Strengthening the Capacity of Civil 
Society and Business to Promote 
Sustainable Economic Growth along the 
Congo River and its Tributaries 
Mid-Term Evaluation 
September 2004 
TABLE OF CONTENTS 
,.. Glossary.. ............................................................................................ .ill 
Acknowledgements.. ............................................................................... .iv 
Project Identification Data Sheet.. ................................................................. .v 
I. EXECUTIVE SUMMARY .............................................................. .1 
11. INTRODUCTION. ....................................................................... .2 
A. CONTEXT 
B. IRM PROJECT 
B.l PROBLEM 
B.2 THEORY OF INTERVENTION 
B.3 DESIGNOFTHEPROJECT 
C. PURPOSE AND METHODOLOGY OF EVALUATION 
111. FINDINGS.. ............................................................................... .9 
IV. CONCLUSIONS.. ....................................................................... .2 I 
V. RECOMMENDATIONS.. ............................................................ -22 
ANNEXES 
Annex 1: Scope of Work 
Annex 2: Community Interview Form 
Annex 3: Individual Interview Form 
Annex 4: Evaluation Plan 
Annex 5: Interviews and Persons Met 
Annex 6: References 
~elance Economique Mid-Term Evaluation 
GLOSSARY 
ANR (Agence Nationale de Renseignement): Congo Intelligence Agency 
ASSARCO (Association des Armateurs du Congo): Association of Boat Owners 
CBO (Community Based Organization) 
Chef du Territoire: Local Administrator; noted as one state service that wadis collecting 
illegal taxes at ports. 
CLIFS (Congo Livelihood Improvement and Food Security Project): The IRM 
Livelihoods project that takes place in the same areas as this project 
CLATS (Commites de Lutte Anti-Tracasseries): These CBOs were created at the 
suggestion of this project to fight against corruption at the community level. 
CTO (Cognizant Technical Officer): This is the USAID person responsible for financial 
and programmatic oversight of a partners project. 
DGI (Direction Generale des Impots): State service in charge of taxes, working illegally 
at ports 
DGM (Direction Generale d'lmmigration): Legal State Service for immigration that 
collects taxes at the ports, often illegally. 
EDC (Education Development Center): USAID's partner for its Basic Education project 
that will start to be implemented in the same areas as IRM (Equateur and Bandundu) 
FAC (Forces Armees Congolaise): The Kinshasa government's army during the 1998- 
2003 conflict, before the unification of the armies into the FARDC (Armed Force of 
DRC) 
Hygiene: Legal state service at ports to check health status of travelers 
IGAs (Income Generating Activities) 
IRM (Innovative Resources Management): A US PVO and USAID's implementing 
partner for this project. ---- - - - - - - - - - - - - - - - - ----- ----- ----- 
Manutention: Informal sector service at ports for casual labor and handling. 
MLC (Movement pour la Liberation du Congo): Rebel force that operated in Northwest 
DRC during the conflict and now a political party. 
Relance Economique Mid-Term Evaluation 
NGO (Non-Governmental Organization) 
OCC (Office Congolaise de Controle): Legal State Service that collects taxes at the ports. 
OFIDA (OfJice de Duane et Assise) Legal State Service that collects taxes at the ports. 
RCD (Rassemblement Congolais pour la Democratie): Rebel movement that operated in 
the East of the DRC during the conflict and now a political party. 
Relance Economique (Economic Recovery): The short title of this project 
RVF (Regis de Voies Fluviale): State Service for control and maintenance of Congo's 
rivenvays 
SO (Strategic Objective) 
SOW (Scope of Work) 
TOR (Terms of Reference) 
Tracasseries: In the DRC the definition of tracasserie is very broad. A traccaserie is a 
form of corruption or abuse by one person who extols power over another person. 
UCAB (Union des Armateurs des Balaniers): A union of traders on small boats. 
US AID (United States Agency for International Development): US Government Donor 
Relance Economique Mid-Term valuation 
ACKNOWLEDGEMENTS 
Many thanks to everyone who provided input to the evaluation of IRM's Relance 
Economique (Economic Recovery) project. 
To the community committees against tracasseries (CLATs) in Lusanga, Kikwit, 
Mbandaka, Ngombe, and Maita, thank you for taking the time to meet with us and share 
your insights, observations, and recommendations. 
To the crew of La Reine dJIRM, and their team leader, Jose Cabrera, thank you for your 
gracious hospitality and your patience and time during those long interviews on the way 
down the river, and many thanks for getting us back to Kinshasa in one piece. 
To Desire Bolefa, thank you for being a core member of our team for the Kinshasa￾Mbandaka leg, for your work on individual and group interviews, and for your translation 
skills. 
To the IRM teams in Mbandaka, Kikwit, Lyse Pilon, the Country Manager for 
IRMDRC, and all her staff for your work, your time, your hospitality, and logistical 
assistance. We would have never made it to so many places in such a short time. 
And finally to all of those brave individuals who are dedicated to the Lutte Anti￾Traccasseries, "ensemble on peut reussir!" 
Relnnce Economique Mid-Term Evaluation 
PROJECT IDENTIFICATION DATA SHEET 
1. Country: 
2. Project Title: 
3. Implementing Partner: 
4. Project Dates: 
5. Current Funding: 
6. Project Beneficiaries: 
7. Implementation mode: 
8. Project Manager: 
9. USAID CTO: 
10. Previous Evaluations 
DRC 
Strengthening the Capacity of Civil Society and Business to 
Promote Sustainable Economic Growth along the Congo 
River and its Tributaries 
Innovative Resources Management (IRM - a US PVO) 
1. First Project Agreement: August 2003 to March 2004 
2. 1" Cost extension April 2004 to September 2004 
3. 2"d Cost extension October 2004 to September 2005 
$999,999 (Phase 1 FundingIEvaluation Period) 
$1,380,000 (Phase 2 Funding, starting October 2004) 
Total: $2,379,999 
Primary: Traders, Fishermen, Farmers, and the population 
in 49 communities along the Congo River and its 
tributaries in Equateur and Bandundu Provinces 
Secondary: The citizens of the DRC 
Cooperative Agreement to IRM 
Lyse Pilon, Country Director IRM 
Katherine Nichols, Activity Manager and CTO 
None 
Relance Economique Mid-Term Evaluation 
I. EXECUTIVE SUMMARY 
Starting in August 2003, USAIDIDRC provided IRM with approximately $1 million to 
combat corruption on the Congo River and its tributaries. To address the widespread and 
pervasive problem of corruption and illegal rent seeking, both of which inhibit economic 
growth and impact livelihoods of the lower level economic actors along the Congo River 
corridor and its tributaries, IRM designed the 'Relance Economique project, 
In anticipation of USAID7s approval for Phase 11, beginning in October 2004, the USAID 
evaluation team conducted a mid-term evaluation of the project in September 2004. The 
second phase of the project will build on the activities and investments from the original 
project, as well as expand geographically the project to new areas along waterways of 
significance. USAID recently signed another cooperative agreement with IRM for $1.38 
million to cover an additional 12 months of project activities. 
The purpose of the mid-term evaluation was threefold: to determine the impact of the 
project in building the capacity of local associations and platforms involved with the fight 
against tracasseries; to evaluate the level and effectiveness of service delivery to 
community members by these groups; and to evaluate the effectiveness of IRM's 
approach to capacity building. 
In summary, the team believes that IRM has been successful in meeting its three project 
objectives under Phase I. A general decrease in tracasseries and an increase in the level 
of awareness have been achieved in a significant majority of the target areas. 
The team also concluded that the model of local capacity development employed by IRM 
is appropriate, particularly in light of the sensitive issue of tracasseries throughout the 
DRC. Furthermore, IRM's multi-sectoral approach helped to increase individual project 
results and impacts. 
In addition, the team offers several recommendations to both IRM and USAID to 
consider as Phase I1 commences. The main points highlighted for IRM include: 
ensure more frequent visits to targeted communities through the development of 
detailed implementation and M&E plans; 
ensure that IRM has sufficient staff in place, both in size and technical expertise; 
provide structured training to the CLATs and assist them in starting income￾generating activities to improve organizational sustainability; 
improve the level and type of participation of women; and, 
collect consistent data and provide timely and detailed reporting to USAID. 
The team recommended that USAID insist on regular reporting and conduct regular 
monitoring site visits to IRM's focus areas along the corridor; support complementary 
programs in the same areas where IRM is working; and actively participate in the 
development of IRM's implementation plan. 
- - ----;- ----- ---- ---- 
1 1 /09/2004 Relance Economiqtre Mid-TeFmETaliiation - - - - - - - 
---- I 
11. INTRODUCTION 
A. CONTEXT 
The DRC is emerging from 40 years of corruption and dictatorship and almost ten years 
of armed conflict. In May 1997, the 30 year Mobutu Sese Seko dictatorship was toppled 
by a rebellion led by Laurent Kabila. Kabila's regime was subsequently challenged by a 
Rwanda and Uganda backed rebellion in August 1998. In total seven African countries 
were involved in the conflict. A cease-fire was signed on 10 July 1999, but sporadic 
fighting continued. Laurent Kabila was assassinated in January 2001 and was succeeded 
by his son, Joseph Kabila. In October 2002, the majority of foreign forces withdrew from 
eastern Congo and two months later, an agreement was signed by all remaining warring 
parties in the country to end the fighting and set up a transitional government of national 
unity. 
