Marijuana Legalization in Africa: 7 Lessons from Zimbabwe

Across Africa, the push for marijuana legalization is gaining momentum, with countries like South Africa, Lesotho, Morocco, Uganda, Zambia, Zimbabwe, Malawi, Rwanda, and Ghana at various stages of reform. As the conversation around legalization intensifies in nations like Mozambique, Kenya, and Nigeria, the continent is at a crossroads, deciding how best to navigate the complexities of cannabis policy. While Zimbabwe serves as a reference point, the lessons learned from its journey provide valuable insights for the entire African continent.

The Cannabis Africana Project: A Pan-African Perspective

On October 24, 2023, a workshop was held in Harare, Zimbabwe, bringing together key stakeholders from across the cannabis industry. Organized in collaboration with Kutsaga Research, the event included policymakers, drug control practitioners, civil society members, cannabis farmers, and community groups. This gathering was a critical component of the Cannabis Africana: Drugs and Development in Africa research project, led by researchers from the University of Bristol and the University of Cape Town. The workshop’s discussions and findings have shaped a new policy brief, highlighting the complexities and challenges of cannabis policy in Africa. Drawing on these insights, this article distills seven key lessons from Zimbabwe that are applicable across the continent.

Lesson 1: The Need for a Holistic Approach to Cannabis Policy

A common trend among African nations is to mirror Western models when developing cannabis policies, often emphasizing industrial hemp over the broader cannabis plant. This narrow focus risks overlooking the cultural, medicinal, and social significance of cannabis within African communities. In Zimbabwe, for example, cannabis is deeply woven into the fabric of traditional practices, yet policies have often failed to account for this. African countries must adopt a more holistic approach to cannabis policy, one that recognizes the plant’s full spectrum of uses.

Lesson 2: The Challenge of Integrating Illicit Markets into Legal Frameworks

In Africa, as in the West, the illicit cannabis market has been a longstanding reality. For many, it is a vital source of income, particularly in low income groups. In Kenya, for example, peddlers (known as pedis) are typical school dropouts with no other skills to fall back on should the illicit market be wiped out. That said, transitioning illicit traders into the legal market is fraught with challenges. High licensing fees, stringent regulations, and limited government support often exclude those who have long relied on illicit trade. The Zimbabwean experience highlights the difficulty of this transition, underscoring the need for policies that facilitate the integration of these traders into the legal economy.

Lesson 3: Balancing Local and International Interests

The cannabis industry in Africa is increasingly attracting international companies, drawn by the continent’s favorable growing conditions and untapped markets. There is nothing wrong with having international players in these markets; they bring valuable expertise and can create channels for export, which is a positive development. In the cannabis sector, there is ample opportunity for everyone, and the involvement of diverse players can enhance ingenuity and contribute to a vibrant legal market. However, it is crucial that governments do not create policies that overlook those in the illicit market — the original owners of the industry. These individuals possess indigenous knowledge that can add significant value to the market, and they should not be excluded from what has been their livelihood for generations. Instead, they should be integrated into the legal framework to ensure a fair and inclusive cannabis industry.

Lesson 4: The Importance of Socio-Cultural Considerations

Cannabis has a long history of socio-cultural and religious significance across Africa. In some communities, it is used in traditional medicine, spiritual rituals, and social gatherings. However, the push for legalization often focuses on economic gains, sidelining these cultural aspects. Zimbabwe’s experience shows that failing to consider the socio-cultural context can lead to policies that are out of touch with local realities. African countries must ensure that cannabis legalization respects and incorporates traditional knowledge and practices.

Lesson 5: The Risk of Marginalizing Small Producers

The legalization of cannabis in Africa has largely focused on attracting large-scale investments, often overlooking the potential of small-scale farmers who have traditionally cultivated alternative crops. These farmers, eager to switch to cannabis cultivation, can be supported through education, access to farm inputs, and other forms of expertise to help them successfully transition. Local factories that have been processing other crops can also be guided and supported to adapt to processing cannabis, ensuring that the entire supply chain is equipped for this new market. Marketers, too, need training to effectively promote and sell cannabis products, creating a seamless end-to-end process. It is essential to have these strategies well-planned from the outset to avoid the confusion, losses, and disillusionment seen in other countries’ experiences. By addressing these elements early on, African countries can build a more inclusive and sustainable cannabis industry.

Lesson 6: The Continued Threat of the Illicit Market

Despite legalization efforts, the illicit cannabis market remains resilient in many African countries. In Zimbabwe, the persistence of the illicit market is partly due to the legal market’s focus on export and the exclusion of recreational use. This dynamic allows the domestic illegal market to thrive, as it meets local demand that the legal market does not. African countries considering legalization must address the factors that sustain the illicit market, ensuring that the legal framework is comprehensive and responsive to local needs.

Lesson 7: The Need for Inclusive Policy Development

Finally, the process of developing cannabis policies in Africa must be inclusive, involving a broad range of stakeholders, including local communities, small producers, civil society organizations, and traditional leaders. Zimbabwe’s approach to cannabis policy has often been top-down, with limited input from those directly affected by the regulations. For successful legalization, African countries must engage with all stakeholders to create policies that are equitable, sustainable, and culturally relevant.

Conclusion

As more African nations move toward cannabis legalization, the lessons learned from Zimbabwe’s experience offer valuable guidance. By adopting a holistic approach to policy, integrating illicit markets, balancing local and international interests, respecting socio-cultural practices, supporting small producers, addressing the illicit market, and developing inclusive policies, African countries can create a cannabis industry that benefits all. These lessons are crucial as the continent navigates the complex and evolving landscape of marijuana legalization.