Simple Solution.
There should be no aviation legislation in the DRC except that should an aviation operator/company have an accident where passengers are hurt or killed, the entire managemnet structure and the company owners (and their families) simply get rounded up and shot by the local army firing squad.
This eliminates any complicated legislative process and creates a serious incentive for the operators/ company owners to run a tight ship.
I can think of quite a few African countries that would benifit from a system such as this.