Daniel R Ruhweza Frustrated or Frustrating Working_paper_20
Transcript of Daniel R Ruhweza Frustrated or Frustrating Working_paper_20
Frustrated Or Frustrating
FRUSTRATED OR FRUSTRATING?
THE INSPECTOR GENERAL OF
GOVERNMENT AND THE QUESTION OF
POLITICAL CORRUPTION IN UGANDA
daniel ronald ruhweza
HURIPEC WORKING PAPER NO. 20
November, 2008
HU
MA
N R
IGHTS AND PEACE CEN
TE
R
HURIRIR PECECE
Frustrated Or Frustrating
Frustrated Or Frustrating?
tHe insPeCtOr generaL OF gOVernMent and tHe QuestiOn OF POLitiCaL COrruPtiOn in uganda
daniel r. ruhweza
HuriPeC WOrKing PaPer no. 20
nOVeMBer, 2008
Frustrated Or Frustrating
Frustrated Or Frustrating?
tHe insPeCtOr generaL OF gOVernMent and tHe QuestiOn OF POLitiCaL COrruPtiOn in uganda
daniel r. ruhweza
Copyright© Human rights & Peace Centre, 2008
isBn 9970-511-24-8
HuriPeC Working Paper no. 20
nOVeMBer 2008
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taBLe OF COntents
aCKnOWLedgeMents...................................................................................... i
List OF aCrOnYMs/aBBreViatiOns......................………..………............ ii
List OF LegisLatiOn & internatiOnaL COnVentiOns….......… iii
List OF Cases …………………………………………………….. .......… iv
suMMarY OF tHe rePOrt and Main reCOMMendatiOns……...... v
i: intrOduCtiOn ………………………………………………........ 1
1.1 WorkingDefinitions….………………...............................................................5
1.1.1 The Phenomenon of Corruption …………………………………….......5
1.1.2 Corruption in Uganda………………………………………………....6
ii: ratiOnaLe FOr tHe CreatiOn OF tHe insPeCtOrate … .... 9
2.1HistoricalContext…………………………………………………............9
2.2 OriginalMandateof theInspectorate.………………………….……..........9
2.3 CurrentMandateof theInspectorateof Government………………..........8
iii: anaLYsing tHe rOLe OF tHe insPeCtOrate ……….... 11
3.1 PoliticalCorruptionDefined…..…………….………………...........13
3.1.1 Genealogy of the Fight Against Political Corruption…………............ 15
3.2. BarkingDogorPoisonousSnake?AnalysingtheEfficacyof the
Inspectorate.................................................................................................17
3.2.1 Enforcement of the Leadership Code in the fight against
Political Corruption ………................................................................ 17
A: Fox Odoi v. Attorney General……………............................ 18
B: Roland Kakooza Mutaale v. Attorney General………..….... .... 19
C: John Ken Lukyamuzi v. Attorney General………………......... 20
3.3 MajorChallengestotheInspectorate………………….......................213.3.1 Lack of Political Will ……………………………………........ 223.3.2 The Question of Political Interference …………………………..... 253.3.3 Conflicts with Government Institutions ………………………....... 27
3.3.3.1 The Case For Co-Operation ………………………….... 273.3.3.2 Laxity In Implementing Inspectorate Recommendations …… 30
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3.3.3.3 Laxity of Parliament ………………………...……...... 313.3.3.4 Clash With The Attorney General’s Chambers ………...... 33
3.3.3.4.1 The Battle of Wits: Challenges of Legal Interpretation ................................................35
3.3.4 Non Adherence To Procurement Rules …………………………... 383.3.5 Court Processes and Unique Corruption Trials …………............... 40
3.3.5.1 Legal Technicalities …………......................................... 413.3.5.1.1 The Jim Muhwezi Case ……………................ 413.3.5.1.2 Serapio Rukundo v. Attorney General ….......... 423.3.5.1.3 The Nsimbe Housing Estate Scam …………... 43
3.3.6 Poor Ethical and Moral Standards …………………………....... 443.3.7 Institutional Challenges at the Inspectorate …………………….....46
3.3.7.1 Case Prosecution …………………………………….... 473.3.7.2 Lack of Training Facilities ………………………….....473.3.7.3 Need For Financial Assistance ……………………........ 483.3.7.4 House Divided Against Itself …………………….........49
iV: COnCLusiOn and MaJOr reCOMMendatiOns ………. 514.1 RevisitingtheDefinitionof CorruptionandtheInspectorateMandate.......51
4.2TheRoleof AcademiaandTheMedia…..……………………...................52
4.3Government………………………………………………………..........53
4.4Roleof DevelopmentPartners,JudiciaryandCivilSociety………….........55
4.5Conclusion…………………………………………………………........56
5.0 seLeCt BiBLiOgraPHY ……………………………...………………….. 57
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ThisWorkingpaperwasbeenwrittenundertheGoodGovernanceProgramfundedbyNORAD,andIsincerelyappreciatetheconsiderablesupportinassistingHURIPECtocontinuecarryingoutveryessentialresearch.IamgratefultoJ.Oloka-Onyangoforhisencouragementandassistanceinwritingthispaper,andtoRonaldNaluwairoforpatientlywaitingforthispapertodevelop.AdrineAsingwireisthankedforherresearchinput.IalsowishtothankHon.JothamTumwesigye,Hon.RaphaelBaku,andtheHon.LadyJusticeJuliaSebutindeamongothersforallowingmetointerviewthemforthispaper,togetherwiththoseintervieweeswhochosetoremainanonymous.Theirinputhasbeeninvaluable.Iamequallygratefulfortheencouragementandcriticalreviewfromallthosewhoattendedthegoodgovernanceworkshopwhereanearlierversionof thispaperwaspresented.Lastbutcertainlynotleast,IamgratefulforalltheencouragementandsupportIreceivedfromJames,Jemimah,Clare,DamitaandDarlene.