As a result of years of misrule and armed conflict, the country is in a shambles. DRC is 
one of the poorest countries in the world, with desperate indicators for infant and child 
mortality and the highest maternal and crude mortality rates in the world. GDP has 
shrunk from $380 in 1960 to $167 in 1992 to $96 in 2002. Eighty percent of the 
population lives on less than $0.50 per day. 
B. IRM PROJECT SUMMARY 
B.l PROBLEM: 
Addressed by IRM 
Lack of central government authority, will, and capacity, has meant that government and 
parastatal workers remain on the state pay roll but are never or rarely paid by the state. 
This has resulted in a status quo of corruption and illegal rent-seeking behaviors at all 
levels: from national authorities to military, local authorities, teachers, the health care 
system, and the list goes on. The Congo's economic management is centered on this 
excessive illegal and legal taxation and corruption. 
A study conducted from April to May 2003 by the USAID-supported IRM project 
Relance Econornique (Strengthening the Capacity of Civil Society and Business to 
Promote Sustainable Economic Growth along the Congo River and its Tributaries in the 
DRC) estimates that only 4% of legally collected fees find their way to the central 
government coffers. This diversion severely limits the funds available for government 
investment in such very basic services as a functioning justice system, education, health 
care, potable water, and the transportation network. The illegal collection of fees and 
fines by government employees (including the police and the military) by force and by 
private individuals creates a culture of oppression, legitimized thievery, undermines the 
rule of law, and creates and an environment of fear. Weak government services, non￾transparent commercial regulations, and the high cost of food and other essential goods 
continue to contribute to political instability and violence in the DRC. In addition, these 
Refance Economique Mid-Term Evaluation 
high levels of corruption are a central factor in the reluctance of foreign and domestic 
commercial investors to invest in the DRC. 
The Congo's transportation network has fallen into complete disrepair due to lack of 
maintenance. As a result, the country's economy is dependant on what is often referred 
to as Congo's backbone, the Congo River. This river and its tributaries form a mass 
transportation grid throughout a large part of the country: in Orientale, Equateur, 
Bandundu, Kinshasa, and Bas-Congo Provinces. The Congo River serves as a 
"superhighway" for the evacuation of produce from the interior of the country and for the 
transport of commercial goods from major cities to the interior. Farmers, fishermen, 
hunters, and craftsmen in the Provinces of Orientale, Equateur, and Bandundu, sell their 
goods to barges and pirogues that frequent the Congo's river ways. 
According to a study conducted by IRM', this environment of illegal taxation and 
tracasseries2 is also the cause of many conflicts at the local level. IRM's survey showed 
that 35% of people interviewed believe that the number one cause of conflict in their area 
takes place when people refuse to pay illegal taxes. 4 1 % of people stated that conflict in 
their communities is caused by lack of understanding, including knowledge of what is a 
legal versus illegal tax and what their individual rights are. 
Additional Factors that Contribute to Problem 
The war severely reduced river trade. The country was effectively divided into three 
main parts: RCD-Goma in the East, MLC in the Northwest, and Government forces loyal 
to Kabila (the FAC) in the West. The Province of Equateur was divided between the 
MLC and the FAC. The FAC kept the provincial capital of Mbandaka and the MLC 
created Gemena as their provincial capital. The Congo River was thus divided, and trade 
' "Enquete sur I'Evaluation des Tracasseries et I'Inventaire des Conflits dans les zones d'Intervention de 
IRM; Philippe Ngwala Malemba, IRM M&E Officer, May 2004 
Note: The word tracaasserie does not translate well into English. In lieu of finding an English word, we 
will use the french word tracasserie with the following definition. In the DRC the definition of tracasserie is 
very broad. A traccaserie is a form of corruption or abuse by one person who extols power over another 
person. Tracasseriescan happen: 
9 at the family level between a husband and wife (spousal abuse); 
9 at the community level between a teacher and a student (teachers often hold pop quizzes and the 
students who are absent have to make up for the quiz after hours. This means that the student 
has to contribute money to the teachers overtime if they want to make up the quiz); 
> at the community level between a patient and a hospital (hospitals will hold patients hostage if 
they do not pay their bill upon release); 
9 between local authorities and commercial vendors, traders, fishermen, and farmers (military and 
civil authorities demand illegal taxes and can fine or imprison someone for not paying) ; and 
9 at the national level by central government authorities (stealing from central coffers or not paying 
wages to state employees). 
Traccaseries have become a way of life in the absence of human rights, good leadership, and local 
governance. The cycle of tracasseurover tracassee will continue to exist until the state pays their bloated 
public sector salaries, until people know their rights, and until the economy begins to recover. The first of 
those three things, salary payments, is outside of the hands of the IRM project but the second two are 
being addressed through information dissemination, training, and agricultural support and development. 
Relance Economique Mid-Term Evaluation 
between Kinshasa and Kisangani ceased. At the same time, the state system had become 
severely bloated by state employees who were not being paid. In order to earn their 
income, government services began setting up shop where the money was coming into 
and out of their "area of responsibility": at the ports. Despite a law that was decreed in 
March 2002 that prohibits government services beyond the main four (OCC, DGM, 
Hygiene, and OFIDA'), an IRM survey in 2003 found that an average of 20 public 
services were functioning and demanding taxes at the ports along the Congo river and its 
tributaries. The traders who sold their produce at these ports were forced to pay a tax to 
each of the 20 services. Out of all these taxes, only 8% were legal, putting an enormous 
burden on the local trader so that production of goods was often more costly than what 
they were able to sell it for after taxes. In 2003, IRM estimated that the profit margin for 
the average local trader was 4%. If they were to eliminate all tracasseries, the profit 
margin would be 33%. 
Following the peace agreement and the institution of a unified transitional government in 
June 2003, the ability to travel and trade across former front lines resumed. This enabled 
boat convoys from the interior of the country to travel from one former rebel-held area to 
another, thereby improving trade. However, the country's transportation river and road 
infrastructure had deteriorated significantly over the past ten years, and the pre-war level 
of trade has not yet returned. . 
B.2 THEORY OF INTERVENTION 
IRM's proposal argues that by reducing petty corruption such as illegal taxes, inflated 
legal taxes, and illegal rent-seeking behaviors, the Congo's provincial and in turn, 
national economies will be jump-started to generate employment and government 
revenues, thus removing some of the pressures of poverty. Furthermore, IRM states that 
alleviating these stress factors in turn will help in reducing civil strife and the 
vulnerability of sub-groups within the population to manipulation by political elites. 
Until corruption and impunity for economic crimes are effectively addressed, they argue, 
conflict will continue to be a way of life in the DRC. 
B.3 DESIGN OF PROJECT 
IRM designed the 'Relance Economique' project to address the problems of corruption 
and illegal rent-seeking, both of which inhibit economic growth and impact livelihoods of 
the lower level economic actors along the Congo River corridor and its tributaries. The 
original cooperative agreement was issued for a period of eighteen months (from October 
2002 to March 2004). Phase I1 of the project was authorized through a follow-on 
cooperative agreement which has extended the project completion date to September 30, 
2005. The second phase of the project will build on the activities and investments from 
the original project, as well as expand geographically the project to new areas along 
waterways of significance. Since the completion of the evaluation, IRM has received a 
follow-on grant of $1.38 million for an additional 12 months. 
OCC: Commercial Surveillance Service; DGM: lmmigration Service; ; Hygiene is for Health services; 
and OFIDA: Customs Service 
1 1/09/2004 Relnnce Economique M id-Term Evaluation 
To achieve the goal of reducing illegal taxes, fines, and rent-seeking along the Congo 
River, IRM focused its activities around three objectives: 
Objective 1 : Increased public and stakeholder awareness of the social and economic costs 
of illegal rent-seeking behaviors, and the potential benefits of more transparent policies 
and practices for regulating traffic on Congo's waterways 
Indicators: 
Baseline survey report completed 
Multi-stakeholder coalition meetings held to disseminate report findings and 
organize activities 
Press communiqud and media spots designed and facilitated multi-stakeholder 
process 
Research and analysis on social and economic effects of illegal rent-seeking 
disseminated to public audiences through multiple media outlets 
Objective 2: Enhanced advocacy role for a broad range of stakeholder groups and 
coalitions with interest in the Congo's river transportation system with the aim of 
reducing illegal rent-seeking by the government. 
Indicators: 
Stakeholder groups and coalitions gain capabilities for advocacy on behalf of 
reduction of illegal rent-seeking on Congo's waterways 
Stakeholder groups and coalitions actively advocating for reduced illegal rent￾seeking 
Stakeholder groups and coalitions crafting and communicating policy 
recommendations to government officials 
Multi-stakeholders create opportunities for direct engagement with government 
officials 
Interested government officials participate in stakeholder capacity building 
workshops and TA sessions 
Objective 3: Stakeholder groups with strengthened ability to provide services to 
constituents become more sustainable in the areas of operations and advocacy. 
Indicators: 
Stakeholder group assessments conducted 
Participatory selection process for technical assistance priorities completed 
Specialized tech assistance provided in identified priority areas 
Stakeholder groups acquire identifiable strategies for long-term viability of 
organizational mission 
Effectiveness of organizations service provision to membership or client 
constituencies enhanced 
Membership or active constituent levels of stakeholder groups increased. 
