COMPARATIVE ANALYSIS OF NATIONAL PFM LEGISLATION AND SADC PFM MODEL LAW IN ZAMBIA, ZIMBABWE, AND MALAWI

This research paper by the African Forum and Network on Debt and Development (AFRODAD) analyzes the Public Finance Management (PFM) legislative frameworks of Zambia, Zimbabwe, and Malawi, comparing them to the SADC PF Model Law on Public Financial Management. The study identifies a systemic gap between the existence of progressive PFM laws and their effective implementation, particularly regarding debt sustainability, parliamentary oversight, and the prevention of illicit financial flows (IFFs).

• Zambia, Zimbabwe, and Malawi have adopted progressive PFM legislation based on global best practices, but all three suffer from a lack of effective implementation of these laws.
• Parliamentary oversight in the three countries is compromised because the findings and recommendations produced by Parliament are not legally binding, leaving the legislature without the power to control executive actions.
• The PFM frameworks in Zambia, Zimbabwe, and Malawi fail to protect the states from 'debt vultures' or unscrupulous lenders, as the laws do not specify criteria for acceptable lenders and creditors.
• While the three states have institutions to combat illicit financial flows (IFFs), they lack stand-alone legislation specifically dedicated to addressing IFFs, which limits their ability to develop targeted policies and inter-agency collaborations.
• Enforcement systems for PFM are weak, particularly regarding senior officials; there are few provisions to penalize high-ranking figures like the Secretary to the Treasury or the Minister for financial misconduct.
• The SADC PF Model Law provides a comprehensive framework for PFM, including requirements for fiscal sustainability statements and tax expenditure reporting to increase transparency, but it lacks a regional monitoring and evaluation system to review domestic implementation.
• Malawi's debt management institutional framework is significantly weaker than those of Zambia and Zimbabwe, as it lacks a dedicated Debt Management Office (DMO), leaving the Secretary to Treasury to perform these duties.
• Zimbabwe's public audit framework is more executive-oriented and provides less independence for the Auditor-General compared to Zambia and Malawi, specifically lacking explicit provisions on immunity.
• The SADC region faces massive revenue losses, with estimates suggesting annual losses of US$50 billion to US$60 billion due to tax evasion and illicit financial flows.

APA

African Forum and Network on Debt and Development (n.d.). COMPARATIVE ANALYSIS OF NATIONAL PFM LEGISLATION AND SADC PFM MODEL LAW IN ZAMBIA, ZIMBABWE, AND MALAWI. https://afrodad.org/sites/default/files/publications/Comparative%20Analysis%20of%20National%20PFM%20Legislation%20and%20SADC%20PFM.pdf

Chicago

African Forum and Network on Debt and Development. COMPARATIVE ANALYSIS OF NATIONAL PFM LEGISLATION AND SADC PFM MODEL LAW IN ZAMBIA, ZIMBABWE, AND MALAWI. n.d. https://afrodad.org/sites/default/files/publications/Comparative%20Analysis%20of%20National%20PFM%20Legislation%20and%20SADC%20PFM.pdf.

Wikipedia

{{cite report |author=African Forum and Network on Debt and Development |title=COMPARATIVE ANALYSIS OF NATIONAL PFM LEGISLATION AND SADC PFM MODEL LAW IN ZAMBIA, ZIMBABWE, AND MALAWI |url=https://afrodad.org/sites/default/files/publications/Comparative%20Analysis%20of%20National%20PFM%20Legislation%20and%20SADC%20PFM.pdf |access-date=17 August 2026 |via=Climate Insights Directory}}

BibTeX

@techreport{africanforumandnetworkondebtanddevelopmentndcomparative, author = {{African Forum and Network on Debt and Development}}, title = {{COMPARATIVE ANALYSIS OF NATIONAL PFM LEGISLATION AND SADC PFM MODEL LAW IN ZAMBIA, ZIMBABWE, AND MALAWI}}, institution = {African Forum and Network on Debt and Development}, url = {https://afrodad.org/sites/default/files/publications/Comparative%20Analysis%20of%20National%20PFM%20Legislation%20and%20SADC%20PFM.pdf}, urldate = {2026-08-17}, note = {Indexed by Climate Insights Directory} }