INTERNATIONAL JOURNAL OF RESEARCH AND INNOVATION IN SOCIAL SCIENCE (IJRISS)

ISSN No. 2454-6186 | DOI: 10.47772/IJRISS | Volume IX Issue XI November2025

Value Stream Mapping Analysis on Process Capability of the

Constituency Development Fund for Project Approval and Funding

in Zambia

Kelvin Kashindi^1*, Francis Simui^2*, Joe Likando^3*

¹PhD Candidate, University of Zambia and Zimbabwe Open University under the Institute of Distance

Education, Zambia

²Professor, Assistant Director University of Zambia, Institute of Distance Education, Researcher,

Supervisor, Lecturer and Mentor, Zambia

³Post Graduate Supervisor, educationist, Public Administration specialist, University of Zambia, Zambia

*Corresponding Author

DOI: https://doi.org/10.47772/IJRISS.2025.91100407

Received: 10 November 2025; Accepted: 17 November 2025; Published: 13 December 2025

ABSTRACT

The constituency development fund is a widely adopted decentralized fund by most governments to improve

the living standards of local communities. However, its implementation continues to be plagued by challenges

such as underutilization, bureaucratic delays in project approvals and fund disbursement. Hence, the study

aims at exploring the current constituency development fund process (CDF) from an operational mechanism

point of view. In order to appreciate the challenges inherent in the process, and pave way for process

improvement, the study employs lean methodology by use of value stream and process mapping to analyze

process design and discover critical points of waste in the process workflow, personal interviews were utilised

to appreciate lived experiences of the process operators and Literature review to benchmark with best

practices particularly the international standardization organization (ISO) process symbols. The study design

is exploratory sequential design. Key Findings indicate that the current CDF process is modelled as a basic

linear flowchart, which operationally functions as a Value Stream Map (VSM), it has redundant process steps

(too many steps of a similar kind e.g., approval steps) thereby resulting in a lot of handoffs, which increases

the chances of process delay, most process steps lack cycle time, which compromises process lead time and

data entry is mostly done manually resulting in missing data between handoffs. Recommendation(s): The

Government should adopt the appropriate Process Map (VSM) with basic ISO compliant symbols in order to

enhance its capability and make it adaptable to conventional software in case of automation, Similar process

steps especially approval ones should be merged to reduce on process handoffs and lead time. Conclusion:

The goal of value stream mapping analysis on process capability of the CDF process was to explore

qualitative factors as a baseline of later process capability computation.

Keywords: Delays, Handoffs, value stream map, process model, automation, process design

INTRODUCTION

The Zambian Government’s desire to develop various sectors of the country, particularly local communities

through Local Government, was escalated by the adoption of the constituency development fund (CDF),

which was approved by Parliament in 1995 (CDF guidelines, 2022) as a decentralized fund. This has led to

unprecedented increase of the same fund in the recent past of up to 40 million Kwacha per constituency

(Mbewe, 2025). However, there is overwhelming evidence of recurring underutilization of CDF across the

country due to bureaucratic delays in project approvals (Hichilema, 2024) observes. These sentiments are re-

echoed by (Sichula, 2025, Pollen, 2025, Likando et al, 2023 & Mofya, 2023)) in their various findings. In

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INTERNATIONAL JOURNAL OF RESEARCH AND INNOVATION IN SOCIAL SCIENCE (IJRISS)

ISSN No. 2454-6186 | DOI: 10.47772/IJRISS | Volume IX Issue XI November2025

addition, Sampa (2022) reveals that the challenges in question are historical due to the set-up of the CDF

process by Central Government which has a two-year lag period. To that point, George (2003) also observed

that whenever an operational process consistently manifests chronic waste or problems, it is because it was set

up that way. Hence the study explored the CDF process in order to discover where this chronic waste(delay)

takes place and pave way for streamlining and continuous process improvement. It is important to state that

even though process capability immediately signals quantitative analysis, there are qualitative factors such as,

process design, workflow, procedures among others that underline it and must be dealt with first, hence the

approach taken in this case.