MaytheLordblessyou.
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List OF aCrOnYMs/aBBreViatiOns
AG AttorneyGeneral
ACCU Anti-CorruptionCoalitionUganda
APNAC AfricanParliamentariansNetworkagainstCorruption
AU AfricanUnion
AG AuditorGeneral
CIA Commissionof InquiryAct
CID CriminalInvestigationsDepartment
CPI CorruptionPerceptionsIndex
DEI Directorateof EthicsandIntegrity
DPP Departmentof PublicProsecutions
GoU Governmentof Uganda
GAVI GlobalAllianceforVaccineandImmunization
IGG InspectorGeneralof Government
GAVI GlobalAllianceforVaccinesandImmunisation
IGP InspectorGeneralof Police
MJCA Ministryof JusticeandConstitutionalAffairs
MP Memberof Parliament
NIS NationalIntegritySurvey
NRM NationalResistanceMovement
PAC PublicAccountsCommitteeof Parliament
PPDA PublicProcurementandDisposalof PublicAssetsAuthority
TIU TransparencyInternationalUganda
TI TransparencyInternational
UDN UgandaDebtNetwork
UNDP UnitedNationsDevelopmentProgramme
UPF UgandaPoliceForce
UNHCHR UnitedNationsHighCommissionforHumanRights
URA UgandaRevenueAuthority
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List OF LegisLatiOn
AccesstoInformationAct2005Lawsof Uganda
Constitutionof theRepublicof Uganda,1995
EvidenceActCap.6Lawsof Uganda
Inspectorateof GovernmentAct5of 2002Lawsof Uganda
LeadershipCodeAct2002Lawsof Uganda
PenalCodeAct,Cap.120Lawsof Uganda
PoliceActCap.303Lawsof Uganda
Preventionof CorruptionActCap.121Lawsof Uganda
PublicFinanceandAccountabilityAct2003Lawsof Uganda
Public Procurement andDisposal of PublicAssetsActNo.1 of 2003 Laws of Uganda
internatiOnaL COnVentiOns against COrruPtiOn
AfricanCharteronDemocracy,ElectionsandGovernanceCharter/II/Rev.4.
Inter-AmericanConventionagainstCorruption,Mar.29,1996,35I.L.M.724.
MeasuresAgainstCorruptPracticesOf TransnationalAndOtherCorporations,TheirIntermediariesAndOthersInvolvedG.A.Res.3514,U.N.GAOR,3othSess.,Supp.No.34,at69,U.N.Doc.A/10034(1976).
OECDConventiononCombatingBriberyof ForeignPublicOfficialsinInternationalBusinessTransactions.
Organization forEconomicCooperation andDevelopment (OECD)Conventionon Combating Bribery of Foreign PublicOfficials in International BusinessTransactions.
UnitedNationsDeclarationagainstCorruptionandBriberyinInternationalCommercialTransactionsG.A.Res.51/91,U.N.GAOR,2dComm.,51stSess.,86thplen.Mtg.,pmbl.,U.N.Doc.A/RES/51/191(1997).
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List OF Cases
Annebrit Aslund v. The Attorney General of Uganda Misc. Appl. No. 441 of 2004(Unreported)
Inspector General of Government v. Kikonda Butema Farm Limited and Attorney General ConstitutionalApplicationNumber13of 2006
Inspector General of Government v. American Procurement Co. Ltd and Attorney GeneralHCT-00-CC-0S-248-2007arisingoutof CivilSuitNo.735/2006.
James Isabirye v. Attorney General & Inspector General of Government PetitionNo.33of 2006
John Ken Lukyamuzi v. the Attorney General of Uganda and the Electoral Commission ConstitutionalPetitionNo.19of 2006.