Relance Economique Mid-Term Evaluation 
IRM developed its activities around the core theory that civil society, business 
associations, and government authorities all have a stake, as well as play a critical role, in 
addressing the problems of illegal taxation along the Congo River corridor. The 
assumption was that all parties would benefit from increased economic activity along the 
river which results from 'normalization' of the system. IRM's initial project used the 
approach of encouraging all stakeholders to become activists in the fight against 
corruption. Recognizing that the obstacles to overthrowing the entrenched system of 
status-quo corruption, which has become taboo for the population to discuss openly, IRM 
placed the emphasis on opening and supporting channels of communication between the 
various stakeholder groups, government officials, and others. This approach gave rise to 
the formation (or, in some cases, the strengthening of pre-existing, loosely-formed 
community groups) to the CLATs - Committee de Lutte Anti-Tracasseries (translation: 
the Committees Fighting Against Tracasseries). 
IRM chose the geographical location for its activities based on discussions with the 
Government of DRC, the World Bank, and USAIDIKinshasa. At the time of the 
evaluation, IRM is working with approximately 15 CLATs in Equateur Province and 25- 
30 in Bandundu Province (1 0 on Kasai River axis; 10 on Kwilu River axis, and 5 on Mai￾Ndombe axis).4 Finally, there is one CLAT in the formative stage located in Kisangani. 
IRM plans to increase its level of involvement in Orientale Province. 
At the same time, IRM is conducting a complementary project in the same areas to 
improve agricultural production. This project has also helped to strengthen community 
participation in anti-corruption activities as they began to get organized to generate 
agricultural produce and increase income levels. This project is also USAID funded and 
is called CLIFS. 
IRM's staffing pattern for the Relance Economique project includes a Team Leader, 
DeputyILogistics Manager, 2 facilitators in Kinshasa (1 River Expert, 1 Legal Advisor), 
and 3 facilitators per province (Equateur and Bandundu). 
C. PURPOSE AND METHODOLOGY OF EVALUATION 
The purpose of the mid-term evaluation was threefold: to determine the impact of the 
project in building the capacity of local associations and platforms involved with the fight 
against tracasseries; to evaluate the level and effectiveness of service delivery to 
community members by these groups; to evaluate the effectiveness of IRM's approach to 
capacity building. 
Note: CLATs are continuing to form throughout the project areas. These figures reflect the number of 
CLATs in existence at the time of the evaluation. 
1 1/09/2004 Relance Economique Mid-Term Evaluation 
Methodology: 
The team's plan was to conduct interviews and site visits with IRM field offices in 
Mbandaka (Equateur Province) and Kikwit (Bandundu); the local associations that have 
been forming along the river, also known as CLATs (Committee de Lutte Anti￾Tracasserie) along the Congo and Kwilu rivers. In order to evaluate the project, the team 
decided to collect information using the following methods: 
A three member team from USAID flew to Mbandaka in Equateur Province to take the 
IRM boat from Mbandaka to Bandundu, stopping at six IRM targeted communities along 
the route and discuss progress to date with the communities in each location. At the same 
time the team planned to conduct key informant interviews with IRM staff. The six 
communities were: Mbandaka, Ngombe, Maita, Mushie, Bandundu, Lusanga, and 
Kikwit. However, when the team arrived in Mbandaka, one of the boats two engines had 
broken the same day so the journey was rearranged to make up for the time that would be 
lost in travel on the boat. Thus, the team decided to take the boat from Mbandaka to 
Kinshasa, visiting Mbandaka, Ngombe, and Maita along the route. The team then flew 
from Kinshasa to Kikwit and drove to Lusanga to conduct the Bandundu part of the 
evaluation. 
Selected five communities targeted by IRM along the key river routes (Congo and 
Kwilu Rivers) 
Equateur Province: Mbandaka, Ngombe, Maita,, 
Bandundu Province: Lusanga, and Kikwit 
Conducted group interviews with the associations (CLATs) 
Group interviews with CLATs in each location 
o 5 CLATs interviewed 
o Total of 33 CLAT members in Equateur Province 
o Total of 23 CLAT members in Bandundu 
Conducted individual interviews with community members 
Individual interviews with traders, fisherman, and farmers, and market women in 
each location - 18 individual interviews in Equateur 6 
Conducted key informant interviews IRM staff. 
Key informant interviews with IRM Staff - 
o Management in Kinshasa - 1 person (Country Director) 
o IRM Field Office in Mbandaka - 1 Team leader and 2 facilitators 
o IRM Field Office in Kikwit - 1 Team Leader and 2 facilitators 
Key informant interview with CLAT member from Bilili (Bandundu Province) 
Conducted Market Survey on Key Staple Goods 
Compare prices between locations along the river 
Compare prices and availability now and one year ago 
' Note: See Annex 5 for details and names of people interviewed. 
Time constraints prevented the team from conducting individual interviews in Bandundu Province. 
1 1/09/2004 Relance Econornique Mid-~erm Evaluation 
Observation 
Took place at ports, in markets and communities in general. Useful for drawing 
comparisons between sites but not useful, as originally hoped, in comparing 
present and past for linkages between price and existence of tracasseries. 
D. LIMITATIONS AND CONSTRAINTS 
The team encountered several constraints and limitations during the course of the 
evaluation. Though none proved significant enough to deter the work, it is important 
to note them so that they can be avoided in future evaluation missions in the DRC. 
Geographic scope of the project is very large and the evaluation period was only 
one week so the sample size for the evaluation was limited 
Boat motor problems led to last minute change in itinerary and the scope of the 
evaluation was reduced 
A lack of consistent, comparative data, especially for the market survey made it 
difficult to assess the impact of the project on price fluctuations 
While good information was available in some areas, poor quality quarterly 
reporting from implementing partner - increased time required to collect 
information 
Relance Economique Mid-Term Evaluation 
111. FINDINGS 
General Findings 
IRM's Phase 1 indicators are listed below. While the team did not intend to measure 
IRM's performance on each indicator, it is important to note that IRM's quarterly reports 
did not provide information on indicator progress. The team had to look at many 
different sources in order to find basic information on IRM's performance according to 
the project indicators. A general summary of the team's findings on IRM's performance 
against its indicators is listed below. 
IRM Indicators (From initial proposal) 
Objective 1 
Baseline survey report completed 
Multi-stakeholder coalition 
meetings held to disseminate 
report findings and organize 
activities 
-- 
a Press communique and-media 
spots designed and facilitated 
multi-stakeholder process 
Research and analysis on social 
and economic effects of illegal 
rent-seeking disseminated to 
public audiences through multiple 
media outlets 
Objective 2 
Stakeholder groups and coalitions 
gain capabilities for advocacy on 
behalf of reduction of illegal rent￾seeking on Congo's waterways 
Stakeholder groups and coalitions 
actively advocating for reduced 
illegal rent-seeking 
Stakeholder groups and coalitions 
crafting and communicating 
policy recommendations to 
government officials 
Multi-stakeholders create 
opportunities for direct 
Status at time of Evaluation (09104) 
Completed baseline and follow-up surveys 
(2003 and 2004) 
Achieved 
Initial workshops: Kinshasa, 2003; 
Mbandaka,2003; Bandundu, 2003 
Follow up workshops: Mbandaka and 
Bandundu, 2004 
Achieved 
Achieved - 1 report 
Achieved through workshops and 
information dissemination on illegal 
taxation issues 
In progress, currently more than 15 active 
CLATs in Equateur and 25-30 active 
CLATs in Bandundu 
In progress. Examples to follow in report. 
In progress. Examples to follow in report. 
1 1/09/2004 Relance Econon~ique Mid-Term Evaluation 9 
engagement with government 
officials 
Interested government officials 
participate in stakeholder capacity 
building workshops and TA 
sessions 
Yes, examples to be found in some, but not 
all, targeted communities. 
I conducted I 1 
Objective 3 
Stakeholder group assessments Not started 
Participatory selection process for 
technical assistance priorities 
completed 
Stakeholder groups acquire 
identifiable strategies for long￾term viability of organizational 
mission 
In progress as of June 2004 
Specialized tech assistance 
provided in identified priority 
areas 
Effectiveness of organizations 
service provision to membership 
or client constituencies enhanced 
Not directly through this project at this 
time. Started through the IRM CLIFS 
project 
- 
Membership or active constituent 
levels of stakeholder groups 
increased. 
Brainstorming has begun. No visible 
progress at time of evaluation 
Service provision of CLATs still in early 
stages 
CLATs did not exist prior to this project 
and now there are more than 30 CLATs I with average of 15-20 members per CLAT 
Evaluation Question I: What approaches were used for creating the CLATs and 
strengthening the NGO Platforms? 
national level and then at the local 
level. IRM has engaged more than 
15 ministries in the fight against 
corruption that have helped to 
support the subsequent formation 
IRM a two-pronged approach 
addressing corruption: first at the 
and Security made the following statement: " I commend IRM 
for your approach. You are not accusing the Governrnent of 
corruption or unwillingness to address it, but instead you are 
trying to bring all key players together to raise their awareness 
of corruption and engage them collectively in the effort to 
eliminate it." 
Government involvement in the fight against corruption 
In the course of a meeting with IRM, the Minister of Interior 
and functioning of the CLATs described below. 
Prior to the project, the communities had some ad hoc associations, but no organized 
platforms or local committees. In general, civil society structures within the communities 
were weak and unorganized if not absent altogether. In Lusanga (a village situated on the 
Kwilu River about 25 kms from Kikwit), community members called the project a "wake 
up call" to snap them out of their malaise and get the community members working 
together in order to be more effective. The creation of the CLATS and the Platforms was 
1 1 /09/2004 Relance Economique Mid-Term Evaluation 10 
at the request, and due to recommendations resulting from, attendees of participative 
workshops in Kinshasa, Mbandaka, and Bandundu. That said, community willingness, 
enthusiasm, and mobilization were also critical factors in the genesis of the CLATs. The 
services provided by these Platforms and CLATs are both new to, and very much at the 
infancy stage in most of the communities that they serve. 