METHODOLOGY

• Research Design

The study employed an Exploratory Sequential Design whose goal was to first map the process in question in

order to uncover the inherent operational deficiencies and suggest ways of optimisation. For the purposes of

this article, the focus was only on qualitative aspects.

• Objective(s)

To analyse variations in the process visualization models of the constituency development fund for project

approval and funding and determine their impact on process capability

• Sampling Frame

In order to obtain the depth of perspective, the population comprised people most knowledgeable about the

CDF process and documents that described the workflow.

• Sampling Technique

The study utilised purposive and snowball sampling techniques. The former for targeting people most

knowledgeable about the CDF process and the latter for accessing the next informant.

Data Source Instruments

1. Value Stream Mapping (VSM) was used to collect data on the understanding of actual work flows

(value- and non-value-added process steps), delays, decisions points and process model(design). In

short, VSM highlighted problem areas of the process.

2. Process Mapping was used to collect data on granular process tasks of various process steps.

3. Personal Interviews were conducted with 10 key stakeholders to validate the CDF process map and

collect performance data. 12 Ward Development committee Chairpersons out of 18 from various

wards were interviewed, 3 interviews were conducted with procurement officers and 2 interviews with

the planning officer.

The total number of interviews was 17 and the stakeholders involved are shown in table 1.

Table 1: List of stakeholders who were interviewed in Kapiri Mposhi Constituency

STAKEHOLDER DESIGNATION

Ward development Chairpersons

Council CDF Planning Officer

Procurement officers

NUMBER

8

1

2

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INTERNATIONAL JOURNAL OF RESEARCH AND INNOVATION IN SOCIAL SCIENCE (IJRISS)

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LITERATURE REVIEW:

Reviewed literature was used to collect data for benchmarking especially with ISO 9000 on the expected use

of standard process symbols and compare current process design with best practices

Value Stream or Process Mapping Analysis

Process mapping involves constructing a macro-map (VSM), identifying and prioritizing bottlenecks in the

existing process and constructing a micro-map (PM) to identify the root causes of the bottlenecks, and

iterative redesign. Process mapping (PM) therefore, fundamentally facilitates better understanding of complex

systems and processes, which gives way for adaptation of improvement interventions to their local context

(Antonacci, Lennox, Barlow, Evans, and Reed, 2021).

In order to uncover bottlenecks, inefficiencies and delays in the work flow affecting project implementation,

the above analysis was utilized by visualizing the current CDF process. According to Eckhard, Wittges and

Rinderle-Ma (2025), Visualization has a duo purpose namely to visualize the process model or show

information about process bottlenecks. The purpose of visualization therefore, was to make the process

understandable, and mapping makes it actionable for improvement. As such, it is the first task that an

organization implements as a framework of how operations must be conducted (Mandelburger, Mendling and

Mendling, 2014). Process visualization is so critical that it stands as self-evidence of clarity and effectiveness

as argued by Malinova, Monika and Mendling (2013) that a process map is cognitively effective if it is self-

explanatory. The implication being, process model stands as the first determinant of process capability. Hence,

the current CDF process for project approval and funding was visualized as shown in figures 1and 2

respectively.

Figure 1. CDF Process (Source: CDF guidelines, 2022)

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INTERNATIONAL JOURNAL OF RESEARCH AND INNOVATION IN SOCIAL SCIENCE (IJRISS)

ISSN No. 2454-6186 | DOI: 10.47772/IJRISS | Volume IX Issue XI November2025

Figure 2. CDF Process (Source: Kapiri Town Council Planning Department)

Figures 1 and 2 represents the visualization of the current CDF process in two versions.

