Jamahiriya means, "state of the masses," and politically implementing this system would involve a process of total decentralization of power, whereby all decisions would be left to the citizens via direct democracy. In 1998, the GPC divided Libya into 26 governorates (Sha'biyah), each to be headed by the secretary of a people's committee. There are municipal people's congresses, as well as vocational, production, professional, and craft people's congresses. Although in theory Qadhafi plans to decentralize power to the 380 popular congresses, most decisionmaking power is tightly controlled by the central government. The municipal people's congresses appoint people's committees to execute policy.