Kabagambe Faraj v. Attorney General & Another PetitionNo.1of 2006
Kiara Amos Wereba & Others v. Arua Municipal Council & Inspector General of Government Hct-02-Cv-Ma-0109-2004Gulu(Unreported)
Kikonda Butema Farms Ltd v. Versus the Inspector General Of Government HCT-00-CV-MA-593-2003(Unreported).
Odoi Fox Odoi Oywelowo and & James Akampumuza v. Attorney General ConstitutionalPetitionNo.8of 2003.(Unreported)
Roland Kakooza Mutale v. the Attorney General ApplicationNo.665of 2003arisingoutof HCCANo.40of 2003(Unreported)
Roland Kakooza Mutale v. the Attorney General HCCANo.40of 2003(Unreported)
Uganda v. Hon. Jim Muhwezi & 3 Others HighCourtRevisionPetitionNo.19/2007arisingfromBugandaRoadCourtCaseNo.557/2007:
Uganda v. Joseph Kalias Ekemu and David Kadidi Kamwada CriminalCaseNo.2829of 1997(Unreported).
Uganda v. Onegi Obel, Leonard Mpuuma, Bakoko Bakoru Zoë &James Isabirye IG.Ref.TS.35/2003;CRTRef.BU-CO-1222-2006
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suMMarY OF tHe rePOrt and Main reCOMMendatiOns
One of the main reasons the national resistance Movement/ army started a guerrilla movement, which subsequently over threw the so-called “bad” government of the day in 1986, was to eliminate corruption from the rubric of Ugandan society, and the office of Inspector General of Government (IGG) was created to achieve this goal. this study therefore examines the role of the igg in fighting corruption, with a special emphasis on political corruption. The paper recognises the critical role played by the igg in the promotion of the rule of law and of good governance and explores the main challenges frustrating the inspectorate in achieving this goal. this is done by analysing the mandate of the igg and identifying the obligations of the government and other actors in the fight against political corruption.
it is against this background that this paper makes the following conclusions:
• the rule of law and good governance are crucial ingredients of any democratic society and should therefore be encouraged and enforced by the state, public institutions, and private persons. all must join hands to ensure that the principles of good governance are upheld;
• Corruption is a deadly cancer eating away at the soul of the nation and should therefore be fought with all available resources and mechanisms;
• There are many serious challenges involved in fighting corruption—particular of the political variant—some of which are rooted in the decay of morality and of the ethical framework of society.
the paper makes the following recommendations:
• The government needs to show the political will to fight corruption by inter alia implementing the recommendations of the igg and improving the remuneration of the more experienced prosecutors and other professionals in the inspectorate;
• the jurisdiction of the inspectorate of government should be made explicitly clear to all stakeholders in order to avoid clashes among the different state organs involved in the fight against political corruption;
• While, the role of the igg is crucial in the struggle against corruption, the mandate of the inspectorate should be reduced in order to have more efficient results in the fight against corruption. This should be done by allocating the roles of Ombudsman and enforcing the leadership code to other institutions.
• at the same time there is a need to guard against the excesses of the igg by encouraging more action from parliament to which the inspector general of government reports.
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• the igg act also needs to be amended to coerce Parliament and the executive to not only act, but to take appropriate action.
• Parliament needs to constitute the leadership code tribunal provided for by article 235a of the Constitution, in order to deal with those who are alleged to have breached the Leadership Code act;
• the judicial system and especially the recently created anti-corruption division of the High Court of uganda should be well facilitated with the most recent technology for investigations and speedy trials.
