely on anecdotal evidence.

AND SUBSTANCE ii. The Slow Implementation of the ZNDMP

ABUSE and the TRGASUD.
While Zimbabwe has "talked the talk" on The slow pace of implementation has left
addressing Drug and Substance Abuse two significant problems unaddressed:
and attempted to "walk the walk" a. (1) Limited Specialist Treatment
through laws, policies, and intentions to Facilities: The Ministry of Health and Child
curb the proliferation and escalation of Care estimates current mental health
drug and substance abuse, several key facilities’ holding capacity at only 5000
challenges have the potential to patients at a given time.[i]Figure 2. Below is
undermine the government's efforts. the distribution of state-owned Mental
These include: Health Institutions in Zimbabwe in 2023:
B. Public health specialists' recruitment and retention remain limited. There are capacity gaps in mental
health treatment facilities, which can undermine the potential for treatment facilities to transform into
treatment centres that are rights-responsive. For example,

Mental Health Professionals in Zimbabwe

State of Mental Health Professionals in Zimbabwe

1,000
800 917
600
400
200
0
17 6 13 10

s
s

s
ts

rs
st
se

st
ris

ke
gi

pi
ur

at

or
lo

ra
N

hi

ho

he
lth

yc

yc

al

lT
ea

Ps

ci
Ps

na
So
lH

tio
al
ta

al
ic

pa
en

ic
in

in

cu
Cl
M

Cl

Oc
ed
er
st
gi

NB: Clinical Psychologists’ density is 0.04 per 100,000 population

Re

Psychiatrists’ density: 0.1 per 100,000 population

Government Sector Support:

Impact of Shortage:
- Strong focus on training
- Need to recruit and retain mental health
health workers
professionals
- Ambiguity in recruiting
- Increase numbers in available training
psychiatrists and specialists
programs
for drug and substance abuse
treatment

WHO's Observations:
- Training has resumed, but recruitment
of psychiatrists is lacking
- 2022 statistics: Patient-to-Staff Ratio:
- Psychiatrists: 18 (0.1 per 100,000 - Across all disciplines
population) - High ratio
- Psychologists in public hospitals: 6 emphasizes the need
(0.04 per 100,000 population) for more
- Specialist psychiatric nurses: 917 professionals
(6.5 per 100,000 population)

Sources: Zimbabwe National Disability and Mainstream Programme

(ZNDMP) and World Health Organization (WHO) Report
 iii. Inadequacies in Legislation.
The law plays a significant role in fostering Drug peddlers are released on minor
accountability among citizens, government, technicalities because existing laws do not name
and private players. As a result, the law's new types of drugs on the market. In the case of
weaknesses can undermine accountability, Prince Samuriwo and Humphrey Banda, caught
increasing the risks of infringements on the in possession of 83 grams of crystal meth, their
rights of the same: lawyer argued that:".... crystal meth is not a
a. Existing legislation on drugs and substance scheduled drug..." The Samuriwo and Banda
abuse in Zimbabwe does not adequately case exposed gaps and weaknesses in the
address challenges related to drugs and current legislation addressing drug and
substance abuse. Zimbabwean drug laws do substance abuse; the inadequacies of the law
not adequately address issues surrounding and its limitations to secure conviction are
drug use or misuse – particularly concerning apparent in terms of section 70(k) of the
prevention and treatment.[i] Constitution which directs that no person can be
convicted of an act of omission that was not an
b. The Dangerous Drugs Act (Chapter 15:02) offence when it took place.
and the Criminal Law (Codification and
Reform) Act (Chapter 9:23) have not stayed up iv. Limited funding for Drug and Substance
to date with the current thinking on ways of Abuse Responses and Plans.
mitigating drug and substance abuse. Similar Government funding allocated to fighting drug
sentiments are shared in the National Strategic and substance abuse is commendable but
Plan on Mental Health Services (2019 – 2023). inadequate.

2. LACK OF COORDINATION:
- Funding distributed to Ministry
of Health and Child Welfare and
Zimbabwe Youth Council
- No coordination framework for
implementation 3. ECONOMIC SUSCEPTIBILITY:
- Risks of unachieved targets - Budget specified in local
currency
- Vulnerable to economic
shocks, such as inflation

Challenges and
Funding Deficit in
1. GOVERNMENT FUNDING:
- Amount allocated: Mental Health
ZW$500 million (US$1.4 Treatment in
million) Zimbabwe
- Clustered in different 4. WHO'S FORECASTED EXPENDITURE:
ministries and agencies - US$124.5 million for
treating alcohol and
substance use disorders
over 20 years
- Average annual spending
5. CURRENT BUDGET ALLOCATIONS: requirement: US$6.2 million
- Annual deficit: $4.8 million