From the beginning of the project, IRM has taken a hands off capacity building approach 
that does not include formal training. IRM did not seek to dictate the development of 
NGO platforms or CLATs but rather sought to encourage and accompany their 
development. This approach has encouraged many different groups within communities 
to participate around the common theme of corruption, tracasseries, and relance 
economique: themes that affect everyone at all levels. The approach was part "laissez 
faire" and part educative to ensure community design and ownership of the project. 
Informal traininglcapacity building of the NGO Platforms and the CLAT has taken place 
during workshops and follow up site visits in the 50 targeted communities. This informal 
training addressed advocacy, networkinglpartnerships, community participation, and 
conflict resolution. 
Chart 1 below is a flow chart illustrating IRM's approach to creating and strengthening 
community-based organizations to fight tracasseries. (For further details of IRM 
Activities, refer to Annex 5) 
Relance Economique Mid-Term Evaluation 
IRM CAPACITY BUILDING FLOW CHART 
ministries and civil society from 
Kinshasa, Bandundu and Equateur. 
Community follow up committees 
are suggested 
IRM Restitution Workshop in 11 
I 
Restitution workshops in 30 local 
communities in Bandundu 
Province - 3 platforms and some 
"CLATs" have been formed 1 
I 
IRM follow up visits to each targeted 
community in Bandundu Province. 
Every community has a committee 
against tracasseries in some form 
Restitution Workshop in 
Equateur - community follow 
up committees are re￾encouraged 
Bandundu - community 
follow up committees are re￾encouraged 
information 
and 
documents tion 
I distributes I 
I 
IRM 
on legal vs. 
illegal taxes, 
human rights 
IRM distributes 
inforniation and 
documentation 
on legal vs. illegal 
taxes, huniari 
rights, and 
contlict mgt. 
I 
IRM 3 day workshop in 
Bandundu. Communities share I experiences, make 1 
I - 
recommendations 
IRM 
distri br~ tes 
information 
and 
documentation 
on legal vs. 
illegal taxes, 
hlrwan rights 
I Ongoing follow up with I IRM 
distributes the 
report from 
each workshop 
to the CLATs 
Relance Economique Mid-Term Evaluation 
I 
Restitution workshops in 19 local 
communities in Equateur 
Province - 1 platform and some 
committees have been formed 
community in Equateur Province. 
Only a few communities have formed 
IRM 3 day workshop in 
Equateur. Communities 
share experiences, make 
recommendations 
"CLATs" spontaneously begin 
to form in most targeted 
communities. SO far 7 are 
operational, 5 are being formed, 
and 7 are planned 
Evaluation Question 2: Were the approaches to development of the CLATs effective? 
In Bandundu, CLATs were spontaneously created following IRM7s Kinshasa workshop 
in June 2003. In Equateur, the communities were slower to get organized; CLATs started 
to form following the June 2004 workshop in Mbandaka 
CLAT structure varies from area to area and is very ad hoc. IRM did not provide a 
standard model but made general suggestions instead. As a result, some CLATs are more 
democratic than others; some are more gender balanced; and some have more 
participation of local authorities. 
The institutional capacity of the CLATs in terms of management, financial management, 
and potential for sustainability is weak. Because of the ad hoc nature of their creation 
they have received no training and hold no legal status. On the other hand, it is fair to say 
the majority of the CLATs are "owned" by their communities and they have asked very 
little from IRM to get them up and running. 
Women's participation in the CLATs was limited and during interviews with the CLATs, 
their participation was not always encouraged. However the activities of the CLATs are 
essential to women's activities as women are the main bread winners and vendors in 
market places. 
Effectiveness of the CLATs depended on participation of local authorities. In areas 
where authorities were not involved, the existence of the CLATs was a source of conflict, 
and the CLATs were less effective at getting illegal taxes reduced. 
Their weak management structures and their lack of legal status pose several difficulties 
for the CLATs. They want to be seen as "mediators" between the population and the 
authorities, they want to be able to dedicate much of their time to CLAT activities, but 
neither are completely possible because they hold no official or formal status. This 
problem was pointed out by each of the 5 CLATs that were interviewed during the 
evaluation. At the same time- unless they become economically viable in their own right, 
the CLATs risk becoming just another unpaid, unmotivated public service. 
IRM field staff were limited for the geographic scope of the project: 3 field staff in 
Bandundu and 3 in Equateur, with support from the Country Director (part time in Kikwit 
and part time in Kinshasa). This did not allow for regular IRM follow up, monitoring, 
and site visits in all of the 50 targeted communities. 
The CLATs sited several steps that need to be taken at this stage to ensure the continued 
effectiveness of the CLAT structure and to further reduce ongoing tracasseries and 
reinforce community initiatives. The CLATs themselves, together with IRM and all of 
the participants in the June workshops, developed a list of recommendations for their 
continuation. Their main recommendations that were reinforced during the interviews 
with the 5 CLATs include: 
Relance Economique Mid-Term Evaluation 
1) Need to reinforce the capacity of the CLATs: elaborate a TOR for the CLATs and 
create a harmonized procedure for their activities 
2) Need to make the CLATs more dynamic through trainings on: conflict 
management, Gender-Based Violence, leadership, and management 
3) Need to create a communication network so that communities can share 
information and so that local or provincial authorities can be kept informed if 
there are state agents who are harassing the population. 
4) Need to have a permanent office for each CLAT that includes a public library 
with documentation on: all the rules and regulations on river transport, the rights 
and obligations of Congolese citizens, codes of conduct for state agents, the laws 
of the Congo, the civil code, the penal code, the family code, lesson modules on 
management of micro-projects, conflict management, and code de procedure 
familiale. 
5) Need to assist the CLATs to further generate and disseminate information 
Evaluation Question 3: What role has the project played, if any, in reducing illegal 
taxes and rent seeking behaviors and how? 
Most of the places visited by the team reported a reduction in illegal taxation. A notable 
exception is in Ngombe and Mbandaka, where those interviewed, the CLATs and 
community members, cannot provide concrete examples of a reduction of illegal taxes. 
They can however, explain that the taboo of tracasseries has significantly reduced as 
people are much more open to speak out and document tracasseries. Results did vary 
depending on the community, their level of engagement, and the length of time after an 
IRM workshop or visit. Other outside factors also played a strong role in reducing 
tracasseries, especially in Equateur which was previously highly militarized during the 
war (More details on external factors are listed under question 5 below). 
IRM's pre and post surveys report that the cost of illegal taxes was reduced by 49% 
between April 2003 and April 2004. The profit margin of traders on the River has 
increased from 4% to 16% over this same time period. According to 42.5% of people 
interviewed in Bandundu Province, the decrease in tracasseries in the interior of the 
country is due to the interventions of the CLATs. However no one in Equateur attributed 
the decrease to the CLATs (this could also be because the CLATs were not fully formed 
and functioning when the survey was conducted, while they were formed in Bandundu). 
Every targeted community now has a CLAT that is more or less active within their 
community. 
Graph 1 shows the change in illegal taxes by state service between April 2003 and April 
2004 according to the survey conducted by IRM in May 2004. The graph shows that 
while in 2003 there were 24 state services demanding taxes at the ports, in 2004 there 
were only 17 state services still demanding taxes and at a greatly reduced level. In areas 
where there has been an increase, IRM notes that these increases are for legal rather than 
illegal taxes. 
Relance Economique Mid-Term Evaluation 
COMPARISON OF TAXES PAID 
2003-2004 
1400 
$200 
3 000 
5 800 e 600 
a400 
200 
0 
SECURITE AGRICULT ANABA DGM ANR 
MANUTEN REC.PROV. RVh'~~~~~ DGI OCC 
CHEF TER 
State Service 
I 
Source: IRM survey. May 2004 
The Role of the CLATs in Reducing Tracasseries 
As noted above, the CLATs formed in Bandundu Province at a faster pace than in Equateur, but 
in general their activities are the same. 
CLAT activities include: 
1. Motivating communities members to work together, including local government officials, 
members of the military, farmers, traders, fishermen, market women, and other associations and 
local CBOs to fight against tracasseries and reduce illegal taxes. The core lesson they share is 
that c~mmunitie~can be stronger if they work together 
2. Conducting their own awareness raising in 
their communities using the information and 
materials that was given to them by IRM during 
the Provincial Workshops and during site visits 
3. Informing merchants, traders, economic actors 
in the community about what taxes are legal and 
illegal. In some areas, CLATs are responsible for 
posting signs at the ports with this type of 
information 
Example of Functioning CLAT 
The President of CLAT in Bilili village (Bandundu 
Province) reported that his committee's intervention 
with local authorities resulted in the reimbursement of 
3000 FC per shop of taxes that were illegally collected 
by an employee of the environment office. 
He also reported that his committee denounced, by 
letter addressed to the boat owner, the boat manager 
who was demanding a 10 percent commission for 
allocating space on the boat to traders. The boat owner 
immediately terminated the employment of the corrupt 
manager and replaced him with another one. 