Key Findings

The findings reveal the following, (a) there is variation in the visualization of the process model of CDF for

project approval and funding as evidenced by figures 1and 2. The reason being that a flow chart can be

visualized in any way provided the process steps are sequential. As such, the process does not have complete

or 3 basic minimum ISO process symbols, (b)There are too many process steps (13) in number, which create a

lot of handoffs (c) some process steps do not have cycle time that is, the time taken for a process step to

complete a task or how long a task or activity takes from one point to the next as shown in figure 2 while

figure 1 does not have any process step with cycle time, (d) there are too many approval stages signaling the

need to streamline such stages by merging them or some of them, (e) the process steps with the most

bottlenecks or delay points are, Procurement with 1 to 3 months and approval by Ministry of Local

Government and Rural Development and Treasury with cycle time of 2 to 4 weeks and (d) most of the process

steps are done manually.

DISCUSSION

Process Model

Sequential Linear Flow Chart vs Value Stream Map: The fact that the current CDF process is modelled as

a linear flowchart, which is a type of a process map but operationally functions as a value stream map is the

first sign of an inefficient process because it conveys the wrong message. Tronier (2025), argues that by

design, a sequential linear flowchart simply shows how the workflow in a process starts and ends in

sequential order, by design, a flowchart is meant for information or instructional purposes only. On the

contrary, a value stream map by design and function, deals with delivery of a good or service and quantifies

process performance. Therefore, the appropriate process model for CDF should be a value stream map as

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INTERNATIONAL JOURNAL OF RESEARCH AND INNOVATION IN SOCIAL SCIENCE (IJRISS)

ISSN No. 2454-6186 | DOI: 10.47772/IJRISS | Volume IX Issue XI November2025

evidenced firstly, by the presence of cycle times in some process steps and secondly, based on the background

that there are bureaucratic delays and long implementation of projects, it is only value stream map that

captures such information.

Process Model/Map Analysis vs Visual Notations (ISO Symbols)

Malinova et al (2013) indicates that the above analysis is done in two phases. First, by assessing cognitive

effectiveness of the process maps with focus on the design of a process map, without going into the process

details. The assessment is restricted to the process map design regarding whether or not its design conforms to

the principles for designing cognitive effective visual notations (Moody, 2009). Second, by applying the

cognitive fit exists between process design and organizational goals. To that effect, the assessment is to

ascertain whether process design infers any meaning, which leads to effective results. Therefore, if a process

map does not align with the said criterion, then it becomes difficulty to interpret thereby yielding unwanted,

unanticipated effects (Malinova et al, 2013) or as is stated in process capability parlance, the process becomes

unstable and unpredictable hence cannot perform consistently according to specification.

Moody (2009) states that with regards to visual notations or iso symbols, a process must have at least three in

its design to be considered effective. Table 2 shows the visual notations in question with their corresponding

meanings based on the challenges under discussion as a restriction.

Table 2: Basic Flowchart Symbols (Source: based on Moody and ISO 9000)

SYMBOL

NAME

MEANING/USE

Process start/End

Terminator

Rectangle

Diamond

Process step

Depicts decision points

Delay symbol

Connector

Delay points/pause/waiting

Connects process step and shows direction of activities

In light of the above, figures 1 and 2 only have two symbols, namely the Connector and rectangle, as such,

according to Moody (2009), they do not qualify as efficient processes. Ramuthi (2025) argues that without the

use of such symbols, which foster clarity and universal understanding, process analysis becomes difficult and

its subsequent improvement.

Process Streamlining

The other logical and immediate observation after process design is the number of process steps in the CDF

process, which are a lot. As such, Hackmd Editorial Team (2024) prioritizes process simplification by

emphasizing elimination of redundant tasks or approvals that do not negatively impact the final outcome.

They further contend that simplicity is at the heart of efficiency as most processes become inefficient due to

unnecessary complexity. Process simplicity is therefore, a key strategy for organizations to reduce wasted

time, cut unnecessary costs, and optimize performance output.

On the contrary, the current CDF process is far from being simple or streamlined as Hackmd Editorial Team

(2024) suggests. It has too many process steps 13 in total as shown in figures 1 and 2. This was due to the fact

that some process steps perform similar activities for example, submissions and approval steps. Therefore, the

current CDF process when redesigned, simplified, and aligned with iso symbols and best practices should

have 7 process steps without compromising the final outcome as shown in figure 4.