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i. intrOduCtiOn
Followingtwodecadesofviolentcivilwar,massivecorruption,instabilityandeconomicdecline,Ugandahas seen remarkable economic growth and enhanceddemocracy.1 However,considerablechallengesremain.Rightfromindependence,Ugandahadnomodelof atransparent,accountablegovernmentuponwhichtobuildthefoundationsof anewdemocraticstate.2 TheBritishcolonialregimewas,bydefinition,unaccountableto thepeopleand itscolonialbusinesswasnotconductedaccording todemocraticnormsof openness,transparency,andaccountability.Repressivecolonialpoliciesalsoheightenedsocialandethnictensionswithinthecountry, therebyhelpingto laythefoundationformuchof theconflictthatwoulddefineUgandanpoliticsoverthethreedecadesthatfollowedindependence.3 Toborrowthewordsof PresidentMuseveni,
…most of the political views we have had, have been of a backward, non-progressive type: tribalism, sectarianism, sycophancy, intrigue, corruption etc. These wrong lines, for which Obote bears great responsibility, have propelled into leadership people of ideas that would have been considered reactionary even in medieval times…4
AsstatedintheFreedomHouseCountryReport:
Uganda has always been a difficult country to govern democratically. It is deeply fragmented into ethnic, religious, and regional cleavages that greatly complicate the formation and maintenance of a legitimate ruling coalition. As his authority over his coalition members declined, each former ruler increasingly resorted to patronage and intimidation at the expense of support for the rule of law. By the time Museveni and the National Resistance Army (NRA) seized power by defeating the national army in 1986, Uganda had become a failed state without an effective constitution, fair elections, protection from terror, autonomous judges, or honest officials.5
Soon after coming to power in 1986, theNRM (NationalResistanceMovement)Governmentviewedcorruptionasoneof theevilsinheritedfromthepastandasakeyobstacletoprogress.PresidentMusevenioftenspokeof theseriousnessof corruptpractices,makingitclearthatheviewedcorruptionasathreattoUganda’sstabilityandtothepossibilityof establishingdemocracyinthecountry.Inordertoemphasizeitsdeterminationtoendcorruption,the(then)newgovernmentmadethefollowingcommitmentinitsTen-PointProgram:
…Africa, being a continent that is never in shortage of problems, has also the problem of corruption-particularly bribery ad misuse of office to serve personal interests. Corruption is indeed, a problem that ranks with the problems of structural distortions…6
1SeeKarugire,1988.2SeeHansen&Twaddle,1994.3SeeRuzindana,1995.4Museveni,1985,at19.5Seehttp://www.freedomhouse.org/modules/publications/ccr/modPrintVersion.cfm?edition=7&ccrpage=31&
ccrcountry=127accessed24thJune2007.6SeeMuseveni,op.cit.,at68.
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Corruptionhasthusbeenoneof themajorobstaclestoprogress. Indeed,Ugandacontinuestorankverylowamongstateswithingovernanceindicators.Ugandahasslipped fromposition 111 to 126 among 180 countries surveyedbyTransparencyInternational.7TheWorldBankalsoestimatesthatUgandaannuallylosesabout$300m(Ugandashillings510billion).8
Uganda’svulnerabilityinthisrespecthasthusworsenedoverthepastthreeyears,havingbeenplaced27thamong75countriesin2005whentheindexwasfirstlaunched.9InarecentopinionpollconductedbytheFundforPeace,mostrespondents(42.4%)statedthatcorruptionwasthemostcriticalcauseof statefailure,followedbythelackof basiceducation,grouphatred,andfinallypoverty.10 Furthermore,TransparencyInternational(TI)ranksUgandaasthe130thmostcorruptof 163countriesinitsGlobalPerceptionsof CorruptionIndex.11
Eightmonths after takingoffice in January1986,PresidentMuseveni signalled thegovernment’s intent to stampout corruption by appointing an InspectorGeneralof Governmentwithextensivepowersof dealingwithcorruptionandhumanrightsabuse.Popularlyknownasthe‘IGG,’theInspectorateof Governmentwasestablishedinresponsetotheescalatingandrampantoccurrenceof corruptioninpublicofficesandtheabuseof humanrightsduetobadgovernanceinthepast.In1988,theofficereceivedlegalbackingwiththeenactmentof theInspectorateof GovernmentStatuteNo.2of 1988andfurtherreinforcementbyArticle223of the1995Constitutionof Uganda.12 ItsspecificmandateandfunctionsarelaidoutinArticle225.TheInspectorateof GovernmentStatuteNo.2of 1988hasnowbeenreplacedbytheInspectorateof GovernmentAct,2002,13 whiletheLeadershipCodeStatute14 hasalsobeenreplacedbytheLeadershipCodeAct2002.15
Thejurisdictionof theInspectorateof Governmentcoversofficersandleadersemployedinpublic serviceandotherorganizations, institutionsorenterprises thatusepublic funds.16Inthebi-annualreportstoParliament,theInspectorateof Governmentmay
7SeeAnneMugisa,‘LevelofCorruptionRisesSaysWatchdog’,TheNewVision;Tuesday,23rdSeptember2008.Availableathttp://www.newvision.co.ug/D/8/12/651197;Seealso‘‘UgandaSlipsDeeperamongFailedStates’’TheDailyMonitor;21stJune2007.Accessedathttp://www.monitor.co.ug/news/news06213.php.SeealsoDonWanyama&TomMagumba,“UgandaSlips15placesincorruptionranking”TheDailyMonitor:25thSeptember2008at6
8See“EmbezzledMoneyMoreThanTotalAid,saysNsabaButuro”TheWeeklyObserver;14thFebruary2008.Accessedathttp://www.ugandaobserver.com/new/features/interview/int200802142.php.
