2008年-世界发展银行全球_Democratic_Republic_of_Congo_Rebuilding_the_Public_Service_Wage_System___Synthesis_Note_34页_3mb

Summary of Democratic Republic of Congo Rebuilding the Public Service Wage System

Core Content

This document outlines the challenges and proposed reforms for the public service wage system in the Democratic Republic of Congo (DRC), focusing on the impact of decentralization and the need for a more transparent, equitable, and sustainable wage structure.

Main Issues

• Fragmented Legal Framework: The DRC public service operates under a fragmented legal system with over 27 different special status categories and numerous decrees, making it difficult to manage effectively.
• Unclear Civil Servant Numbers: The exact number of civil servants is not known due to the ongoing census and changing estimates, hindering reform efforts.
• Weak Human Resource Management: There is no functioning HR system, leading to haphazard recruitment and lack of career progression. The Public Service Ministry has been marginalized.
• Unsustainable Bonus System: The current wage system is based on a complex and opaque bonus structure, which has led to significant wage disparities and a lack of incentives for civil servants.
• Fiscal Constraints: The wage bill is a significant portion of public expenditure, and without proper management, it risks crowding out other essential public investments.

Key Reforms and Principles

The reform agenda is structured around several key principles:

1. Transparency: Eliminate most bonuses and allowances, except for those defined in the revised law and an incentive-based bonus up to 25% of total salary.
2. Universal Allowances: Keep transport and housing allowances as the only universal allowances.
3. Equity: Reduce the wage gap between Kinshasa and provinces to 1:6 for the Director/Office Messenger ratio over four years.
4. Simplified Wage Structure: Transition from three wage bands to two (Kinshasa and provinces) and introduce a more understandable wage system.
5. Pension Reform: Establish a fund to finance retirement benefits, with gradual increases in pension levels.

Proposed Scenarios

Two scenarios are outlined for the reform:

• Scenario 1: Incorporates all bonuses into the basic wage, except for transport and housing allowances. The wage differential is increased to 1:6, and the gap between Kinshasa and provinces is reduced by 20% annually over four years.
• Scenario 2: Similar to Scenario 1, but excludes housing allowances from the basic wage. The same wage differential and gap reduction targets apply.

These scenarios aim to simplify the wage system, reduce discrepancies, and ensure that the wage structure is more competitive and sustainable.

Fiscal Impact

• The reform would increase the wage bill as a percentage of GDP and total public expenditure initially but would stabilize over three to four years.
• The wage bill is expected to decrease as a proportion of GDP and total expenditure from 2009 to 2011.
• The fiscal impact varies across sectors, with education and health being particularly affected due to the large number of unregularized staff.

Reform Management

• The government has established an expert group to define a wage system reform strategy.
• The reform should be introduced gradually, in line with the country's financial capacity.
• The process should be supported by international best practices and a comprehensive legal framework.

Sector-Specific Reforms

• Education Sector: A new wage scale was introduced in August 2007, incorporating transport and housing allowances into the basic wage, reducing wage gaps, and regularizing the status of 22,000 unaccounted staff.
• General Civil Service: A new wage structure is to be introduced in 2008, with a focus on transparency and simplification.
• Health and Other Sectors: Similar reforms are expected, with the goal of rationalizing the number of civil servants and aligning wage structures with the general civil service.

Conclusion

The reform of the DRC public service wage system is essential for improving governance and public service efficiency. It requires a comprehensive approach that includes legal, fiscal, and administrative changes. The proposed reforms aim to create a more equitable, transparent, and sustainable wage system, which will support the broader goals of decentralization and public service rationalization.