* Category includes ratification, accession, or succession to the treaty

The Constitution of Zambia provides the primary legal foundation for civic freedoms through the Bill of Rights. It does not recognize civil society as a distinct holder of rights, but defines it as “a group of persons, who are not part of the Government, who associate for the purpose of advancing or protecting particular interests.” Protection is therefore derived from fundamental rights, including freedoms of expression (Article 20) and assembly and association (Article 21).

The Constitution protects related rights, including freedom of conscience (Article 19), protection against arbitrary search (Article 17), and protection against discrimination (Article 23), all of which are enforceable under Article 28. These rights are subject to limitation clauses, including restrictions in the interests of defence, public safety, public order, morality, or public health, and may be further limited during a state of emergency under Articles 25, 30, and 31.

National laws, policies and regulations affecting civil society include:

1. Constitution of Zambia Act, 1991 (as amended)
2. Non-Governmental Organisations Act, No. 16 of 2009
3. Non-Governmental Organisations (Amendment) Act, No. 17 of 2020
4. Societies Act, Chapter 119 of the Laws of Zambia
5. Companies Act, No. 10 of 2017
6. Land (Perpetual Succession) Act, Chapter 186
7. Land (Perpetual Succession) (Amendment) Act, 2020
8. Persons with Disabilities Act, No. 6 of 2012
9. National Youth Development Council Act, Chapter 144
10. Organisations (Control of Assistance) Act, Chapter 116
11. Trust laws of England, as applicable in Zambia
12. Public Order Act, Chapter 113
13. Public Order (Amendment) Act, 1996
14. Penal Code Act, Chapter 87
15. Access to Information Act, No. 24 of 2023
16. Electronic Communications and Transactions Act, No. 4 of 2021
17. Data Protection Act, No. 3 of 2021
18. Data Protection (Registration and Licensing) Regulations, 2021
19. Cyber Security Act, No. 3 of 2025
20. Cyber Crimes Act, No. 4 of 2025
21. Financial Intelligence Centre Act, No. 46 of 2010
22. Financial Intelligence Centre (General) Regulations, 2022
23. Prohibition and Prevention of Money Laundering Act, No. 14 of 2001 (As Amended)
24. Anti-Terrorism and Non-Proliferation Act, No. 6 of 2018 (As Amended)
25. Employment Code Act, No. 3 of 2019
26. National Pension Scheme Act, No. 40 of 1996
27. National Health Insurance Act, No. 2 of 2018
28. Workers’ Compensation Act, No. 10 of 1999
29. Income Tax Act, Chapter 323
30. Customs and Excise Act, Chapter 322
31. Act No. 18 of 2025, The Customs and Excise (Amendment) (No. 2) Act
32. Property Transfer Tax Act
33. Skills Development Levy Act, No. 46 of 2016
34. Higher Education Loans and Scholarships Act, 2016

1. The Non-Governmental Organisations Bill No. 6 of 2025 seeks to repeal and replace the existing NGO Act and to introduce a revised regulatory framework.

2. The reform of the Public Order Act remains under discussion, but no bill is currently before Parliament.

3. The Government has indicated plans to replace the National Youth Development Council Act with another proposed Youth Bill.

Zambia provides multiple legal pathways for establishing CSO, including NGOs, societies, companies limited by guarantee, and more specialized organizations.

Non-Governmental Organisations

Non-governmental organisations are regulated under the Non-Governmental Organisations Act, 2009 (as amended in 2020). They are defined as private, voluntary, non-profit organisations that are self-governing and do not distribute profits to members. This form is characterised by its focus on structured, programmatic activities and formal oversight under a dedicated statutory framework. The Registrar of Non-Governmental Organisations registers NGOs. They are primarily established for public benefit purposes, including development, humanitarian assistance, advocacy, service delivery, and other activities aimed at advancing social welfare.