9Id.10SeegenerallyOpiyoOloya,‘ThepoorestofthepoorliveintheCommonwealth!’,TheNewVision;,20th
November2007.http://www.newvision.co.ug/D/8/20/598219.11 See Corruption Perception Report available at http://www.nationmaster.com/graph/gov_cor-government-
corruption.Accessed9thJanuary200712The1995ConstitutionwasamendedbyParliamenttointroducevariouschanges.13ThisAct5of2002whichwasassentedtoonthe5thofMarch2002,andcommencednthe5thofApril2002,
wasmeanttooperationaliseChapterThirteenofthe1995ConstitutionandinparticulartogiveeffecttoArticles225,226and232oftheConstitutionandtorepealtheInspectorateofGovernmentStatute,1988.
14No.8of1992.15ThisActwasmeanttoprovideforminimumstandardsofbehaviourandconductforleaders.Itwasassented
toon25thJune2002,anditcommencedonthe12thofJuly2002.16Section9ofActNo.5of2002.
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highlightfailureonthepartof responsibleofficerstoimplementtherecommendationsof theInspectorateof Government.Article231of theConstitution(asamendedbytheConstitution (Amendment)Act11of 2005) requires thePresidentorany localauthorityreferredtoinclause(2)of theArticletosubmittoParliamentatleastonceayearactionsthathavebeentakenonreportssubmittedtothemforimplementation. Parliamentmaydeterminewhatactiontotakeagainsttheresponsibleofficial.17Theofficeof theIGGisapublicone,withamandatefarwideranddeeperthanthatof atraditionalOmbudsman.18Asnotedearlier,inthepreviousStatuteof 1988,theIGGwaschargedwiththegeneraldutyof protectingandpromotinghumanrightsandtheruleof lawinUganda,whichmandatewas later transferredtotheUgandaHumanRightsCommission(UHRC).19
Inspiteof theexistenceof theIGGforclosetonineteenyears,thereseemstobeageneraldeclineintherespectfortheruleof lawandanincreaseinthelevelsof corruptionandothersocialevilsespeciallyinallareasof publicadministration.20 Saveforsomeisolatedcases,therehasbeenagrowingfrustrationattheextenttowhichcorruptiongoesunpunishedandtheapparentinabilityof theInspectorateof Government21 andotherorganizationsempoweredtoinvestigateandprosecutecorruptiontoactdecisivelyandbringtheculpritstobook.22
Therealsoappearstohavebeenaspecificandcalculated movebytheverygovernmentwhichcreatedthisofficetofrustrateitsfunctions.23 Onearrivesatthisconclusionbyeitherconsideringthecommentsmadebycabinetministers;24 orwhenanalysingthe
17SeeThe InspectorateofGovernment and theFight againstCorruption inUganda, available atwww.igg.go.ug/docs/Corruption%20Insert.docaccessedon28thJune2007.
18 An official appointed to investigate individual’s complaints against maladministration, especially that of public authorities.SeeJudyPearsall,TheConciseOxfordDictionary10thEdition,RevisedOxfordUniversityPress2001, Page 993. An ombudsman (English plural: ombudsmans or ombudsmen) is an official, usually (but not always)appointedbythegovernmentorbyparliament,whoischargedwithrepresentingtheinterestsofthepublicbyinvestigatingandaddressingcomplaintsreportedbyindividualcitizens.Insomejurisdictions,theOmbudsman is referred to, at least officially, as the ‘Parliamentary Commissioner (e.g., the West Australian state Ombudsman). The word ombudsman and its specific meaning, Swedish in origin, have since been adaptedintoEnglishaswellasotherlanguages,andombudsmenhavebeeninstitutedbyothergovernmentsandorganizationssuchastheEuropeanUnion.Anombudsmanneednotbeappointedbygovernment;theymayworkforacorporation,anewspaper,anNGO,orevenforthepublic.Quotedfromhttp://en.wikipedia.org/wiki/Ombudsman.Accessedon24thJune2007.
19SeeArticle52ofthe1995Constitution.20NsabaButuro&MusasiziSimon‘Embezzledmoneymorethantotalaid,saysNsabaButuro’,TheWeekly
Observer; 14th February 2008 available at http://www.ugandaobserver.com/new/features/interview/int200802142.php.
21SeeSsemujjuIbrahimNganda,‘WhyMuseveni’sGettingToughonCorruption’,TheWeeklyObserver;21stJune2007.Availableathttp://www.ugandaobserver.com/new/archives/2007arch/news/jun/news200706211.php.
22SeeIGG,2003at143.23See Fortunate Ahimbisibwe, ‘Otafiire blasts IGG over Naguru estate,’ The New Vision; 25th June 2008. Available
athttp://www.newvision.co.ug/D/8/12/635581, where Otafiire said the IGG is not the Government and she cannotuseherpositiontofrustrategovernmentprojects.Weshallgoaheadwiththedevelopmentwhethershelikesitornot.NobodyshouldactasifheorsheismorepowerfulthantheGovernment.”
