2008年-世界发展银行全球_Democratic_Republic_of_Congo_Reforming_the_Public_Service_Wage_System___Background_Paper_54页_3mb

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

Core Content

This document provides an analysis of the status and challenges of the public service wage system in the Democratic Republic of Congo (DRC) and outlines recommended actions for reform. It is a background paper prepared by the World Bank for the Public Sector Reform and Capacity Building Unit (AFTPR) in the Africa Region, focusing on the transition from a centralized to a decentralized public administration model.

Main Challenges and Recommended Actions

1. Institutional Context and Decentralization

• The DRC is undergoing a transition from a centralized to a decentralized administrative model, with provinces gaining legal status as entities of regional self-government.
• The previous centralized model managed the relationship between the central government and the periphery from the top down.
• The current Civil Service management model still reflects the old institutional order, with outdated legislation and poor HR practices.

2. Public Service Workforce Overview

• The total number of public sector staff as of July 2006 was 489,645, with 130,472 being active civil servants (26.6% of the workforce).
• 225,773 primary and secondary school teachers (46%) and 244,052 (49.8%) by November 2006.
• The number of PSE teachers is expected to rise to 295,000 by 2009, due to the regularization of non-regularized teachers.

3. HRM Practices and Legal Status

• The legal status of public servants is divided into two categories: "statut spécial" (special status) and "statut général" (general status).
• Special status applies to teachers, health professionals, agriculture professionals, and others, governed by specific legislation.
• General status applies to civil servants, who are not merit or performance-based, and are managed by the Ministry of Public Service (MPS).

4. Complexity of Civil Service Categories

• The current legislation defines 35 different categories of civil servants, grouped into three main types: general, special, and particular.
• The particular statute includes 27 categories such as administrative staff in hospitals, architects, researchers, and others.
• This diversity has led to fragmented and inconsistent employment and financial conditions across the public service.

5. Issues with Payroll and Record-Keeping

• Payroll records are the only reliable source of data on civil servants, but they are not integrated with the MPS registry.
• The Ministry of Primary and Secondary Education (MPSE) maintains a separate, computerized database for teachers, which is not aligned with the general civil service database.
• The SECOPE (Service Comptable de Paye des Enseignants) manages teacher salaries, but it is not harmonized with the general civil service system.

6. Performance and Recruitment Issues

• Performance appraisals are not conducted, and the current legislation is not enforced.
• Recruitment and promotion are not merit-based and are often unilateral decisions made by ministers' cabinets without budgetary approval or MPS oversight.
• Vertical promotions have not occurred since 1993, and horizontal promotions are based on seniority rather than performance due to the lack of a functional evaluation system.

7. Need for Reform

• The government must modernize the Civil Service and amend its legislation to align with the new decentralized structure.
• A modern HRM information system (MIS) is needed to improve staff planning, job classification, and pay procedures.
• A consultative process between MPS and provincial administrations is essential to finalize the census and set up a new system of "regular" and "irregular" civil servants.
• A hiring freeze for five years is recommended to control recruitment and stabilize the system.
• The integration of payroll data with the central HRM system should be a key objective.

Key Recommendations

• Finalize the census of public and civil servants with the Ministry of Budget.
• Establish a centralized HRM information system to improve transparency and management.
• Harmonize payroll databases between SECOPE and MPS.
• Revise performance evaluation systems to align with the pay and career progression framework.
• Implement a hiring freeze for five years to control recruitment.
• Create a core of qualified professionals through selective recruitment to support future management roles.
• Clarify the legal status of teachers and other special category employees to ensure coherent salary scales and employment conditions.

Conclusion

The DRC faces significant challenges in managing its public service workforce due to the legacy of centralization, fragmented legal frameworks, and inconsistent HRM practices. A comprehensive reform strategy is essential to ensure a modern, efficient, and transparent public service system that supports decentralization and attracts skilled professionals. The key to success lies in the modernization of HRM systems, legal harmonization, and centralized oversight.