Societies

Societies are registered under the Societies Act, Chapter 119 of the Laws of Zambia. A society is broadly defined to include any club, association, or organisation of ten or more persons, regardless of its nature or objective. This form is characterised by a membership-based structure, governed by a constitution and typically driven by the collective interests of its members. The Registrar of Societies registers societies. They may be established for both public and mutual benefit, including advocacy, community development, cultural activities, or the promotion of shared interests among members.

Companies Limited by Guarantee

Civil society organisations may be incorporated as companies limited by guarantee under the Companies Act, No. 10 of 2017. These are non-profit corporate entities that do not distribute profits to members and instead apply their income toward their stated objectives. This form is characterised by separate legal personality, perpetual succession, and formal corporate governance structures. Companies limited by guarantee are registered by the Patents and Companies Registration Agency (PACRA). They are typically established for public benefit or non-profit purposes, including charitable, educational, research, or advocacy activities.

Bodies Corporate under the Land (Perpetual Succession) Act

Organisations may acquire legal personality under the Land (Perpetual Succession) Act, Chapter 186, enabling them to hold and manage property in perpetuity. This form is primarily used for property holding and institutional continuity rather than broader regulatory oversight, and is typically adopted by charitable, religious, or institutional organisations.

Trusts

Trusts are recognised under English law as applied in Zambia. They are established through a trust deed, under which trustees hold and manage property for specified purposes. Trusts do not have a membership structure and are governed by fiduciary obligations. They are not registered with a dedicated regulator, but, where applicable, registration is by deed.

Organisations of or for Persons with Disabilities

Organisations of or for persons with disabilities are regulated under the Persons with Disabilities Act, 2012. These organisations are registered with the Zambia Agency for Persons with Disabilities. This form is characterised by its specialised mandate and regulatory framework, which focuses on disability rights, inclusion, and service provision. Such organisations are established for public benefit purposes, specifically to promote the welfare, rights, and participation of persons with disabilities.

Youth Organisations

Youth organisations are governed by the National Youth Development Council Act, Chapter 144 of the Laws of Zambia. They are registered with the National Youth Development Council. This form is characterised by its focus on youth mobilisation, development, and participation within a structured statutory framework. Youth organisations are established for public benefit purposes, particularly in relation to youth empowerment, development programmes, and civic engagement.

Approximate Numbers

More than 2,500 organisations are registered under the Non-Governmental Organisations Act, while approximately 22,000 were registered under the Societies Act as of 2019, although this figure is not disaggregated and includes a broad range of associations. There are no publicly available figures for other legal forms, and overall data does not provide a comprehensive count of civil society organisations in Zambia.

Zambia does not provide a single statutory “public benefit” or “charitable” status for civil society organisations. Instead, recognition is administered under the Income Tax Act by the Zambia Revenue Authority on a case-by-case basis. Organizations may qualify for tax exemption if they operate for public benefit purposes and do not distribute profits. Approval requires an application supported by governing documents and information on activities. Recognized organizations may receive income tax exemptions and certain customs concessions, subject to compliance.

Zambian law provides for public participation in governance through constitutional principles and sector-specific laws on consultation, access to information, and public engagement.

Key laws and regulations affecting public participation include: Statutes such as the Access to Information Act, Environmental Management Act, Urban and Regional Planning Act, Local Government Act, Public Finance Management Act, and the Zambia Law Development Commission Act, as well as administrative frameworks like the Cabinet Handbook and parliamentary procedures.

In practice, participation remains uneven due to limited access to information and resource constraints, with structural barriers persisting for marginalized groups. Laws on electronic communications and public order may also affect digital and environmental advocacy in practice.

Zambian law does not impose a general prohibition on informal associations, and individuals may organize without registration. However, most legal frameworks require registration for formal operation, including access to banking, contracts, and funding. Laws such as the Non-Governmental Organisations Act and the Societies Act restrict the operation of unregistered entities within their scope and may impose penalties for non-compliance.