24ForexampleformerJusticeMinisterJanetMukwayastatedthatMr.Tumwesigye(formerIGG),wasinterferingwithgovernmentdepartmentsindisregardofhisconstitutionalmandate;SeeGraceMatsiko,‘Iwon’tresign,IGGreacts,’DailyMonitor;24thJune2007.Availableathttp://www.monitor.co.ug/news/news06101.php.
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issuesbroughtfordeterminationinthecourtsof lawintherecentpast,25andhowtheGovernmenthasrespondedtothem.26Indeedinoneparticularcase,PresidentMuseveniwrotetotheAttorneyGeneralrequestingforalegalopiniontotheeffectthattheInspectorateof Governmentdidnothavetheconstitutionalorlegalmandatetostopanygovernmentprocurementsandshouldthereforebepreventedfromdoingso.27
In anothermore recent situation,Ministerof LocalGovernmentKahindaOtafiirehasbeenattackingtheIGGovertheallocationof Naguruhousingestatetoaforeigninvestor,insistingthattheredevelopmenthadbeenapprovedbytheCabinetandthatnoonehadthepowertooverturnthedecision.28AccordingtoOtafiire,thedelayscausedbytheIGGmakeinvestorsrunoutof patienceandthreatentosuetheGovernment.29 However,theIGGhasretaliatedbysayingthatOtafiiremisadvisedthePresidentandcabinetabouttheproprietyof the$300m(sh510b)projectandalsostatedthatherworkshouldnotbefrustratedorobstructed.30
Thus,inspiteof thefactthattheIGGisthebrainchildof theNRMgovernment,31 conflictingmessagesarebeingsentouttothepublicwithregardtothefightagainstcorruptiongenerally,andtheabuseof publicofficeinparticular.32 In2004,CabinethadevenproposedtotheConstitutionalReviewCommissionthattheInspectorateandtheHumanRightsCommissionbemerged,inamovethatmanybelievedwasdesignedtoneutralisetheIGG’spowers.33 ThesituationismadeworsebythePresidentorderingthe
25SeeforexampleOdoiFoxOywelowoandJamesAkampumuzav.AttorneyGeneralConstitutionalPetitionNo.8of2003.
26Id.27See‘IGGLettertoPresidentMusevenionMutundweThermalPowerPlant,’TheNewVisionTuesday,29th
August2006availableathttp://www.newvision.co.ug/D/526/544/517912lastaccessedon28thJune2007.Seealso‘Uganda:etterforskningavanbudsprosessutsetterkraftutbyggingsprosjekt’15.04.2006Norskselskapinvolvert.availableathttp://www.transparency.no/article.php?id=209&plastaccessedonthe28thofJune2007;Seealsohttp://www.againstcorruption.org/CorruptionCase.asp?id=877;SeealsoAngeloIzama;‘KoreansFightNorwegiansfor$300MillionElectricityDeal’TheDailyMonitorApril15,2006;Seealso‘Uganda;$300MillionElectricityDealDelayedDuetoBiddingConcerns’TheDailyMonitorApril15,2006;SeealsoIbrahimKasita,‘HearingOfNamanveThermalPowerAwardStartsOnAugust17,TheNewVision,availableathttp://www.newvision.co.ug/D/8/220/577293accessedSunday,22ndJuly,2007.
28ChrisKiwawulo,‘Uganda:NaguruEstates-IsItaCaseofPersonalVendettaorFoulPlay?’,TheNewVision;availableathttp://allafrica.com/stories/200807280053.htmlaccessed25thJuly2008.
29SeeRichardWanambwa,‘NaguruInvestorToSueGovtForShs815billion’TheDailyMonitor;25thJuly2008http://www.monitor .co.ug/artman/publish/news/Naguru_investor_to_sue_govt_for_Shs815_billion_68742.shtml See also Barbara Among and Felix Osike, ‘IGG Orders Otafiire to Explain Naguru’ The New Vision, availableathttp://allafrica.com/stories/200806270207.htmlAccessed26thJune2008
30supra,note21.31Supra.,3.32Forexample,uponhisarrestforallegedmisappropriatingsh1.6bdonorfunds,formerhealthministerMaj.Gen.
JimMuhweziwasquotedassaying“Ifreallyourgovernmentsaysithasarrestedustoshowitsdeterminationto fight corruption in the country, then let all those people named in those reports like that on Congo be prosecuted.ThiswillevenredeemthenameofNRMwhichhasbeenviewedascorruptbymanypeople,”SeeCharlesArikoandEdwardAnyoli,‘HighCourtstopsMuhwezi,Mukulatrial’TheNewVision’availableathttp://www.newvision.co.ug/D/8/13/649831accessedonthe15thSeptember2008;SeealsoDanielKalinaki;http://kalinaki.blogspot.com/2007_05_01_archive.html.Accessed22ndMay2007.