4. Relating outcomes of the Bandundu and Equateur workshops during meetings within their 
own communities in order to explain how the fight against corruption is working at the 
provincial and national levels and explain what has been achieved at those levels 
Relance Economique Mid-Term Evaluation 
5. Collecting reports from community members of tracasseries that occur in their communities, 
document the cases, and take them to the relevant authorities to negotiate on behalf of the 
community member who reports the case 
6. Summarizing the documented cases of tracasseries and report them to the Provincial 
authorities, sometimes with the help of IRM 
7. Writing reports to IRM on their activities and constraints 
8. Starting to identify Income Generating Activities (IGAs) that will help support the 
sustainability of their activities. CLATs have begun to ask IRM to help them get started on 
these IGAs 
Some Examples of the CLAT Activities and Results 
During the Bandundu workshop ASSARCO (association of boat owners) and UCAB 
(Association des Arrnateurs des Ballaniers) denounced various types of tracasseries, giving 
examples of illegal taxation by local authorities and community members. As a result, various 
letters were written by the local authorities and by some of the CLATs, documenting cases of 
tracasseries and denouncing these tracasseries. IRM then distributed these letters around 
Bandundu Province when they conducted their field visits, which has enabled the CLATs to 
show success stories to their own communities. 
Due to work with the CLAT, the general of the first military region changed the system for 
taking people to court for not paying taxes, or for any other offense. Before civilians had to go 
to the military court, where there is no defense counsel. Following instructions by the general, 
local authorities now send civilians to the public courts, where in theory, they should be 
represented by a lawyer. 
At the national level, following the Kinshasa workshop, the Minister of Transport wrote a letter 
that forbids the DGM to check transportation documents because it is not appropriate for them to 
do so within Congo's borders. This has also assisted in the reduction of tracasseries by the 
DGM. The Minister of Transport also wrote a letter forbidding the Navy (which patrols the 
Congo River and its tributaries) to check documents for materials shipped on the river. 
Also at the national level, the Minister of the Interior wrote a letter to ban the utilization of the 
laissez passer for military to travel free on the river. Now the military have to pay their own 
way. 
Radio: In Mbandaka, where a reduction of taxes was not documented but where the taboo had 
significantly decreased, IRM attributed this to the workshops, the CLATs activities, and to local 
radio transmissions about legal and illegal taxes and tracasseries. 
Film: IRM took footage of tracasseries at the beginning of the project and then created a 
documentary. IRM showed this film on large projection screens while conducting field visits to 
Relance Economique Mid-Term Evaluation 
the targeted communities. The film had a big impact on reducing the taboo surrounding 
tracasseries. 
Table 2 shows the change in tracasseries in each location visited during the evaluation. 
Mbandaka 
Maita 
Ngombe 
Kikwit 
Situation reported before the 
project 
People were scared to discuss 
tracasseries 
Taxes were between 100-2000 FC pel 
merchantlweek and 100 FC per sack 
of fish. 
Situation Reported after the project 
The taboo has been reduced and more 
discussion is taking place. Taxes 
remain the same however. 
Now tax set at 100 FC per merchant 
per week plus 100 FC per sack of fish. 
At the market, 50 FC per day per 
merchant and 1000 FC per market 
stall. 
Between 1,700 FC and 12,500 FC 
per person to the DGM to permit 
travel on the river. 
Tax to the commune for a market 
stall/day used to be 500 FC. 
There were a lot of services at the 
port, each of whom demanded 
various taxes 
Generally the situation is the same; 
some reduction noticed immediately 
following workshops - but temporary 
Now 500 FC for the police fee for 
travel, nothing is collected by the 
DGM. 
Now it is 50 FC per day per stall. 
Now only 4 services function and ask 
, for taxes at the port. 
There was no information on how to I All services at the port have begun to I 
find out about legal taxation versus I respect the laws, and documentation I 
There was no cooperation between 
civil society and the military 
illegal taxation 
authorities 
on legal taxes is available. 
IRM put up a sign at the port that 
explains illegal taxation and the sign 
is still there and has not been 
damaged after one year 
The CLAT spread messages over the 
radio 
The population is beginning to 
I understand that there are some legal I I taxes that they do need to pay, aid 1 1 that the government is not paying I 
of its value 
12 services at the port 
- - ---- ---- ---- 
A sack of manioc was taxed at 50% 
Now 4 services at the port 
salaries, which is the major reason for ---- tracGseriG. - - 
---- 
Now a sack of manioc is taxed 20 FC 
Relance Economique Mid-Term Evaluation 
Lusanga 
I 
Source: Daia collected by USAID Evaluation Team 
People were scared to report 
tracasseries 
Evaluation Question 4: Are beneficiaries' lives any better because of the services the 
NGOs provided? 
People are no longer scared to report 
and resist tracasseries because they 
now have information on what the 
laws are. 
The farmers, fishermen, traders, and merchants now have more money now because they 
don't pay illegal taxes. Data above shows that traders have a profit margin that is 10% 
higher this year than the previous year, so their purchasing power has therefore increased. 
The CLAT in Kikwit explained that it is difficult for the general population to notice a 
big change in their lives because the town is so large and it has always maintained a 
certain amount of trade. However, they say, in the villages the changes are much more 
noticeable. Markets are fuller, and the populations are much more encouraged to work, 
produce, and trade. 
With the additional income that was a result of 
decreased taxation, almost everyone cited that they 
would use it to send their children to school and pay 
for medicines. In Lusanga, this was illustrated by 
school enrollment: 500 children began the 2003- 
2004 school year and only 300 remained in school 
at the end of the year due to inability to pay for 
school fees. This year, the community expects 
more children to be able to complete the school 
year. 
Impact on community members 
A market woman interviewed in Lusanga 
village (Bandundu Province) acknowledged 
that there has been an increase in her income 
level as a result of reduced tracasseries. The 
extra income has improved her family access 
to education and health care. She is now able 
to send all her five children to school, 
whereas before she could pay school fees for 
only two of them. 
There used to be a lot of different control posts along the roads and the rivers but now the 
CLATs, the communities, and the local authorities are beginning to limit them. This will 
reduce harassment along these routes (including sexual violence, and illegal taxes) by 
authorities on the population that they are controlling. 
Evaluation Question 5: What other factors contributed to the increase or decrease of 
tracasseries? 
External factors have played a large role in reduction of tracasseries. Specific factors 
noted by the evaluation team included the following: 
> End of the war and re-unification of the country 
> Opening up of river and other commercial traffic 
Reduction in military presence in areas decreased the demand on the population to 
provide troops with rations (including food and money) 
1 1 /09/2004 Relance Economique Mid-Term Evaluation 
Reinforced authority of central government 
Other projects in the area, including IRMs Livelihood Improvement Project. 
Communities had a difficult time distinguishing between the work of the CLATs 
and that of IRM's CLIFS livelihood project. Although CLIFS was planned to 
complement the anti-corruption activities by increasing agricultural production, 
the change in prices found at the markets, cannot be directly linked to a reduction 
in taxes. 
Seasonal production also contributes to price fluctuation so it is difficult to link 
increased profit margin due to reduced tracasseries with price fluctuation on the 
market. 
An IRM survey in May 2004 listed the perceptions of community members in targeted 
communities on causes for changes (increases or decreases) of tracasseries. The results 
of this survey are listed below. They demonstrate that 57% of people interviewed believe 
that there has been a reduction of tracasseries. Of those, 18.25% attribute the change to 
the activities of the CLATs and 20.35% attribute it to the end of the war. 
I Reduction in tracasseries: yes, no, why? I Total ?4 ' 1 Baidhitdu . 1 Eqilateu*.'' ] 
( YES there has been a reduction of 1 57.19% 1 63.1% 1 52.89% I 
I tracasseries I I I I 
1. CLAT Activities 
2. End of the War 
18.25 1 42.5 10 
20.35 1 1.87 1 34 
3. Increased awareness of the population 
4. Departure of military troops 
1 7: Involvement of authorities 1 1.23 1 2.99 10 I 
6.32 1 7.46 1 5.45 
5.26 1 0.75 ) 8.65 
5. No answer 
6. Official cancellation of certain legal taxes 
Number of people interviewed (N) 1 326 1 154 1 172 
2.63 
2.63 
8. Commission of Peace and Justice 
9. Witchcraft 
3.73 ( 1.92 
2.61 1 2.87 
0.35 1 0.75 [ 0 
0.17 1 0.37 10 
Relance Econornique Mid-Term Evaluation 
NO tbere has not been a reduction in 
tracasseries 
1. Tracasseurs have moved to smaller 
villages from the big towns 
2. No answer 
3. Increase in taxes 
4. No respect for Human Rights 
5. Ignorance 
6. Lack of will 
7. Impunity 
8. Corruption 
9. Lack of follow up . 
Number of people interviewed (N) 
Source. IRM Survey, May 2004 
36.97 
2.61 
10.1 
4.85 
1.12 
1.12 
5.6 
3.36 
2.24 
5.97 
154 
42.80 
1 1.93 
8.95 
5.26 
5 -26 
3.33 
2.46 
1.75 
1.23 
2.63 
326 
47.1 1 
19.22 
8.02 
5.44 
8-34 
4.80 
0 
0.65 
0.64 
0 
172 
The diagrams below illustrate the difference in attribution by communities in Bandundu 
and Equateur. As shown, the 42.5% of the people interviewed in Bandundu report a 
direct link between CLAT activities and the reduction of tracasseries in May 2004. The 
survey also shows that the communities in Equateur did not make a correlation between 
reduction of tracasseries and CLAT activities, which is partially due to the fact that 
CLATs were not functioning there until after the second workshop that took place in 
Mbandaka in June 2004. 