Non-Governmental Organizations

The Non-Governmental Organisations Act, 2009, provides for the registration of NGOs. Founders may be individuals or legal entities, and there is no minimum asset requirement, although organisations must be established for non-profit, public-benefit purposes.

Registration requires submission of prescribed documents, including a constitution, a governance structure, and details of office-bearers, along with a fee. The Registrar reviews applications but is not subject to a fixed timeframe and may refuse registration on public interest or legal grounds, with decisions subject to review. Foreign organisations must register to operate in Zambia and may be subject to additional requirements.

Societies

Under the Societies Act, a society is broadly defined as any association of ten or more persons, establishing a minimum membership threshold. The Act does not impose nationality restrictions. Registration requires submission of a constitution, details of office-bearers, and prescribed information, together with a fee. The Registrar has discretion to approve or refuse registration on grounds including public interest, public order, or national security, and there is no fixed timeframe for decisions. Refusals may be appealed to the Minister, and organizations that fall within the definition must register or face penalties.

Companies Limited by Guarantee

Companies limited by guarantee are incorporated under the Companies Act, 2017. Founders may include individuals or corporate entities, including foreign persons, and there is no minimum asset requirement, although a guaranteed amount and articles of association must be specified. Registration is administered by the Patents and Companies Registration Agency and requires submission of incorporation documents, payment of fees, and compliance with statutory requirements. The process is rules-based, with limited discretion to refuse registration where legal requirements are met. Ongoing compliance obligations, including reporting and corporate governance requirements, may affect accessibility for smaller organizations

Bodies Corporate under the Land (Perpetual Succession) Act & Trusts

Under the Land (Perpetual Succession) Act, trustees of organizations established for religious, educational, charitable, or similar purposes may apply for incorporation as a body corporate. Upon approval, the trustees acquire legal personality, perpetual succession, and the capacity to hold and manage property. The application requires submission of prescribed particulars, including the organization’s objects, governing rules, and details of trustees. Incorporation is subject to ministerial approval and may be granted with conditions. The framework is primarily used for property holding and does not provide a comprehensive regulatory regime for organizational activities

Organisations of or for Persons with Disabilities

Under the Persons with Disabilities Act, organisations of or for persons with disabilities are registered with the Zambia Agency for Persons with Disabilities. The Act establishes a specialised registration framework, and such organisations are not required to register under the NGO Act or the Societies Act. Registration requires the submission of prescribed organisational details and compliance with statutory requirements relating to disability services and representation. The framework provides a distinct regulatory regime for organisations operating in the disability sector.

Youth Organisations

Under the National Youth Development Council Act, youth organisations are registered with the Council. Registration requires submission of prescribed information and governing documents, and the Council may refuse or cancel registration on specified grounds, with a right of appeal. The framework also provides for the supervision and regulation of registered youth organizations.

Overall Constraints

Across the different legal forms, several common constraints emerge. These include broad administrative discretion in registration decisions (particularly under the Societies Act and the NGO framework), the absence of clear statutory timelines for decision-making in certain regimes, and overlapping legal frameworks that require organisations to navigate multiple registration pathways. While formal barriers to entry are not uniformly restrictive, administrative practices and regulatory fragmentation may affect the accessibility and predictability of the registration process.

CSOs in Zambia are subject to reporting, disclosure, and compliance requirements under laws such as the Non-Governmental Organisations Act and the Societies Act. Authorities may request information, conduct inspections, and impose conditions on operations. Sanctions for non-compliance include suspension or cancellation of registration, with similar oversight under sector-specific laws. Dissolution is permitted on broadly framed grounds, and there are no specific legal protections for civil society actors facing threats or violence.

Barriers to International Contact

CSOs in Zambia are generally permitted to engage with domestic and international partners, including participation in regional and global networks. There is no general requirement for prior approval for international cooperation, although general regulatory requirements may apply.

There are no general statutory restrictions on travel, conference attendance, or internet access. However, laws such as the Cyber Security Act and the Cyber Crimes Act regulate electronic communications and may affect online engagement. In addition, the Organisations (Control of Assistance) Act restricts the receipt of foreign assistance by organizations deemed to have political objectives.