33Id.
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reinstatementof ministerswhohavebeencensuredbyparliamentbecauseof politicalcorruption.34 Furtherstill,reportsof theCommissionsof InquiryintothePurchaseof JunkHelicopters,ontheUgandaRevenueAuthority,35 thePolice,theGlobalFundandothersremainlargelyshelvedandunimplemented.
Itisalsoonrecordthatonseveraloccasions,thePresidenthashimself accusedtheIGGof frustratingnationaldevelopmentbypreventingvariousprojectsfromtakingplace.36Forexample,in2004,PresidentMusevenitoldoff theformerIGG,JothamTumwesigye,tostopinterferingwiththeworkof othergovernmentofficials,37whentheformerorderedthearrestof LucienTibaruha,thenAg.SolicitorGeneral,becausethelatterhadsanctionedthepaymentof thirteenbillionUgandashillingstooneJamesMusinguziGarugaincompensationforhisfarmwhichhadbeenallocatedtosettlersbygovernment.38Ontheotherhand,he(thePresident)applaudstheworkof thecurrentIGGpromptingonetowonderwhetheritisamerefaçadeof awellorchestratedeffortbytheStatetofrustrate39theworkof theInspectorateof Government40 andtolimititsjurisdiction.41
Againsttheabovebackground,thispaperaddressesthefollowingissues:(i) WhyispoliticalcorruptionsoprevalentinUganda?
(ii) Is the Inspectorate of Government promoting or frustrating thework of governmentinitsbidtodeliverservicestothepeopleof Uganda?
(iii) IstheInspectoratebeingfrustratedbythegovernmentinitsfightagainstpoliticalcorruption?,and
(iv) HowcantheInspectorateof Governmentbesupportedtoworkmoreeffectivelyinitsfightagainstpoliticalcorruption?
1.1 WOrKing deFinitiOns
1.1.1 The Phenomenon of Corruption
34AsnotedbyformerMinisterofEthicsandIntegrity,Dr.MiriaMatembe,whilstdebatingattheK-FM(93.3FM)RadiotalkShowonthe14thofJanuary2008at7pm.
35ThisReportwaslaterstruckoffthepublicrecordsoftheRepublicofUgandaaftertherulingofJusticeJ.B.KatutsiinAnneBrittAslundV.AttorneyGeneral.MiscellaneousApplicationNo.441of2004
36See‘‘GovernmentFrustratingMe–IGG’’TheNewVision;24thMarch,2004;seealsoAngeloIzama‘‘SailingWithoutBallastOnIGGShip’’TheDailyMonitor;27thNovember2003.
37SeeGraceMatsiko,‘MusevenitoIGG:DonotinterfereIGG,TheNewVision;3rdJune2004.Availableathttp://www.mail-archive.com/[email protected]/msg14102.html.
38SeeSsemujjuIbrahimNganda,‘WhyMuseveni’sGettingToughonCorruption’TheWeeklyObserver;21stJune2007.Availableathttp://www.ugandaobserver.com/new/archives/2007arch/news/jun/news200706211.php.
39SeeGraceMatsiko,‘Iwon’tresign,IGGreacts’TheDailyMonitor;10thJune2004.Availableathttp://www.monitor.co.ug/news/news06101.php.
40SeeJudeEtyang‘HighCourtBlocksIGGOutOfMaj.KakoozaMutaleAppealNewVisionSaturday,6thMarch,2004.SeealsoSolomonMuyita:‘‘CourtHaltsBakoko,MpuumaArrestWarrants’TheDailyMonitoravailableathttp://www.monitor.co.ug/news/news03054.php.
41Between 2003 and 2005, the President sought to reduce the powers of the IGG through constitutionalamendments.
