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Thisarticle is an exploratory attempt to understand the state of underdevelopment in contemporary Zaïre through a study of bureaucratic decision-making process at the local level. It is based on a series of investigations which the author and a group of colleagues carried out in 13zonesin Shaba Region during 1975 and 1976, but our reflections have evolved considerably since then and, to a large extent, have outstripped the reach of the research data, so that the present article should be considered as a report on work-in-progress.

All administrative structures are affected by their cultural, social, economic, and political environments. The daily interactions between the two sectors comprise the substance of the administrative activity. In 1973 Zaïre's local administration was subjected to a reform which centralized and standardized its structures. This article examines the reform of the administration from the perspective of social underdevelopment. The local administrative cadres appeared to emerge from the reform with more power and prestige in social planning. However, the actual outcome of the reform in terms of development was doubtful since the authorities who acquired politico-administrative functions were engaged in their own lucrative activities and the public had little control over their administrative actions. Thus the administrative structure became an instrument which the dominant class—the bourgeois politico-administration—could use to strengthen its power over the economy. It could scarcely be otherwise in a situation in which underdevelopment creates and sustains a continual crisis. The consequences are inequalityx in the distribution of public goods and inequity in public decisions. All of these factors produce real stagnation in the society, in spite of the apparently revolutionary upsets which have occurred from time to time. They permit external domination to strengthen its hand and allow internal domination to carve out a suitable empire. To change the situation and free up local administration would require a genuine revolution in the devolution of power to the whole public.

In 1973 Zaire's local administration was subjected to a reform which centralized & standardized its structures. This reform is examined from the perspective of social underdevelopment. The structure of the local administrations is presented & several examples of decision making are examined. Reform has not provided the means to fight underdevelopment; the authorities who acquired policito-administrative functions were engaged in their own lucrative activities & the public had little control over their administrative actions. Thus, the administrative structure became an instrument which the dominant class could use to strengthen its power over the economy. This is the result of a situation in which underdevelopment creates inequality in the distribution of goods & in decision making. To change this situation, a genuine revolution is required. Modified HA.