This is an archived USAID document retained on this web site as a matter of public record.

Testimony of Administrator J. Brian Atwood
Before the House International Relations Committee
Washington, D.C., July 16, 1997
U.S. Agency for International Development

Chairman Gilman, Congressman Hamilton, and other members of the Committee, it is a pleasure to appear here today to discuss the ongoing situation in the Democratic Republic of the Congo. I would like to build upon the remarks of Under Secretary Pickering and offer you some more detailed information concerning our current assistance plans for the Democratic Republic of the Congo.

Just two month's ago, Zaire stood as a monument to the terrible toll autocracy, corruption, poverty and combat can inflict upon a nation. The Democratic Republic of the Congo inherited some of the most desperate indicators of human suffering in the world. The Congo's per capita income is a mere $120, the third lowest in the world, with only Ethiopia and Mozambique having less individual wealth. This low per capita income stands in sad and stark contrast to the riches that were plundered from Zaire by its leaders. In the Congo, only six percent of the population has access to sanitation, with only the people of Guinea and Nepal having less access to such services. Well less than half of Congolese children have been immunized against endemic killers such as tuberculosis, polio and measles. The Congo suffers some of the highest infant mortality and lowest life expectancy rates in the world.

The bitter legacy of the Mobutu regime also casts a pall across the political landscape. Deep tension and hostilities can be found between ethnic groups across the country, and bloodletting and the settling of old scores has been all too common. In a country where poverty remains so pervasive, violence and repression have often been the first resort, not the last. Bringing a lasting transformation to the Congo will take more than well-intentioned leaders and modest international support; it will take a sea-change in that nation's political culture to help undo years of squandered potential.

One of our greatest concerns in the Congo, and in the entire Central African region, continues to be the human rights situation. I am hopeful that the United Nations will be able to begin an investigation into human rights abuses expeditiously. The progress of such an investigation will, of course, affect the structure and depth of our assistance plans for the Congo. We will not turn a blind eye to abuses by any party.

It is also important to stress that the bloodshed we have witnessed in the Democratic Republic of the Congo is part of a larger cycle of violence that has repeatedly surged across the borders of the Central African nations. To look at atrocities in the Congo also entails addressing events that led to the terrible slaughter in Rwanda in 1994, the demise of the Arusha accords and continuing instability in Burundi. Both the situation in the Democratic Republic of the Congo and the genocide in Rwanda have again highlighted how far the international community still has to go in being able to address crimes against humanity quickly and effectively. The international community must develop more effective mechanisms to bring justice to those who perpetrate such massive crimes.

I believe Under Secretary Pickering has clearly articulated our national interests in the Congo. The Congo has tremendous economic potential, with vast natural resources that could attract numerous private investors if the political situation stabilizes. The Congo could drive economic recovery in Central Africa the way South Africa is currently leading growth in Southern Africa. Bordering nine countries with Africa's third largest population, the Congo is a linchpin of regional security and could prove to be a stabilizing force in a region that has endured many internal conflicts and hosts huge numbers of refugees and internally displaced. Similarly, the Congo's efforts to address sweeping concerns such as rapid population growth, environmental degradation and the spread of infectious diseases will ultimately have ramifications that go far beyond its national borders.

The course this African nation takes over the next several years -- good or bad -- will have tremendous impact on not only the people of the Democratic Republic of the Congo, but on that nation's neighbors and on U.S. foreign policy. In Africa and elsewhere we have seen the high costs of failed states, and we have seen the United States forced to respond to imploding nations with massive humanitarian relief often delivered with the assistance of U.S. military forces. No one wants to see the Congo return to such a spiral of chaos. To any who would question why we are moving ahead with all due haste in the Congo, I would remind them that we do not have the option of watching these developments as detached or disinterested observers.

By any standard, the Congo is at a turning point. The Clinton Administration believes that we must maximize the opportunities we face in the Democratic Republic of the Congo, while remaining clear-eyed about the tremendous obstacles we face. To not engage is to risk losing the opportunity to make a lasting difference. As Under Secretary Pickering stated, we are planning for the allocation of approximately $10 million during fiscal year 1997 to assist the transition toward democracy and free markets in the Congo. You can be assured that no funds will be committed without thorough and bipartisan consultations with the Congress.


