2010年-世界发展银行全球_Democratic_Republic_of_Congo_-_The_Impact_of_the_Decoupage___Executive_Summary_96页_5mb

Summary of the DRC Decoupage Executive Summary

Core Content

This report, produced by the World Bank, the European Commission, the Belgian Development Cooperation, and the United Nations Development Programme (UNDP), examines the financial, institutional, and administrative challenges of implementing the Decoupage (territorial administrative reform) in the Democratic Republic of Congo (DRC). The reform, mandated by the 2006 Constitution, aims to increase the number of provinces from 11 to 26 by 2010. The report analyzes the feasibility of this reform, especially in the context of the ongoing decentralization process, and provides recommendations for its successful implementation.

Main Points

1. Decoupage Overview

• Decoupage refers to the administrative and territorial reorganization of the DRC, which was intended to be completed by May 2010.
• The reform is part of an unfinished decentralization process that began in 2007 with the establishment of provincial assemblies and governors.
• The 2006 Constitution mandates the creation of 26 provinces, which will be established by dividing the existing 11 provinces.

2. Fiscal Challenges

• The central government has not fully implemented the transfer of 40% of domestic revenues to the provinces.
• Transfers are based on estimates of wage and operational costs, which are not effective.
• The Solidarity equalization formula was introduced in the 2008 budget, but it was not fully effective in addressing the financial needs of the provinces.
• Table 1 illustrates that even with projected revenues, the new provinces face significant deficits in 2009 and will become increasingly unsustainable over time.

3. Administrative and Institutional Challenges

• Existing provincial centers often lack basic administrative infrastructure, such as buildings and equipment.
• Many civil servants in the provinces are beyond retirement age (60% or more in most provinces), and many are not on the formal payroll (non-mecanise).
• Judicial services are inadequate or absent in many of the new provinces.
• The creation of new capitals may not be feasible due to poor infrastructure, leading to marginalization of these areas.

4. Political and Legal Considerations

• The legal framework for decentralization was established in October 2008, but it has not yet been fully implemented.
• The parliament has not responded to the government’s strategy for decoupage, and the government has not fleshed out the strategy.
• Political legitimacy is a concern if governors are elected before the May 2011 elections, as new legislatures may not recognize them.
• A phased approach to decoupage is recommended to avoid premature creation of provinces and ensure political stability.

5. Recommendations

• Delay political decoupage until after the May 2011 elections to ensure legitimacy.
• Build foundations for fiscal and administrative decoupage for provinces that are ready.
• Coordinate with donors to ensure equitable funding for new provinces.
• Define minimum standards for government buildings and infrastructure.
• Improve data collection and transparency in financial transfers.
• Address the issue of non-mecanise staff and the excess of retirees.
• Revisit allocation criteria to ensure fairness in resource distribution.

Key Information

• Decoupage is the process of dividing the DRC into 26 provinces by 2010.
• The 2006 Constitution mandates this reform as part of a broader decentralization effort.
• The main challenges are:
  • Financial sustainability: Provinces lack sufficient funds to cover basic operational costs and investments.
  • Administrative capacity: Many provinces lack the necessary infrastructure and staff.
  • Legal framework: The decentralization process is hampered by an incomplete legal structure.
  • Political legitimacy: Premature creation of provinces may lead to political instability.
• Fiscal transfers are not yet fully implemented, and the current system is inefficient.
• Solidarity equalization is a proposed mechanism to ensure fair distribution of resources, but it has not been fully effective.

Conclusion

The report emphasizes that the Decoupage process in the DRC is highly complex and faces significant financial, administrative, and political challenges. It recommends a cautious and phased approach, with prioritization of resource allocation, improvement of administrative capacity, and coordination with international donors to ensure the sustainability and legitimacy of the reform. The success of decoupage depends on addressing these challenges through systematic planning, transparent resource distribution, and strengthening institutional frameworks.