COMMUNITY PERCEPTION OF CAUSE FOR TRACASSERIES REDUCTION 
BANDUNDU 
0 ,h .I.-., 
o 01h.r COWNITY PERCEPTION OF CAUSE FOR TRACASSERIES REDUCTION 
Relance Economique Mid-Term Evaluation 
IV. CONCLUSIONS 
IRM has generally met its three objectives under the first phase of the Relance 
Economique project as demonstrated in the indicator table on page 9 and by the findings 
that illustrate a general decrease in tracasseries and an increase in awareness about illegal 
taxes. However, the team found that communities and CLATs require encouragement, 
training, and structure; and that without follow up tracasseries tend to return. 
Because the project was slow in starting up, for several reasons, IRM's progress towards 
achieving objective 3 (Stakeholder groups with strengthened ability to provide services) 
was limited. However, now that the CLATs have formed more cohesively in more than 
30 communities, IRM7s involvement with them will be able to increase substantially, 
including the capacity buildinghraining component of the project. In addition, more site 
visits should be possible now that IRM has fully outfitted its barge and can travel more 
efficiently up and down the river corridors. 
In light of the sensitivity and high level of taboos surrounding tracasseries, IRM's 
approach to capacity building that emphasizes community participation and ownership, 
was appropriate. However, this model takes a long time to see results and requires 
consistent follow up if the results are to be maintained and multiplied. 
Overall, the level of tracasseries has decreased and the profit margin of traders has 
increased because they are paying fewer taxes. People in these areas now have more 
money to spend on basic needs such as school fees and supplies and health care. 
Community members also have more incentive to produce and sell goods because of this 
reduction in taxes. 
Participation of military, local authorities, women, etc. in the CLAT varied from 
community to community. Those CLATS that were more successful, had more diverse 
and complete participation. 
Most community members say however that tracasseries will not go away entirely until 
the economy improves significantly and state agents are paid. Therefore, the project's 
success is dependent on many external factors outside of IRM's control. 
IRM's multi-sectoral approach helped to increase individual project results and impacts. 
For example, the CLIFS project gave the community visible material support without 
which it is difficult to assess how participativelmotivated the communities would have 
been in forming the CLATs. 
Bandundu Province is much further along than Equateur due to an earlier start, more IRM 
follow up, and external factors. The results seen in Bandundu clearly illustrate this head￾start and highlight the importance of frequent site visits. 
Relance Economique Mid-Term Evaluation 
V. RECOMMENDATIONS 
FOR IRM: 
Ensure more structured and frequent follow-up visits to targeted communities, 
particularly in Equateur. 
Develop a detailed implementation plan and establish a monitoringlfield visit 
schedule for its teams to follow. 
Review current staffing pattern to ensure that there are adequate numbers of 
personnel in the field to implement and monitor the activities. 
Develop a network for reporting and communicating information about tracasseries. 
Perhaps create a simple database to log and track this type of information. 
Provide structured training to CLATs on organizational management (including 
financial management and M&E). 
Assist CLATs to get started with income-generating activities. Perhaps build upon 
the relatively informal linkages with IRM's CLIFS projects that have already been 
established. 
Provide conflict management and resolution training to CLATs. 
Provide small incentive items to CLATs to boost morale and promote their 
recognition as functioning, legitimate CBOs. 
Ensure the participation of the local authorities in the CLATs and facilitate their 
inclusion where there has been friction. 
10) Ensure adequate participation of women in the CLATs. 
1 1) Timely and detailed quarterly reporting is required. IRM should focus reports on 
results, by indicator as per the cooperative agreement and modification to make 
reports more robust and result/impact-oriented. 
12) Collect consistent data over the life of the project. More systematic studies should 
take place to document and analyze price fluctuation and income levels of farmers, 
fishermen, merchants, and traders. 
13) Work with USAID's basic education partner - Education Development Center (EDC) 
- on their new education project, which will take place in the same areas as this 
project to increase impact through multi-sectoral programming. 
Relance Economique Mid-Term Evaluation 
FOR USAID: 
1) USAID should insist on regular reporting and conduct regular monitoring site visits to 
IRM's focus areas along the corridor 
2) USAID should continue to support complementary programs in the same areas where 
IRM is working 
3) Now that Phase two has begun (October 1,2004)' USAID should be actively 
involved in the design of the detailed implementation plan. 
Relance Economique id-~erm Evaluation 
ANNEX 1 
Scope of Work 
USAID Project to be Evaluated: 
Strengthening the capacity of civil society 
and business to promote sustainable 
Purpose and Intended Uses of the Evaluation: 
Initial and Final Funding Years: 
August 2 1 2002-September 2005 
economic growth along the Congo River 
and its tributaries in the DRC 
Type Evaluation: 
-X Mid-Term 
Final 
Post-FactolImpact 
This evaluation is being undertaken to inform the second phase of project 
implementation. This is the first evaluation of the project and is a final evaluation of 
phase one. USAID is interested to know the possibility of replicating the project 
approach in other parts of the Congo. 
Source and Amount of USAID funding: 
ESF and DA, $999,999 + $1,380,000 
=$2,379,999 
The audiences of the report will be the USAID Mission, specifically the DG SO team, 
IRM, PROCADEM, RDA, UAD, CATE, and the CLATs to share with beneficiary 
communities, the govt. local authorities, and civil society. 
NGOs: to replicate certain approaches that have been effective 
USAID: share with other partners; use as basis to make funding decisions in the future, 
i.e. replication; 
IRM and NGO platforms: To implement recommendations, improve project approaches 
Government: Use it to inform anti-corruption practices throughout the country, to show 
successes/what works and what doesn't work. 
Brief Description of Project and it's Intended Results: 
A study conducted by the USAID-supported IRM project Relance Economique 
(Strengthening the Capacity of Civil Society and Business to Promote Sustainable 
Economic Growth along the Congo River and its Tributaries in the DRC) estimates that 
only 4% of legally collected fees find their way to the central government coffers. This 
diversion severely limits the funds available for government investment in such very 
basic services as a functioning justice system, education, health care, potable water, and 
the transportation network. The absence of needed social services contributes to political 
instability and violence. Further, this level of corruption is a central factor in the 
reluctance of foreign and domestic interests to invest in the DRC and so to jump-start the 
national economy, provide jobs, government revenues, and remove some of the pressures 
of poverty that contribute to the continuing civil strife and vulnerability to manipulation 
1 1/09/2004 Relance Economique Mid-Term Evaluation 24 
by political elites. In addition, the illegal collection of fees and fines by government 
employees (including the police and the military) by force and by private individuals 
creates a culture of oppression, legitimized thievery, undermines the rule of law, and 
creates and environment of fear. Until corruption and impunity for economic crimes is 
effectively addressed, conflict will continue to be a way of life in the DRC. 
Project Goal: Reduced illegal taxes, fines and rent-seeking along the Congo river and its 
major tributaries 
Indicators: 
Baseline survey report completed 
Multi-stakeholder coalition meetings held to disseminate report findings and 
organize activities 
Press communiquk and media spots designed and facilitated multi-stakeholder 
process 
Research and analysis on social and economic effects of illegal rent-seeking 
disseminated to public audiences through multiple media outlets 
I Objective 1 : Increased public and stakeholder awareness of the social and economic costs 
of illegal rent-seeking behaviors, and the potential benefits of more transparent policies 
Objective 2: Enhanced advocacy role for a broad range of stakeholder groups and 
coalitions with interest in the Congo's river transportation system with the aim of 
reducing illegal rent-seeking by the government. 
1 
Indicators: 
Stakeholder groups and coalitions gain capabilities for advocacy on behalf of 
reduction of illegal rent-seeking on Congo's waterways 
Stakeholder groups and coalitions actively advocating for reduced illegal rent￾seeking 
Stakeholder groups and coalitions crafting and communicating policy 
recommendations to government officials 
Multi-stakeholders create opportunities for direct engagement with government 
officials 
Interested government officials participate in stakeholder capacity building 
workshops and TA sessions 
and practices for regulating traffic on Congo's waterways 
Objective 3: Stakeholder groups with strengthened ability to provide services to 
constituents become more sustainable in the areas of operations and advocacy. 
Indicators: 
Stakeholder group assessments conducted 
Participatory selection process for technical assistance priorities completed 
Specialized tech assistance provided in identified priority areas 
1 1 /09/2004 Relance Economique Mid-Term Evaluation 25 
Stakeholder groups acquire identifiable strategies for long-term viability of 
organizational mission 
Effectiveness of organizations service provision to membership or client 
constituencies enhanced 
Membership or active constituent levels of stakeholder groups increased. 
Evaluation Questions 
Question 1 : What approaches were used for creating the CLATs and strengthening the 
NGO Platforms? 
Question 2: Were the approaches to development of the CLATs effective? 
Question 3: What role has the project played, if any, in reducing illegal taxes and rent 
seeking behaviors and how? 
Question 4: Are beneficiaries' lives any better because of the services the NGOs 
provided? 
Question 5: What other factors contributed to the increase or decrease of tracasseries? 