USAID's Strategy

Last month, the U.S. Agency for International Development's (USAID's) Chief of Staff, Richard McCall accompanied Ambassador Bill Richardson to the Democratic Republic of the Congo. USAID also sent a five-person assessment team to the Congo during the month of June. The findings of these two teams have been instrumental in designing our approach to the Democratic Republic of the Congo, and I want to assure you that as our programs evolve they will continue to be driven by what our experts on the ground have to say. Based on our findings and close interagency consultations, we are developing an assistance strategy for specific activities to be undertaken in fiscal year 1997, and laying out the broad outlines of our approach for next fiscal year.

The Clinton Administration wants to be clear: our assistance is contingent upon the policies and actions of the new government. The choice is a simple one. If this government acts responsibly and as a good partner we will support their efforts with direct and targeted assistance. If this government rejects the notion of open markets and open government, it will do so without the assistance of the United States. At this juncture, we remain cautiously optimistic. We are actively exploring ways of harnessing the positive forces within the government and the country. We are interested in tapping those elements who are committed to reform and it is essential that Congolese civil society remain a strong and active partner in rebuilding the country.

In transition situations such as this, the expectations of the people for dramatic improvement in their lives can be considerable, and it is vital that reformers can deliver tangible results. Our transition activities will build upon the knowledge and expertise already gained through our experiences delivering humanitarian assistance in the Congo. Our goal is to support a transition to democracy that sets the stage for rapid social and economic recovery in the Congo. USAID's strategy for the Democratic Republic of the Congo is a multi-faceted approach that seeks to harness the agency's ability to respond quickly and flexibly to needs on the ground. Our efforts will be targeted at the local, regional and national levels, and will be designed to make a demonstrable impact and to show people the dividends of embracing change.

Our overall strategy for the Congo is built around three principal activities delivered at both a national and regional level: supporting a transition to democracy and free markets; providing immediate tangible benefits to the people of the Congo through activities such as meeting urgent health needs; and, continuing our support for needed humanitarian assistance.

We believe that by fostering a dialogue at the national and regional levels among political actors, the new government and other social forces, we can help the Congo make a successful democratic transition. Such a dialogue will be critical as the country develops a new constitution and prepares for elections. By promoting grassroots pluralism and choice, we can fully involve all representative political elements and especially the vibrant, dynamic Congolese civil society in development. By helping the government embrace sound economic policies, we can invigorate the private sector and reduce the crippling levels of corruption that the Congo has suffered in the past. By working with the World Health Organization and UNICEF, we can save tens of thousands of young Congolese lives through basic immunization campaigns. By promoting regional solutions to regional problems, we can foster ethnic reconciliation and jump-start economic growth. Lastly, by maintaining our humanitarian assistance until the transition has picked up steam, we can avoid the kind of wholesale suffering that could push the Congo back toward renewed conflict.

The Congo's human and natural resource base make its development potential virtually unlimited. With well-placed interventions from the donor community and good political and economic management from the government, the Congo could become one of the fastest growing economies in Africa -- if neglected, it could once again quickly plunge into the abyss.

Supporting a Transition to Democracy and Free Markets

We are committed to democratic reform, respect for human rights and free markets in the Congo. We were pleased that, in mid-June, the new government participated in a constructive fashion in a week-long meeting of leaders of Congolese civil society. A member of the USAID assessment team attended much of the meeting and was impressed by the willingness of the participants to discuss frankly some of the most difficult issues facing Congolese society today, including those dealing with ethnicity. We hope that this meeting lays a foundation for future dialogue and joint action.

President Kabila has committed his government to a transition to democracy culminating in national elections in early 1999. While we are encouraged by the establishment of a timeline for elections, we are concerned by present restrictions the government has placed on political activity. USAID is prepared to work to support constitutional development, elections, and other important political processes. We also recognize the importance of restoring integrity to the justice sector and are exploring ways to promote the rule of law.

The new government must quickly translate into action its positive rhetoric about promoting economic and social development to meet the fundamental needs of the people of the Congo. The central government contains some high-quality Ministers -- to give a few examples, Dr. Sondji, the Minister of Health, and Kambale Mututulo, the Minister of Mines are men of proven integrity. Overall, they are a refreshing change from the venal ministers of the Mobutu era. Our policy of engaging such officials in a dialogue has already proven useful on the economic front. For example, members of Ambassador Richardson's delegation stressed the importance of sound advice on fiscal and monetary policy in meetings with the Minister of Finance. A World Bank team recently was able to complete a successful mission to Kinshasa and President Kabila publicly endorsed the need for the "full assistance and strong support of the World Bank" in his address on June 30, Congolese Independence Day.

