In what appears to be yet another attempt to bring order to Zimbabwe’s chaotic public transport sector, the government has issued a new Statutory Instrument (SI) that raises the minimum age for public service vehicle drivers. According to Statutory Instrument 10 of 2025, drivers must now be at least 30 years old to be eligible to drive passenger public service vehicles such as buses and kombis. This is a rise from the 25-year minimum, which was itself introduced as part of recent licensing changes. While the stated intention might be to enhance road safety, there is little evidence to suggest this measure will be effective, or that it addresses the root causes of the problems that plague the industry.

It should be pointed out that before this current measure, there have been a raft of changes to licensing. These changes, which were introduced in Statutory Instrument 119 of 2023, were meant to modernize Zimbabwe’s driver licensing system, aligning it with SADC standards. These changes saw a number of changes which included:

• Modernized Licence Categories: Introduction of SADC-aligned codes (A, B, C, D). Older licenses (pre-1967) require conversion to the new standards to improve cross-border recognition.
• Stricter Learner’s Licence Rules: Minimum age for learner’s licenses was set at 16 for motorcycles, 18 for trucks, and 25 for public transport, with 5 years of driving experience required before obtaining a public service vehicle license. This was meant to enhance passenger safety by ensuring that drivers have a considerable amount of experience before they ferry passengers.
• Mandatory Medical Exams: Drivers now need to pass medical and optical tests, particularly those driving public service vehicles, and must obtain these certificates from qualified doctors, opticians, and psychologists.
• Standardized Learner’s “L” Plates: Requirements for “L” plates to be 150mm square with specific letter dimensions. This ensured clear visibility.
• Tougher Driving Tests: Certificates of competency became mandatory before full licences are issued, with public transport and heavy vehicle drivers needing to undergo additional skill assessments.
• New Licence Fees: Introduction of new fees for learner’s licences, foreign licence conversions, and urgent processing, payable in Zimbabwean Dollars (ZWL) at interbank rates.
• Stronger Penalties for Traffic Offences: Reckless driving, driving under the influence (DUI), and failure to assist in accidents are listed as serious offenses leading to licence endorsements.

These changes were meant to improve road safety but, as always, there were concerns about the increased cost and bureaucracy that came with them, especially for public transport drivers.

Shortcomings of the New Age Requirement

The recent increase in the age limit to 30 years for public service vehicle drivers is problematic for several reasons. Firstly, and perhaps most glaringly, the government is relying heavily on Statutory Instruments (SIs) instead of going through parliament to enact more robust laws. SIs are introduced with little warning or public review of their potential impact and efficacy. These instruments lack the scrutiny and robust debate that a parliamentary process provides. This is not a way to make proper laws, especially those that have the potential to disrupt people’s lives.

Secondly, there is no data to demonstrate that reckless driving and other violations are primarily caused by those drivers within the 25-to-30-year-old age bracket. The government’s latest move seems to be based on a baseless assumption that adults between those ages are the cause of road traffic accidents. Furthermore, drivers involved in the illegal ‘Mushikashika’ business are already breaking numerous existing laws. Instead of introducing new regulations, the government could, and arguably should, focus its efforts on enforcing existing laws, which would effectively preclude these people from operating illegally. Why introduce new, potentially disruptive laws when existing ones are not enforced?

It is important to note that the 25-year-old age requirement was also meant to achieve the same goal: to make sure that public service drivers had some experience behind the wheel. The fact that this is not working should have indicated to the authorities that age is not the problem. Drivers who operate kombis and buses are sometimes very young which lends some credibility to the notion that stricter rules are needed, but those who argue that only those above the age of 30 should be able to drive public service vehicles have not backed that claim up with evidence.

The Underlying Issues Remain Unaddressed

Ultimately, this latest change does not address the real, underlying issues within the public transport sector, as outlined previously in our coverage of Mushikashika operations. The sector is rife with problems stemming from inadequate infrastructure and lack of enforcement and these include:

• Insufficient Registered Vehicles: The lack of enough registered and compliant public transport vehicles to meet the demands of commuters means there is always a market for illegal operators who are not always the oldest drivers.
• Poor Road Conditions and Traffic Congestion: The terrible state of the roads contributes to traffic delays, which encourage passengers to turn to the quicker, but often more reckless, options provided by Mushikashika.
• Outdated Infrastructure: Outdated designated bus stops fail to meet the needs of modern commuters and make it difficult to move around. This is a well-established fact, and yet, the government seems to consistently ignore this fundamental issue.
• Corruption: Corrupt law enforcement officers further exacerbate the problem by accepting bribes and turning a blind eye to illegal operations. This corruption makes it difficult for genuine efforts to be effective.

This new age regulation is not likely to be effective for the same reason previous attempts to fix public transport have failed: the government is focusing on the symptoms rather than addressing the root causes of the issue.

The government’s latest intervention, while perhaps well-intended, is unlikely to resolve the ongoing problems within the public transport sector. This is because it seems to be based on assumptions rather than evidence, and it does not address the fundamental infrastructural and regulatory issues that enable the chaos. Instead of resorting to piecemeal regulations via Statutory Instruments, a more holistic, evidence-based approach that addresses the root causes is needed. Until then, these kinds of interventions will continue to prove ineffective, and the issues will persist. It is also important that data be kept and made available for scrutiny before such measures are implemented.