Team Composition: 
Mary Louise Eagleton 
Pamela Fessenden 
Victor Mangindula 
Victor: Budgeting, Languages, Organizing Teams, Program Design, good knowledge of 
Congo, knowledge of the USAID program, good public speaker 
Mary Louise: Monitoring and Evaluation experience, data analysis, program design, 
knowledge of Congo, good writing skills, knowledge of methodology, knowledge of the 
IRM project, previous site visits 
Pam: Program Design, Evaluating evaluations, Good writing skills, Knowledge of 
agriculture programs, knowledge of Congo, skeptical 
Deliverables: 
l Evaluation Plan (methodology for data collection and analysis and GANTT chart 
showing detailed schedule for all steps in the evaluation) - August 18 (Project 
questions and field work week) and August 20,2004 - oral presentations and 
handouts on approach for answering evaluation questions and GANTT chart. 
I 
Draft Evaluation Report - October 6,2004 by e-mail to inhageboeck@msi￾inc corn. -4; jkerley@,usaid.gov. Maximum of 20 pages, -9 
1 1/09/2004 Relance Economique Mid-Term Evaluation 26 ' 
single spaced, 12 pt, plus annexes. 
Oral Evaluation Reports (Powerpoint or flip charts and handouts- October 18, 1 2001 
Final Evaluation Report - November 1 1,2004 or earlier. 
Evaluation Schedule and Logistics: 
I From 13 - 17 September, 2004. Need to schedule IRM boat. TA for Victor and Mary 
Louise, Mission Orders. Need country clearance for Pam. Hotel Reservation for Pam for 
1 1-1 3 and 17-1 9'h September. 
Evaluation Budget: 
Pam: $800 for ticket 
Per diem: $1 550 
ML: 550 per diem 
Victor: 550 per diem 
Total budget: 
$3450 
Flights in Country: tbd 
Relance Economique Mid-Term Evaluation 
ANNEX 2 
CLAT Interview Form 
1. Has the institutional capacity of the CLAT changed? 
What were they advised or assisted to do? Analyze how similar their understanding 
was of what they were advised to do? 
What support/assistance have they received from IRM? 
What has your CLAT done? 
Analysis: Breakdown the different activities of what they were advised to do and 
make a scale to measure the level of adoption. 
Before the program with IRM what were you doing and what were your constraints? 
How have they changed? 
To measure whether the changed occurred due to the IC building: ask using timeline: 
ii. what help they received in those periods I Before Kinshasa Meeting I After Kinshasa Meeting I After Regional Meeting 
i. what they did in each period 
iii. how did that help change what they were doing? 
Before Kinshasa Meeting 
iv. Howdidthevuseit? 
After Kinshasa Meeting 
Before Kinshasa Meeting 
After Regional Meeting 
2. Have the services provided by the NGO changed for the better? Increasedlreached 
more people (access)/improved in quality terms 
What services were provided? 
To whom? 
How have they changed? 
After Kinshasa Meeting 
~efore Kinshasa Meeting 
3. Was the change in NGO services a demonstrable result of a change in that NGO's 
institutional capacity, i.e., can a link be proven? 
0 Review timeline of capacity building as compared to change in services (same as under 
question 1). 
After Regional Meeting 
Relance Economique Mid-Term Evaluation 
After Kinshasa Meeting After Regional Meeting 
What else has happened in those communities over the same time frame. 
What approaches were used for strengthening the NGO Platforms? Which ones 
were most effective? 
What approaches were used for strengthening the NGO Platforms? 
Which ones were most effective? 
Are beneficiaries lives any better because of the services the NGOs provided, i.e. do 
beneficiaries view the services as being appropriate tolimportant for meeting their 
needs? 
Are goods being traded on the river more or less expensive? 
Are there goods newly available or have returned to the market recently? 
Does the community know about the anti-corruption project? 
What has the project done? 
Have you witnessed a reduction in tracasseries by local authorities against you? 
What role has the project played, if any, in reducing illegal taxes and rent-seeking 
behaviors? 
What are the future plans for the CLAT? Working with IRM? 
Relance Economique Mid-Term Evaluation 
ANNEX 3 
Individual/Community Interview Form 
(3-6 interviews to be conducted per site) 
Are beneficiaries lives any better because of the services the NGOs provided, i.e. do 
beneficiaries view the services as being appropriate tolimportant for meeting their needs? 
a Are goods being traded on the river more or less expensive than a year ago? 
Are there goods that newly available or have returned? If yes, what? 
Have you experienced problems with tracasseries? 
Do you know about the anti-corruption project? 
What has the project done? 
Have you witnessed a reduction in tracasseries by local authorities against you since a 
year ago? 
Relance Economique Mid-Term Evaluation 
ANNEX 4 
Evaluation Plan 
Has the institutional capacity of the NGO changed? 
Conduct key informant interviews with IRM (List points of what they taught them) 
Conduct group interviews with 3 NGO Platforms in three different locations. Ask what 
were they advised or assisted to do? Analyze how similar was their understanding of 
what they were advised to do? Break down the different activities of what they were 
advised to do and make a scale to measure the level of adoption. To measure whether the 
changed occurred due to the IC building: ask using timeline in three periods (x-mas￾June30), ask what they did in each period, what help they received in those periods, how 
did that help change what they were doing? How did they use it? 
Ask: before the program with IRM what were you doing and what were your constraints? 
Collect project reports and training documents 
Observe the NGO platform at work in the field 
Have the services provided by the NGO changed for the better? Increasedlreached 
more people (access)/improved in quality terms 
Conduct key informant interview; group interviews; and community interviews; 
observation of the NGO platform field work 
Questions for each: What services were provided? To whom? How have they changed? 
Was the change in NGO services a demonstrable result of a change in that NGO's 
institutional capacity, i.e., can a link be proven? 
Review timeline of capacity building as compared to change in services (as under 
question 1). Ask what else has happened in those communities over the same timeline. 
Observe what else is going on in the communities. 
What approaches were used for strengthening the NGO Platforms? Which ones 
were most effective? 
Conduct Key informant and group interviews with IRM and NGO Platforms and ask: 
What approaches were used for strengthening the NGO Platforms? Which ones were 
most effective? 
Are beneficiaries lives any better because of the services the NGOs provided, i.e. do 
beneficiaries view the services as being appropriate tolimportant for meeting their 
needs?) 
Review of existing economic data; rapid market surveys at each stop; Key informant 
interview; group interviews; and community interviews; observation in villages 
Ask: Are goods being traded on the river more or less expensive? Are there goods that 
newly_availableorJave - - returned? - - - - Do - you - know about the anti-corruption project? What 
has the project done? Have you witnesseda Eduction in fracaSefies by bcal authorities 
against you? 
Relance Economique M id-Term Evaluation 
What role has the project played, if any, in reducing illegal taxes and rent-seeking 
behaviors? 
Ask IRM: Is there any data that shows that illegal taxing has increased or decreased? 
Select what items (3-4 items) being sold to track. Interview purchasers: 3 buyers per item 
per stop (what do you buy from boats? Pricelkilo? Has the price gone up or down from 
one year ago?); 
Interview sellers/traders in Mbandaka and Kinshasa- look at the data we have? Why do 
you think the prices vary or change? Were you taxed? At which stops and for how much? 
Relance Economique Mid-Term Evaluation 
ANNEX 5 
Summary of IRM Activities 
> Kinshasa Workshop: 16-18 July 2003 
IRM held a 3 day workshop in Kinshasa from the 16-1 8 July 2003 to initiate the project 
and identify ways of working at the national and local level to address corruption and 
Relance Econornique. The workshop brought together 123 people from Bandundu and 
some parts of Equateur, and 15 representatives from various Ministries who are 
implicated in tracasseries along Congo's river ways. During the workshop, IRM 
encouraged existing organizations and motivated community members to get together 
around the common goal of reducing tracasseries and building Congo's economy. IRM 
encouraged civil society, economic operators, and local authorities to form platforms and 
pressure groups to fight against tracasseries and to get rid of the taboo surrounding 
tracasseries. Prior to the creation of these committees, there was almost no 
communication between community members and local authorities or between those who 
were being tracassed and those carrying out the tracasseries. 
> One Day Restitution Workshop in Kikwit - August 2003 
Following the Kinshasa workshop IRM then held a one-day restitution workshop in 
Kikwit with the local authorities, economic operators, traders, etc. A 2"d restitution 
workshop was held specifically for the authorities (political, administrative, military, 
police), at which IRM showed the film from the Kinshasa workshop. During the 
restitution, IRM distributed documentation about legal and illegal tracasseries to the 
attendees for further distribution in their communities. (list of docs). 
> Restitution of the Workshop in 30 local communities in Bandundu Province - 
August to October 2003 
After restitution in Kikwit, IRM began the restitution on the different axes from August 
to October. The Kwilu River axis includes the towns and villages of Kikwit, Lusanga, 
Mitchakila, Pindi, Bulungu, Vanga, Mbemi, Bilili, Juma, Timbane, and Bagata. The 
Kasai River axis includes the towns and villages of Dibaya, Mangai, Yuki-Ngolo, Yuki￾Onatra, Piopio, Panu, Eolo, Mabenga, Semodane, Makaow, Dima. The Mai Ndombe 
axis includes Kiri, Inongo, Kutu, Nioki, Mushie, Kwenge, Imbongo, Iko. This is a total 
of 30 towns and villages along three river axes. The IRM facilitators spent 2-3 days in 
each village. A typical visit would have the following schedule: 
Day I : Arrive, inform people of the schedule, 
Day 2: informal meetings to hear people's complaints and to encourage them to organize 
themselves in platforms, then in the evening hold a meeting with local authorities, all state 
services, civil society, religious people, economic operators, and community members etc, to 
show - - - them - - the - - film - from the Kinshasa workshop and then have questions/answers sessions. 