State corruption, hyperinflation, and overall abysmal management of the economy during the last decade of the Mobutu regime prevented the emergence of a strong, formal private sector in the Congo. If the new government implements effective fiscal and monetary policies, then an early result should be the renewal of a strong, formal private sector, with both local and international private investment contributing to economic growth. We are working with our colleagues in the Departments of State, Treasury, Commerce and other agencies to develop a strategy to promote the strengthening of the private sector in the Congo.

Our proposed program in democratic governance is designed to expand political inclusiveness and develop a broad-based consensus on priorities for a democratic transition. These programs will also seek to reduce the use of extra-judicial force by the military and police and help to begin establishing a legal framework to mitigate corruption and increase the confidence of the private sector. An over-arching goal of these programs will be to promote ethnic reconciliation. These activities will be initiated this fiscal year. For the most part, these programs will be carried out at the national level working with a range of partners and actors. By early fiscal year 1998, complementary activities should begin at the local and regional levels, using regional offices as platforms.

Our proposed activities include assistance to strengthen the capacity of civil society and political actors to engage in a constructive dialogue with the transition government on a broad range of issues. We are also looking closely at ways to support the constitutional development process and upcoming elections. Follow up efforts would include an assessment of the role of the justice sector, including an examination of the capacity of the courts and legal professionals and of civil, criminal and commercial law.

The need for technical assistance in public administration is acute in the new government, particularly in the economic policy arena. The central government includes some high quality ministers who are known for their integrity and their desire to be a force for positive change. However, they lack the depth of experience and skilled staff needed to plan effectively and restore the basic functions of government. In the immediate term, it will be critical for them to establish the right fiscal and monetary policies. The government already has been consulting with the World Bank, other international financial institutions and other potential bilateral sources of technical assistance such as the South Africans. However, before any assistance in this particular realm could take place, we expect the government to meet established benchmarks with regard to its performance including human rights and humanitarian access. Obviously, any non-humanitarian assistance would also entail securing proper waiver authorities.

Providing Tangible Benefits to the People of the Congo: Meeting Urgent Health Needs

USAID's fiscal year 1997 strategy focuses primarily on key transition issues related to promoting stability and democratic transition. Our proposed intervention in the health sector can support these efforts. Health care services for the average Congolese are extremely limited and in some cases non-existent. Epidemic outbreaks have been common as a result, including hemorraghic fever, polio and measles epidemics. There have been no nation-wide immunization campaign undertaken in the Democratic Republic of the Congo in the 1990s, and only about one-third of the nation's children have even been immunized against such basic threats as polio, measles and tuberculosis. As a result the Congo has become a potent breeding ground for disease, a threat not only to its own citizens, but to international public health.

Both UNICEF and consultants from the Centers for Disease Control have indicated that boosting vaccination coverage across the country is an important first step in beginning to restore health services. USAID, the World Health Organization, UNICEF and the Ministry of Health will be conducting a joint assessment team to examine how best to restore immunization services around the country. This effort will supplement a more comprehensive review and strategy for restoring health care services that is currently being conducted in the Congo by the World Health Organization.

The Minister of Health is highly regarded in the medical field and has identified this as a priority intervention. Support for the vaccination program is one of the few ways we can show support for one of the government priorities at the national level in the near term. Efforts to restore the crucial health services will save lives and provide fast, real tangible benefits to the people of the Congo.

Providing Humanitarian Assistance

USAID will continue to provide humanitarian assistance to ease suffering of those most affected by the conflict and dislocation. In this fiscal year, USAID has already provided more than $10 million in non-food humanitarian assistance to the Democratic Republic of the Congo through our Office of U.S. Foreign Disaster Assistance. The funds have been given in the form of grants to non-governmental organizations, such as CARE and Catholic Relief Services, and to U.N. agencies and international organizations working in the eastern part of the country. These funds provided rehabilitation assistance to Congolese internally displaced persons and life-saving assistance to Rwandan refugees before returning to Rwanda. In addition, USAID's Office of Food for Peace has provided more than $72 million in Food For Peace emergency assistance, and the State Department's Office of Population, Refugees and Migration has provided $43 million in 1997 assistance to the Great Lakes region.