There is no general prohibition on foreign funding for CSOs in Zambia. However, the Organisations (Control of Assistance) Act restricts organizations deemed to have political objects from receiving foreign assistance without prior approval, with broad definitions of assistance and potential sanctions for criminal liability or dissolution. General financial and reporting requirements for cross-border transactions also apply.

Domestic funding is permitted through grants, donations, membership contributions, and income-generating activities, provided these align with organizational objectives and are non-profit. In practice, compliance requirements, administrative scrutiny, and legal form may affect access to resources.

The Constitution of Zambia guarantees the right to freedom of expression. Article 20(1) provides that:

“Except with his own consent, a person shall not be hindered in the enjoyment of his freedom of expression, that is to say, freedom to hold opinions without interference, freedom to receive ideas and information without interference, freedom to impart and communicate ideas and information without interference, whether the communication be to the public generally or to any person or class of persons, and freedom from interference with his correspondence.”

This right is subject to limitations under Article 20(2), including in the interests of defence, public safety, public order, morality, or public health.

In addition to the Constitution, laws such as the Penal Code, Cyber Security Act, Cyber Crimes Act, and Public Order Act regulate aspects of expression. CSOs are generally permitted to engage in public discourse and advocacy, including criticism of government and participation in policy processes. However, provisions relating to public order, defamation, and electronic communications may affect the scope of expression in practice, and engagement in partisan political activity may be restricted depending on the organization’s legal form.

The Constitution of Zambia guarantees the right to freedom of assembly under Article 21. Article 21(1) provides that, “except with his own consent, a person shall not be hindered in the enjoyment of his freedom of assembly and association, that is to say, the right to assemble freely and associate with other persons…” This right is subject to limitations under Article 21(2), which permits restrictions that are reasonably required in the interests of defence, public safety, public order, morality, or public health.

Public assemblies are primarily regulated under the Public Order Act, which governs public meetings, processions, and demonstrations. The Act also contains provisions relating to uniforms and flags associated with political organizations and quasi-military organizations, as well as provisions regulating assemblies and related offences.

Procedures and Requirements

The Public Order Act requires organizers to give the police at least seven days’ prior notice, including details of the assembly. The requirement applies broadly and does not depend on participant numbers. The police may impose conditions on assemblies, and the law does not set a timeframe for response. In practice, assemblies may be subject to police approval, with no explicit right of appeal beyond judicial review. The law does not recognize spontaneous assemblies. Organizers must ensure compliance, and participants may incur liability under the Penal Code for offences such as unlawful assembly or breach of the peace.

Public Order and Political Restrictions

The Public Order Act grants the police broad powers to regulate assemblies, including significant discretion to impose conditions and prohibit gatherings. There are no explicit content-based or participant restrictions, but political assemblies may be subject to regulation. The Act also regulates political symbols and prohibits quasi-military organizations, while communication laws and offences under the Penal Code may, in practice, apply.

Policing / Enforcement

Enforcement of assembly laws is carried out by the police under the Public Order Act and related legislation. Offences include failure to comply with notification requirements or imposed conditions, and may attract fines or imprisonment under the Act and the Penal Code.

In practice, police exercise discretion in regulating assemblies, including restricting or dispersing gatherings and arresting participants. The law does not provide a framework for counter-demonstrations or specific protections for organizers and participants, and, in practice, protection varies.

The Endless Search for a New Constitution (October 2025)
In October 2025, Zambia’s government established a 25-member Technical Committee to revive stalled constitutional reform efforts after civil society pressure and a controversial Constitutional Court ruling declared earlier executive-led proposals unconstitutional for lack of public participation. The move, announced amid legal uncertainty and deep divisions within civil society, has reignited debate over the legitimacy and scope of the reform process, which remains narrowly focused on electoral provisions ahead of the 2026 elections.

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