‘From silos to synergy’: stakeholder perceptions on institutional fragmentation in climate change mitigation and adaptation in Mwenezi district, Zimbabwe

Abstract

This study examined stakeholder perceptions of institutional fragmentation in climate change mitigation and adaptation in Mwenezi District, Zimbabwe, guided by the aim of identifying pathways for transitioning from silos to synergy. Grounded in polycentric governance theory, the research employed a convergent mixed methods case study design. Data were collected from 95 household survey respondents (95% response rate), 20 key informant interviews, and 5 focus group discussions, analysed using descriptive statistics and reflexive thematic analysis. Key findings revealed that Agritex, NGOs, the Rural District Council, the Environmental Management Agency, and traditional leaders are the main institutional actors, but they operate with overlapping mandates and weak coordination. Stakeholder perceptions of inter institutional collaboration were overwhelmingly negative: 72% disagreed that organisations work together effectively, 68% viewed overall collaboration as weak, and 60% reported exclusion of traditional leaders. Trust in government was eroded by inconsistent presence and changing advice, while trust in NGOs suffered due to short term, donor driven projects. Four interconnected challenges were identified: overlapping mandates causing role confusion, contradictory advice leading to farmer decision paralysis, NGO proliferation creating duplication and spatial fragmentation, and communication gaps producing information silos. Stakeholders strongly favoured structural reforms over voluntary coordination, with 82% supporting a Climate Change Act to mandate inter agency cooperation, alongside district coordination committees (75%), formal inclusion of traditional leaders (75%), joint planning and budgeting (72%), and pooled funding mechanisms (71%). The study concludes that fragmentation in Mwenezi is structural rather than behavioural, reinforced by the absence of legal mandates. Recommendations include enacting a Climate Change Act, establishing a single district master plan, creating a district climate fund, and legally mandating traditional leader representation on district planning bodies. Further research should compare multiple districts and track the long term impact of coordination reforms.