Sources: President's Announcement in 2023

and World Health Organization (WHO) Report
 RECOMMENDATIONS: 2. Developing and Adopting a National
Monitoring System.
The monitoring system should provide
The criminalisation of drug and substance
accurate and timely information on progress
abuse makes it difficult for young people to
(conforming to accountability norms) toward
seek help when they suffer from the adverse
realising the goals set in the ZNDMP and
effects of drug and substance abuse.[i]
implementing related policy statements. The
Similarly, cross-cutting issues such as
creation of a National Monitoring System is
corruption require a holistic approach to deter
also in line with the broad objective of the
public officials and law enforcement agencies
National Strategic Plan for Mental Health
from undermining efforts to address the
Services in Zimbabwe, which advances the
scourge.
need for the formation of a mental health
research database compiling all research
We believe that the following measures will
done on mental health issues nationally and
address some shortcomings in policy and
coordination of relevant national studies on
action regarding the demand and supply side of
pertinent mental health issues.
drug and substance abuse in Zimbabwe:

3. Raising awareness on the ZNDMP,

GOVERNMENT TRGSUD, and existing laws and initiatives.
Stakeholders, should raise public awareness
1. Declaring a National State of Disaster of these critical documents. Public awareness
on Drugs and Substance Abuse. will increase both citizens' and stakeholders’
In conjunction with ongoing efforts to publicly enthusiasm and support, stimulating agency
acknowledge the gravity of Drug and (individual and collective), action, and
Substance Abuse in Zimbabwe, the President mobilisation of resources.
should formalise the declaration a national
state of disaster in terms of section 27 (2) of 4. Improve Public Access to Information
the Civil Protection Act Chapter on Progress in Implementing the ZNDMP
10:06. This is an executive order and the TRGSUD.
that will . Ensuring that the public is kept abreast of
activate the government plans and progress in curbing
disaster Drug and Substance Abuse, as well as
response and constructing more treatment facilities and
recovery training and recruiting of staff, will be a
mechanisms of fundamental step forward in initiating a public
the State putting health-informed response to this issue. The
into motion government should also provide publicly
emergency accessible information on its progress in
operations that meeting the goals set out in the ZNDMP and
will galvanise the Treatment and Rehabilitation Guidelines
both the state of Alcohol and Substance Use Disorder of
and non-state Zimbabwe. This information should also
actors to allocate include progress reports on the construction
resources and of recreational facilities and how the
mobilise efforts government is addressing problems related to
towards the adequate staffing and training of
addressing the specialist mental health professionals.
national scourge.
 LEGISLATORS CITIZENS AND NON-STATE
/POLICYMAKERS ACTORS

Civil Society Monitoring Framework.

The Civil Society Working Group on Drugs and
Substance Abuse will monitor the design and
Review and Strengthening of Existing implementation of policies, review of legislation,
Legislation. Legislators should consider and government plans in curbing drug and
prioritising the review and strengthening of the substance abuse. CSO monitoring framework
Dangerous Drugs Act (Chapter 15:02) and the will include budget monitoring and
Criminal Law (Codification and Reform) Act assessments for efforts designed to curb drug
(Chapter 9:23) in line with international and substance abuse using a rights-based lens.
standards and conventions by ensuring that The following are ways that CSOs can enhance
legislation is human-centred, even for those efforts at addressing Drugs and Substance
arrested. Abuse:

1. Psychosocial Support. CSOs should provide

This should include more recent drugs such as psychosocial support assisting those
methamphetamine (guka/mutoriro or dombo). struggling with substance abuse and
The ambiguity arising from Schedule II of the encouraging treatment uptake and referrals
Dangerous Drugs Act with regards to the to rehabilitation and or treatment centres.
scientific debate on what constitutes CSOs should also train community social
methamphetamine and workers and community support groups in
methylenedioxymethamphetamine (MDMA) and ethical psychotherapy.[i]
the interpretation that the former is not a listed 2. Awareness Raising and Social Education.
dangerous drug as it is distinct from the latter Citizens, particularly the youth, should be
should be addressed to expressly include engaged in peer education campaigns to
crystal meth and remove the undesired educate their peers on the dangers
technical leeway that offenders take advantage associated with drug and substance abuse.
of to be freed during apprehension and Non-state actors can also assist in designing
prosecution conducted by officers of the law. public awareness campaigns and partner
with the government and other players.
[Link] Participation in Legislative Review
Processes. Non-state actors, including civil
society, should endeavour to promote and
mobilise the lobbying and participation of citizens
in the review of the Dangerous Drugs Act, the
Criminal Code, and other related laws.
 ENDNOTES

