Labour-based construction in Zambia: recent policy developments

Although Zambia is blessed with enormous natural resources, it remains a country with key challenges. Poverty, unemployment, a lack of technical skills, and difficult transport and communications conditions nationally require urgent remedial interventions. A renewed infrastructure rollout is part of that process, with the potential to incorporate labour-intensive construction techniques.

By Robert T McCutcheon*

Within its 7th National Development Plan (NDP7 – 2017 to 2021), the Government of Zambia prioritised job creation and infrastructure development across all sectors of the Zambian economy.

NDP7 emphasised the importance of using labour-based methods, stating, “To increase employment opportunities in rural areas, the Government will promote rural infrastructure development, agro value chain development, and labour-intensive industries operating in rural areas.” The proposed programmes included: - public works development - labour-intensive industries promotion - rural employment-guarantee scheme promotion - resettlement schemes development - infrastructure development. NDP7 stated that “the Ministry of Housing and Infrastructure Development and sector agencies such as the National Council for Construction (NCC) will coordinate labourintensive technologies in the development of public infrastructure projects. This will optimise the impact of the construction sector’s performance towards achieving the goals of the NDP.”

NDP7 (p 147, 9.2) contains the following ‘Expected outcomes and results chain analysis’: - technical skills transferred to local contractors through the NCC - increased employment opportunities for locals throughout the construction value chain - technical skills and knowledge transferred

to locals, making them employable in subsequent works in their areas - reduction of poverty levels.

National Council for Construction Act

Recently, in November 2020, the National Council for Construction Act was (re-)enacted in order “to provide for the promotion, development and regulation of the construction industry so as to promote economic growth and competitiveness and create sustainable employment.”

As per Section 35 (2) of the National Council for Construction Act, the National Construction School shall: - conduct training for technical staff in construction and construction-related subjects - provide courses in labour-based technology

- provide courses or training skills for personnel in the construction industry - offer courses in research and consultancy for persons in the field of construction - provide for and offer other capacitybuilding programmes that the Council considers necessary. Section 54 of the Act refers to the importance of capacity building.

Improved Rural Connectivity Project

To this end, the NCC was tasked with the commissioning of a consulting assignment on ‘Mainstreaming of labour-based technologies (LBT) in the Zambian construction industry’, which is being prepared by the author as an industry expert.

The application of LBT is expected to form a core element of Zambia’s Improved Rural Connectivity Project. Funded by the World Bank’s International Development Association, this US$200 million (R2.94 billion) project has vital socio-economic importance for Zambia. The objectives include the improvement of about 4 300 km of feeder roads to gravel wearing course standard.

In November 2020, the Zambian Road Development Agency’s ‘Request for Bids’ for World Bank Funded ‘Package 12 of Southern Province’s Improved Rural Connectivity Project’ stated: “The local subcontractors shall possess requisite skills in implementing labourbased technologies in road maintenance.” It also contains a table, ‘Equipment required for Labour Based Maintenance’, as well as other requirements to promote the use of labourintensive methods.

Interim comment

More recent Zambian policy developments and a particularly large World Bank contract may indicate a breakthrough for proactive LBT implementation.

However, Zambia has promoted LBT in various ways since the 1980s, including policy pronouncements and many pilot projects, but none of these came to fruition. The question then is, are there reasons for a better result this time around?

It’s too soon to tell; however, I do consider that there are signs of a renewed commitment by the Zambian government.

Factors for success

Drawing on direct experience and analysis of LBT ventures in Kenya and Botswana, these succeeded because they adopted a long-term programme approach rather than an ad hoc one. From inception, these LBT projects were also designed to incorporate labour-intensive components, rather than including them later as an add-on, random element.

Over the years, the author has seen so many projects concentrate upon immediate ‘job creation’, with no regard to the actual institutional development required and the extensive training needed. The focus on the word ‘labour’ distracts policymakers and engineers from the prime focus, which should be the construction and maintenance of good quality infrastructure.

Not fully understanding the definition of ‘labourintensive’ within the context of LBT immediately imposes limitations on all subsequent construction and project management ‘arenas’, especially the delineation of scope, and expectations regarding time, cost, quality and human resources. Coordinated training across all levels is therefore essential for optimum execution. This includes LBT training at NQF 5 level for contractors and NQF 6/7 for project managers, engineers and public sector officials.

Within this context, one must never forget the essential role of the NQF Level 4 ‘hands-on’ site supervisors and roadbuilders. They need to be specially trained to effectively and efficiently organise and control the activities and operations of teams of people. On most unsuccessful LBT projects, this is the ‘missing middle’.

Therefore, if Zambia can establish linked LBT training and construction programmes, with a particular focus on NQF 4 level ‘hands-on’ site supervisors, this time there could be a far more favourable outcome. *Professor Emeritus, School of Civil and Environmental Engineering, University of the Witwatersrand

Note: The Zambian National Council for Construction appointed the author to carry out an assignment entitled ‘Mainstreaming of labour-based technologies in the Zambian construction industry’.

The author’s Final Report has not yet been approved for release. The above article provides a background that is available from open-source material.

Disclaimer: This article has been written by Professor McCutcheon in his personal capacity. Email: roberttmccutcheon@gmail.com