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Decentralization and Power in the DRC

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Decentralization and Power in the DRC UNIVERSITY OF ANTWERP INSTITUTE OF DEVELOPMENT POLICY AND MANAGEMENT Dissertation Decentralization and Power in the DRC An analysis of the relations of power between the DRC’s central, provincial and DTE state levels that drive and are driven by decentralization Dries BOEYE Master of Development Evaluation and Management Supervisor: Prof. Dr. De Herdt Academic Year 2014-2015 2 UNIVERSITY OF ANTWERP INSTITUTE OF DEVELOPMENT POLICY AND MANAGEMENT Dissertation Decentralization and Power in the DRC An analysis of the relations of power between the DRC’s central, provincial and DTE state levels that drive and are driven by decentralization Dries BOEYE Master of Development Evaluation and Management Supervisor: Prof. Dr. De Herdt Academic Year 2014-2015 3 Preface The process towards this dissertation, which started in the academic year of 2012-2013, has been marked by ineffiency and delay. However forbearance prevailed over acquittance for which I am thankfull to Prof. De Herdt and Dr. Marivoet. Their patience and advice allowed me to modestly discover the topic of decentralization in the DRC in a rather a-typical way. It was only in the autumn of 2014 that I picked this topic of which I knew rather few. Actually it is better to say “I know”, rather then “I knew,” because I believe that much more is needed than a in Belgium based desky study to get to know a topic as broad as the decentralization reform in the DRC let alone write a paper which can help it’s people in their struggle for a better future. On another level, I am gratefull to many people whom help me along the way towards this final work. First, to all my classmates at IOB whom brought me inspiration and knowledge from all over the world. Second, to all my colleagues and all the youngsters of vzw Habbekrats, whom have learned me more than books can teach. Third, to Leen, Dirk, Joris, Jeroen, Jill, Lisa and the baby to come, whose love has been my engine. To end, this dissertation is dedicated to Andreas De Ruijter, whose enthusiasm and optimism accompanied me along the road. 4 Table of contents Preface ........................................................................................................................................ 4 Table of contents ........................................................................................................................ 5 Lis of Tables and Maps .............................................................................................................. 6 List of Tables .......................................................................................................................... 6 List of Maps ........................................................................................................................... 6 List of acronyms ......................................................................................................................... 7 Executive Summary ................................................................................................................... 8 Introduction ................................................................................................................................ 9 Chapter I: Theory of Decentralization ..................................................................................... 13 Defining Decentralization .................................................................................................... 13 Chapter II: History of (de)centralization in the DRC ............................................................... 18 Colonial Period ..................................................................................................................... 18 The 1st Democratic Republic of Congo ............................................................................... 20 The 2nd Democratic Republic of Congo ............................................................................... 22 Transition Period .................................................................................................................. 24 Chapter III: The current Decentralization in the DRC ............................................................. 27 Deconcentration in the DRC ................................................................................................ 27 Devolution in the DRC ......................................................................................................... 31 Fiscal Decentralisation in the DRC ...................................................................................... 34 Chapter IV: Decentralization and the power relations between the different levels of state ... 38 The Center ............................................................................................................................ 39 The Provinces ....................................................................................................................... 42 The DTEs ............................................................................................................................. 44 Recent Decentralization Reform .......................................................................................... 46 Chapter V: Conclusion ............................................................................................................. 49 Bibliography ............................................................................................................................. 51 5 Lis of Tables and Maps List of Tables Table 1: p.13 - Examples of possible beneficial outcomes of decentralization. Table 2: p.16 - Examples of possible unfavourable outcomes of decentralization. Table 3: p.28 - Politico-administrative divisions of the Third Republic of Congo Table 4: p.36 - Strict application of art. 175 for 2010 national revenu Table 5: p.43 - Retrocession of 2014 national revenue List of Maps Map 1: p.19 - 1947: Belgian Congo – 6 provinces and 25 districts Map 2: p.21 - 1963: 1st Democratic Republic of Congo: The 21 Provincettes Map 3: p.23 - 1988: Zaïre: 11 Provinces (régions) and 40 subdivisions (sous-régions) Map 4: p.29 - 2006: 26 new Provinces, rural density and urban areas Map 5: p.32 - Distribution of national languages and ethnic diversity 6 List of acronyms AFDL Alliance of Democratic Forces of the Liberation of Congo DRC Democratic Republic of Congo DTE Decentralized Territorial Entities EU European Union FNLC National Liberation Front of Congo FRUONAR United Front of non-armed opposition IMF International Monetary Fund MONUSCO United Nations Organization Stabilization Mission in the DRC MLC Movement for the Liberation of the Congo RDC-Goma Rally for the Congolese Democracy of Goma PPRD People’s Party for Reconstruction and Democracy TIC Tax of Common Interest UN United Nations UODC Union of the Oppossition of the Democratic Congo USD United States Dollar 7 Executive Summary In order to analyse how vertical relations of power within the DRC shape decentralization reform and vice versa, this analysis starts with a firm elaboration on the concept of decentralization. A distinction is made between deconcentration, devolution and fiscal decentralization and their benefits, risks and disadvantages are discussed. It is argued that whichever of the latter effects prevails is influenced by the exact content of a decentralization reform and the context in which it takes place. Then, the analysis moves towards the history of recurrent centralization and decentralization in the DRC. It shows how the current decentralization reform is rooted in a long history in which the state’s hierarchy has constantly changed as a result of the shifting relations of power. After this historic introduction, the current 2006 decentralization reform of the DRC as well as its merits, risk and disadvantages are discussed. It presents possible benefits such as: decrease of the proximity gap of the administrations, increase of local-decision making and participation, stabilization of national unity, a better vertical distribution of the budgets and an increase of tax revenue. It presents risks and possible disadvantages such as: the lack of capacity, unwillingness within the bureaucratic administration, oppression of minorities, decrease of national unity and horizontal imbalance of fiscal decentralization. Based on the previous, the focus turns towards the analysis of power relations and decentralization reform and their reciprocal relationship. The analysis shows that the central level, where power itself is horizontally centered around Joseph Kabila, has been able to procrastinate large parts of the decentralization. In doing so, the center has remained the predominant power despite the highly decentralized nature of the constitution. However, the analysis also shows that, some, yet far from all, provinces have been able to firmly increase their absolute power and their power vis-à-vis the central level. They have done so on the basis of their advantageous endowments and by capitalizing on the, insufficient but existing, decentralization reforms undertaken. In addition to this, they have increased their power by holding back on the further decentralization towards the DTEs. The latter level, although identified as key in order to harvest many of the possible development benefits, has been deprived of almost all resources. Moreover, their autonomy is negligible as local elections have yet to take place and local leaders are nominated by the center. The analysis ends by discussing the recent installment of the
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