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Figure 3. Application of ISO Symbols to a streamlined CDF Value Stream Map

Process Steps with High Waste/Delay

Procurement, Ministerial approval and Treasury were the process steps with the highest source of waste (cycle

time), with procurement taking up to 1-3 months and ministerial 2-4 weeks. The negative impact of these

stages particularly the procurement stage was notable in the frustration of Respondent A who stated that, “It is

difficult to convince people in the Wards that it is not the Councils fault that implementation of projects takes

long, in fact, sometimes the procurement goes up to 10 to 12 months. It is very frustrating because people we

are accused of delaying the projects.” And when asked why an accusation such as this rests on them, the

answer was that, “The message of decentralisation has not been clearly explained to the public, what people

know is that the power to make all decisions regarding CDF rests with the local authorities, which is not

true.” This is true because through process mapping, it was revealed that certain process steps like

procurement and fund disbursement are not in control of the local Councils anywhere in the Country as the

central Government still holds the power.

On the contrary, Respondent B argued that, “The problem with the Council is that they lack communication,

they do not give us feedback about the progress of projects that we submit.” This is evidenced by the lack of

feedback loops in the CDF process as shown in figures 1 and 2.

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Impact of findings on process capability

The key findings affect process capability in the following ways:

1. The variations in process visualization and lack of minimum ISO symbols makes the CDF process

ambiguous rendering it vulnerable to different independent interpretation and execution as it signals

lack of standardization. As such, it hinders process improvement because there is no single source of

Truth.

2. Numerous approval and submission stages or process step drive excessive process steps and handoffs

resulting in a compounding effect on cycle time, lead time and variation.

3. Excess reliance on manual processing of data results in loss of information between handoffs as

evidenced by some process steps missing cycle time, the process is largely slow, it is highly

susceptible to human mistakes, and it is difficult to create an audit trail of waiting time.

4. The identification of the procurement (1-3 months) stage and ministerial approval (2-4 weeks) as high

sources of waste constrains the entire process and significantly reduces its capability because it entails

a wide process spread. This creates frustration in stakeholders as funding approvals take anywhere

between 3 to 10 months.

RECOMMENDATIONS

Based on the key findings, the Ministry of local Government and Rural Development should adopt a

streamlined standard Value stream map with basic ISO symbols as shown in figure 3 instead of a basic linear

flowchart (Figures 1 and 2) for the reasons discussed. The ministry should introduce cycle times in all process

steps to account for quantitative insights. They should consider automation (Control Charts) of the CDF

process focusing on process steps with measurable timelines or quantitative outputs, for example, approval

and fund disbursement stages. They should do that through a triadic criterion based on,

1. Lead Time or Cycle time stamps: they can compute or record days for proposal development not

ranges, technical appraisals, fund disbursement or contract completion

2. Quality or compliance measures whereby the number of proposals returned for correction, number of

sites failing inspections or rejected procurement documents could be recorded and

3. Financial Variation whereby the variance between the budget versus actual costs and disbursement

timings between allocations can be computed. All these can easily be made into an X-bar, R, p or u

chart

Methods: they can achieve the above by integrating a digital CDF management system because if time stamps

are captured digitally, then they can automatically calculate start-end time differences or rejection counts for

example. However, if a digital system does not exist, then structured spreadsheets with formulas and time

stamps can be utilised.

CONCLUSION

The goal of value stream mapping analysis on process capability of the CDF process was to explore

qualitative factors as a baseline of late process capability computation. As a result, create an opportunity for a

process that is devoid of redundances, inefficiencies, waste and very low variation to emerge.

Ethical Considerations

The study was approved on 11^thApril, 2025 by humanities and social science ethics committee at the

University of Zambia. Human participants were issued with consent forms, which they signed before

answering questions.

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Data Availability

Some of the data was available at Zambia e-Government Procurement system (Login to e-GP ) especially on

procurement and types of projects and bidding.

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