USAID's Disaster Assistance Response Team ceased operations on June 30. However, USAID will continue to consider grants for targeted, urgent needs in war-affected areas and respond to any unforeseen emergencies as needed. While no additional food aid is currently planned for this year, USAID will consider food aid grants in the Congo that promote rehabilitation in war-affected areas. Food for work and other targeted feeding programs will also be considered.

Working in Key Regions

Our strategy for the Congo will use regional platforms to deliver significant parts of our assistance. Many of the key issues and opportunities in the Congo are regional, and these regions have the capacity to serve as a real catalyst for economic growth and social reconciliation. Also, by helping to decentralize power and decision-making from Kinshasha we feel we can contribute to stability and democratic development. The USAID assessment team traveled to six regions, primarily in the eastern part of the country. The team found committed and competent governmental officials in these regions. After talking with dozens of governmental officials, representatives of civil society, church leaders, and entrepreneurs, the team was struck repeatedly by the intelligence, idealism, competence, and commitment of many of the individuals. These traits have survived in defiance of a system that so thoroughly promoted the opposite.

In tandem with our efforts at the national level, USAID is planning to focus on regional democratization and development challenges in a number of key regional centers. Assessment findings show that while there is optimism among the populace and a desire by many regional authorities to work for positive change, there is also the potential for continued unrest and instability. Some of the most volatile areas of the country are Katanga, North and South Kivu and East and West Kasai -- where tensions revolve primarily around ethnic and economic issues.

These regional programs target quick-response, discrete interventions that are designed to enhance the prospects for stability to the extent possible. It will help regional actors work together to resolve regional problems, with a focus on security, economic revitalization and peace building and conflict resolution. It is designed to provide immediate tangible benefits to the population. Activity selection and implementation will be done in a way that promotes democratic decision-making processes within communities.

The proposed approach involves the establishment of three regional offices, one in each of the regions noted above. USAID-funded Personal Services Contractors will be placed in these regions to define transition priorities unique to the area and to identify a USAID implementing partner that can assist with the rapid disbursement of grants. Together, these staffers and our implementing partners will devise a process for soliciting proposals and administering grants that help meet priorities identified by local/regional governments, civil society and the private sector working together.

Our goal is to establish offices in Lubumbashi, (Katanga province), in either Goma (North Kivu) or Bukavu (South Kivu) and in East or West Kasai this fiscal year. Grant disbursements will likely begin in September for these regional projects. Activities would finance micro-projects such as repairing schools and water systems, small infrastructure rehabilitation and technical assistance to regional authorities.

Donor Coordination

We are also working with other donors. We are consulting with international organizations, the international financial institutions, other bilateral donors, and international experts on policy and potential programs for the Congo. My recent visit to Japan for the annual Tidewater donor coordination conference allowed us to closely compare notes for our respective plans in the Congo. The World Bank recently announced that it would organize an international donors conference on the Congo in September. We support this initiative. It will not be a pledging conference, however. We see it as an initial important opportunity for an international discussion on how to approach the developmental challenges facing the Congo. We also plan to work closely with African countries, such as South Africa, who have demonstrated their own keen interest in and commitment to a prosperous, democratic Congo.

Conclusion

On balance, I feel that the assistance programs that have been outlined today are a modest and sound effort designed to help the Democratic Republic of the Congo move toward greater stability, democracy and economic recovery. Given that it is already late in fiscal year 1997, many of the activities above will be coming fully on line during the next fiscal year. If the transition progresses smoothly, we would envision a more expansive strategy. Concurrently, if the government back pedals on its commitments or if there is a serious erosion in the human rights situation, we would certainly alter our plans to move forward with assistance.

The Democratic Republic of the Congo stands at an important crossroad. The Congo has a choice between becoming an economic and cultural powerhouse that can help drive the engine of development across central Africa, or the country can remain mired in the divisive and destructive politics of repression, self aggrandizement and personal enrichment. The United States is eager to see the Democratic Republic of the Congo move forward and build upon the tremendous potential of its citizens. The Administration is eager to work with the Congress closely in pursuing this goal, and I look forward to your comments.

Thank you.

This is an archived USAID document retained on this web site as a matter of public record.

:  :  :  :  :  :  :  :  :  :  What's New : FOIA Requests : Privacy Policy : Email This Page : Plug-ins : FAQs : Help Desk : Contact Us : Site Map Last Updated on: July 18, 2001