Day 3: distribute documents with infofiafionaboui tracasseria,+mrrri&ts,aml kgknd 
illegal taxation. During the visits IRM would give informal advice depending on how far the 
1 1 /09/2004 Relance Economique Mid-Term Evaluation 
community had organized itself. For example the facilitators often had to reinforce that they 
should include local authorities in the CLAT. All Kin participants had started getting something 
together. IRM then encouraged their development. Explained how working in a group can be 
more productive and have more weight if one person is tracassed, everyone becomes concerned. 
Gave them documentation and information. No other capacity building such as training. 
> Follow up field visits to each of the 30 communities - October 2003, January 
and April 2004 
IRM conducted follow up on the various axes: Kwilu and Kasai in October 2003, Mai 
Ndombe in January 2004, and all axes again in April 2004. Each site received one IRM 
follow-up visit. At the Kinshasa workshop in September 2003 each targeted community 
agreed to form follow up committees who would be responsible for following the 
evolution of tracasseries in their communities. During the IRM follow up visits to the 30 
communities, IRM noted that almost every village had established an ad hoc structure 
that had been formed by the members of the follow-up committee. Most of these ad-hoc 
structures had an office, a president, and had begun writing reports. These ad hoc 
structures were the first versions of the CLATs (Committee de Lutte Anti-Tracasserie), 
and later began to call themselves CLATs. 
> 3-day Workshop in Bandundu and Equateur - June 2004 
In June, IRM held a three-day workshop in Bandundu. They invited various members 
from each site: in total 30 from Kasai, 32 from Kwilu, 24 from Mai Ndombe, and 28 
from Bandundu Town. The workshop gave an opportunity to the different communities 
to exchange views, share experiences, and learn about conflict resolution. Each CLAT 
gave their experiences and then the participants worked in teams by axis to make 
recommendations on how the project should proceed. 
During this three day provincial-level meeting in lyonda, IRM distributed materials, including a 
booklet on citizen rights; one on code of conduct for state agents; a small dictionary on 
infractions; the transitional constitution; various text that describes the tax structurellist of legal 
taxes; fight against corruption; and conflict management; list of recommendations following the 
Kim hasa workshop. 
In addition, IRM distributed the audio cassette from Iyonda workshop to the CLAT in a follow 
up visit. 
> Two Day Follow up Workshop in Ngombe - August 2004 
> Report of workshop dissemination - July 2004 
IRM then wrote up final report from the workshop and gave one copy to each participant. 
According to the IRM team the participants are now holding restitution meetings in their 
own communities. 
Relance Economique Mid-Term Evaluation 
the Answer 
Institutional Cap: 
1. Has the 
institutional 
capacity of the 
NGO changed? 
Program and 
Service Delivery, 
Sectoral 
Expertise, 
Constituency 
Ownership, 
Impact 
assessment (see 
handout) 
2. Have the 
services provided 
by the NGO 
changed for the 
better? 
Increased/reached 
more people 
(access)/improved 
in quality terms 
3. Was the change 
in NG'O services 
a demonstrable 
result of a change 
in that NGO's 
institutional 
capacity, i.e., can 
a link be proven? 
ity Questions 
Y eslno , 
comparison 
Y eslno, 
description 
of the 
services 
provided; 
comparison 
with what 
the NGO 
Platforms 
did before 
Yeslno, and 
to what 
extent? 
What other 
factors 
resulted in 
change of 
NGO 
services 
Disaggregate by 
type of service 
NGO received. 
Relevant 
Criteria 
Disaggregate by 
NGO 
platform/location 
Representative 
of other project 
areas 
Sources of 
Information 
Disaggregate by 
type of service 
NGO received 
capacity building 
in. 
Disaggregate by 
NGO 
platformllocation 
Methods for 
Collecting 
Data 
Representative 
of other project 
areas 
Data Analysis 
Procedures 
Disaggregate by 
type of service 
NGO received 
capacity building 
in. 
Disaggregate by 
NGO 
platform/location 
Existing 
project data; 
NGO 
platforms: 
PROCODEM, 
UAD, CATE; 
IRM 
Existing 
project data; 
NGO 
platforms: 
PROCODEM, 
UAD, CATE; 
IRM; 
Local govt. 
officials; 
suppliers; 
traders; 
purchasers; 
community 
members 
Existing 
project data; 
NGO 
platforms: 
PROCODEM, 
UAD, CATE; 
IRM; 
Group 
Interviews with 
NGO Platforms; 
Key informant 
interviews with 
IRM; Collect 
project reports 
and training 
docs; 
observation of 
the NGO 
platform field 
work 
Key informant 
interview; 
w"-P 
interviews; and 
community 
interviews; 
observation of 
the NGO 
platform field 
work 
Questions: 
What services 
were provided? 
To whom? 
How have they 
changed? 
Review timeline 
of capacity 
building as 
compared to 
change in 
services. Key 
informant 
interview; 
group 
interviews; and 
community 
interviews; 
observation of 
the NGO 
platform field 
work; 
observation of 
what else is 
going on in the 
communities. 
Relance Economique Mid-Term Evaluation 
Tabulation of 
interview 
answers; 
content 
analysis of 
reportsltraining 
materials 
4. What 
approaches were 
used for 
strengthening the 
NGO Platforms? 
Which ones were 
most effective? 
I Questions 
Services Question 
5. Are 
beneficiaries lives 
any better 
because of the 
services the 
NGOs provided, 
i.e. do 
beneficiaries view 
the services as 
being appropriate 
tolimportant for 
meeting their 
needs?) 
Data Analysis 
Results Questions 
6. What role has. 
the project 
played, if any, in 
reducing illegal 
taxes and rent￾seeking 
behaviors? 
Form of 
the Answer 
Description 
of 
approaches, 
comparison 
of 
approaches 
Y eslno. 
Comparison 
with before 
and with 
other 
locations 
not 
receiving 
services 
Description, 
comparison, 
test cause 
and effect 
relationship 
Relevant 
Criteria 
Sources of 
Information 
location, NGO 
Platform 
Disaggregate by 
type of service 
NGO received 
capacity building 
in. 
Disaggregate by 
NGO 
platformllocation 
D isaggregated 
by type of illegal 
taxeslrent￾seeking 
behaviors. 
Locations 
Existing 
economic 
data; rapid 
market 
surveys; 
suppliers ; 
traders; 
purchasers; 
community 
me rnbers; 
local 
government 
officials 
Existing 
economic 
data; rap id 
market 
surveys; 
sel lers, 
buyers, 
traders, 
cornmun ity 
members; 
local govt. 
officials; 
NGO 
Platforms; 
I RM 
Methods for 
Collecting 
Data 
Key informant 
interview, 
project reports, 
training 
materials, group 
interviews/focus 
group 
interviews 
Review of 
existing 
economic data; 
rapid market 
surveys at each 
stop; Key 
informant 
interview; 
group 
interviews; and 
community 
interviews; 
observation in 
villages 
Review of 
existing 
economic data; 
rapid market 
surveys at each 
stop with 
buyers; Key 
informant 
interview; 
group 
interviews; and 
community 
interviews; 
observation in 
villages 
Relnnce Economique M id-Term Evaluation 
Procedures 
What 
approaches 
were used for 
strengthening 
the NGO 
Platforms? 
Which ones 
were most 
effective? 
Mapping 
exercise with 
table on three 
items being 
sold from the 
boat. Tabulate 
results. 
ANNEX 5 
Interviews Conducted and Persons Met 
Key Informant: 
Lyse Pylon, Country Representative, IRM 
Jose Cabrera, Deputy Team Leader, Relance Economique Project, IRM 
Desire Bolefa, Facilitator, IRM Mbandaka Office 
Riza Latelabwe, Coordinator, IRM Kikwit Office 
Sacre Mapasi, Facilitator, IRM Kikwit Office 
Fabrice Mbeshi, Facilitator, IRM Kikwit Office 
Mr. Kandamba, CLAT President, Bilili (Bandundu Province) 
General Mustapha, First Military Region, Bandundu Province 
Kisungu Katiti, Territory Administrator, Lusana, Bandundu Province 
Group and Individual Interviews 
Mbandaka market women (6 individuals, random selection) 
Maita community members (6 individuals interviewed within group) 
Association de Protection de Parroquet, Maita, Equateur Province 
Ngombe community (individuals - 3 women, 3 men - random selection) 
Ngombe Women's Association 
Lusanga Women's Association 
Kikwit Theatre Troupe 
Comites de Lutte Anti-Tracasseries (CLATS) 
Mbandaka CLAT 
Maita CLAT 
Ngombe CLAT 
Lusanga CLAT 
Kikwit CLAT 
Relance Economique Mid-Term Evaluation 
ANNEX 6 
References 
Malemba, Philippe Ngwala. May 2004. "Enquete sur 1 'evaluation des tracasseries et 
1 'inventaire des conjlits duns les zones d 'intervention de IRM'. 
Malemba, Philippe Ngwala. September 2003. "Enquete sur les Facteurs Susceptibles de 
Favoriser la Relance des Activites Economiques sur lefleuve Congo et ses Affluents". 
Seminaire-Atelier Provincial de Bandundu, "Tous, Contre les Tracasseries pour un 
Developpement Durable". Final Report. June 2004 
Seminaire-Atelier Provincial de Mbandaka (organized at the centre d 'accueil d 'lyonda). 
Final Report. June 2004. 
Relance Economique Mid-Term Evaluation