[1] United Nations Office on Drugs and Crime. World Drug

Report [Internet]. 2021 [cited 11 May 2022]. Available from: [12] National development Strategy 1: January 2021 to
[Link] December 2025, Available at
pdf [Link]
Accessed on 28 October 2023.
[2] B.N., Marandure, Understanding the Nature of Substance
Use in Zimbabwe: State of Art and Ways Forward: A Scoping [13] Ministry of Health and Child Care, National Strategic Plan
Review Protocol, 2023 published in the National Library of for Mental Health Services, 2019 -2023, Available at:
Medicine, Available at: [Link]
[Link] 06/Zimbabwe%20Mental%20Health%20Strategic%20Plan%2
Accessed on 27 October 2023 02019%20to%[Link]?sequence=1&isAllowed=y

[3] ZIMFACT, Factsheet: Zim Battles Rising Drug Abuse, [14] Ministry of Health and Child Care, National Strategic Plan
Available at: [Link] for Mental Health Services, 2019 -2023, Available at:
rising-drug-abuse-problem/ [Link]
06/Zimbabwe%20Mental%20Health%20Strategic%20Plan%2
[4] Zimbabwe Civil Liberties and Drugs Network, Exploratory 02019%20to%[Link]?sequence=1&isAllowed=y
Study on Prevalence, Challenges and HIV Prevention Among
People who Inject Drugs in Mbare, Harare, Available on [15] W. Mangesi (2020) “A letter from Zimbabwe,” published
[Link] Accessed on 30 October 2023 in the Lancet Psychiatry, Available at
[Link]
[5]Ministry of Health and Child Care, National Strategic Plan -0366(20)30166-8/fulltext, Accessed on 28 October 2023
for Mental Health Services, 2019 -2023, Available at:
[Link] [16] World Health Organization, Prevention and Management
6/Zimbabwe%20Mental%20Health%20Strategic%20Plan%202 of Mental Health Conditions in Zimbabwe: The Case for
019%20to%[Link]?sequence=1&isAllowed=y investment (2022), Available at
[Link]
[6] Marandure BN, Mhizha S, Wilson A, Nhunzvi C (2023) zimbabwe-mental-
Understanding the nature of substance use in Zimbabwe: health_investment_case_report_2022_%20%281%29_0.pdf
State of the art and ways forward: A scoping review protocol. Accessed on 29 October 2023.
PLoS ONE 18(3): e0272240. Available at:
[Link] Accessed on [17] The Global Drug Policy Observatory, Country Snapshot:
24 October 2023 Drugs in Zimbabwe, Available at: [Link]
p=245
[7] Ministry of Health and Child Care (2021), Zimbabwe
National Drug Master Plan, Available at: [18] Daily News, Mutoriro not dangerous drug: Lawyer
[Link] argues, Available at [Link]
content/uploads/2021/06/Zimbabwe-National-Drug-Master- dangerous-drug-lawyer-argues/, Accessed on 30 October
[Link] 2023.

[8] Ibid. [19] MMM Law Firm, Abuse of Drugs and Mental Health
Awareness in Zimbabwe: The Crystal Meth Scourge Through
[9] Zimbabwe Human Rights Commission, OHCHR Study on a Legal Lens, Available at
Youth and Human Rights: Youth in Zimbabwe, Available at [Link]
[Link] mental-health-awareness-in-zimbabwe-the-crystal-meth-
Youth/[Link] Accessed on 1 scourge-through-a-legal-lens/ Accessed on 01 November
November 2023. 2023

[10] UNICEF, Understanding Drugs and Substance Abuse by [20] Matutu, V. (2019) Drug and Alcohol Abuse Among Young
Zimbabwean Adolescents and Young, Available at People in Zimbabwe: A Crisis of Morality or Public Health
[Link] Problem, Available at:
20drugs%20and%20substance%20abuse%20Research%20Bri [Link]
ef_UNICEF_Sept2023.pdf Accessed on 31 October 2023 abstract_id=3489954

[11] M. Skumlien et al, Apathy and Anhedonia and Adolescent [21] Muswerakuenda, F.F., Mundagowa, P.T., Madziwa, C. et
Cannabis Users and Controls Before and During Covid – 19 al. Access to psychosocial support for church-going young
Pandemic Lockdown, published in the International Journal of people recovering from drug and substance abuse in
Neuropsychopharmacology, Volume 24, Issue 11, November Zimbabwe: a qualitative study. BMC Public Health 23, 723
2021, Available at [Link] (2023). [Link]
Accessed on 27 October 2023
 ACCOUNTABILITY LAB ZIMBABWE (ALZ) IS A LOCAL
ORGANISATION THAT WORKS WITH COMMUNITIES TO IMPROVE
KNOWLEDGE ABOUT LOCAL PROBLEMS AND THE CHALLENGES
THAT CAUSE THEM AND DRIVES CONVERSATIONS ABOUT
ACCOUNTABILITY AND INTEGRITY.