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Broadlyspeaking,corruptioncanbeclassifiedintofivecategories:politicalcorruption,administrative corruption, grand corruption, petty corruption, and patronage/paternalism.42 Theterm‘corruption’however, lacksuniversaldefinitionandindeeditsdefinitiondiffersfromonejurisdictiontothenext43 .Theword‘corruption’comesfrom theLatinverb corruptusmeaning tobreak. It literallymeansabrokenobject.Klitgaardattemptstodefinecorruptionbystatingthat‘(acorruptofficial)deviatesfromtheformaldutiesof apublicrolebecauseof privategains;orviolatesrulesagainsttheexerciseof certainprivate–regardingbehavior.44 Thishoweverislimitedtoonlypublicofficials,whichunfortunatelyisjustthetipof theiceberg.Corruptionhasalwaysbeeninexistence,inoneformoranother.Asfarbackasthefourthcentury,B.C.E.,Kautiliya,aSanskritscholar,wrote,
Just as it is not possible not to taste honey (or poison) placed on the surface of the tongue, even so it is not possible for one dealing with the money of the king not to taste the money in however small a quantity. Just as fish moving inside water cannot be known when drinking water, even so officers appointed for carrying out works cannot be known when appropriating money 45
Kautiliyagoesaheadtopointoutthedifferentwaysinwhichemployeescanbeinvolvedincorruptionandprescribesthemodusoperanditobeadoptedbythekingtodealwithcorruptionandmakeappointments.46ThetermCorruptionisthususedasageneralconceptdescribinganyorganized,interdependentsysteminwhichpartof thesystemiseithernotperformingdutiesitwasoriginallyintendedto,orperformingtheminanimproperway,tothedetrimentof thesystem’soriginalpurpose.47Klitgaardinfactassertstheformulathatcorruption = monopoly + discretion-accountability.Itshouldbeemphasizedthatcorruptionhappensinboththepublicandprivatesectors.
1.1.2 Corruption in Uganda
There isnospecific textbook or legaldefinitionof corruption inUganda.However,practicesthataredeemedbythelawascorruptunderthePreventionof CorruptionAct,48andunderthePenalCodeAct49includeactssuchasbriberyandextortion,themismanagement of public funds, theft by public servant, neglect of duty, causingfinanciallosstotheGovernment,makingfalseclaims,embezzlement,andabuseof office.
TheInspectorateof GovernmentAct2002classifiescorruptionasan“…abuseof publicofficeforprivategainandincludesbutisnotlimitedtoembezzlement,bribery,nepotism,influencepeddling,theftof publicfundsorassets,fraud,forgery,causingfinancialorpropertyloss,andfalseaccountinginpublicaffairs.”50 42Id.43For example, the World Bank has simply defined Corruption as the abuse of public power for private gain.
SeealsoTanzi1998at564.44SeeKlitgaard1988at23quotedinOmar2001at44.45Kangle,1972.Seealsohttp://www.7.%20Day%203%20session%202%20Purohit.pdf.46Id.47Seehttp://en.wikipedia.org/wiki/CorruptionLastaccessedonJuly28,2007.48Cap.121,LawsofUganda,2000.49Cap.120,LawsofUganda,2000.50Seehttp://www.u4.no/document/showdoc.cfm?id=94Accessedon28thJune2007.
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Ontheotherhand,Section2of thePreventionof CorruptionActCap.121statesthat,Any person who shall, by himself or herself or by or in conjunction with any other person-
(a) corruptly solicit or receive or agree to receive for himself or herself or for any other person; or(b) corruptly give, promise or offer to any person whether for the benefit of that person or of another person, any gratification as an inducement to, or reward, or otherwise on account of any member, officer or servant of a public body doing or forbearing to do anything in respect of any matter or transaction, actual or proposed, in which that public body is concerned, commits an offence.
TheAct51alsoprescribespenaltiesforoffenceslikedealingwithcorrupttransactionswithagents,52corruptlywithdrawingtenders,53briberyof membersof publicbodies,54 andothers.55
Conceptually,corruptionisaformof behaviour,whichdepartsfromacceptableethics,morality,tradition,law,andcivicvalue.Inthewordsof ZieGariyo:
Corruption is not unique to Uganda. Indeed, it is now recognised as a serious and pervasive international problem with diverse political, economic, and social implications. Corruption affects small as well as large business. It affects the rich as well as the poor. It affects small poor countries as well as rich countries. However, for the big business and rich countries, the effect could be in gains to their economic well-being. For the poor people and poor countries, the effect is adversely negative leading to economic stagnation, political instability, increased social inequality, and marginalisation. Corruption affects economic growth as it distorts the costs of business transaction thus making lessening profits and making their services very expensive to the detriment of economic development in poor countries.56
Thefactthatcorruptionhampersdevelopmentiswellknown.TheWorldBankestimatesthat thecountry loses about$300m (Shs.510billion) annuallydue tocorruption.57
51PreventionofCorruptionActCap121.52Section3Cap121,LawsofUganda.53Section4Cap121,LawsofUganda.54Section5Cap121,LawsofUganda.55Sections9and10Cap121,LawsofUganda.56Zie Gariyo, 2001 available at http://www.udn.or.ug or http://www.jubileeresearch.org/jmi/jmi-corruption/
civil_society_corruption_Uganda.htmlastaccessedon24thJune2007.57NsabaButuro&SimonMusasizi,‘Embezzledmoneymorethantotalaid,saysNsabaButuro’TheWeekly
Observer; 14th February 2008.Available at http://www.ugandaobserver.com/new/features/interview/int200802142.php.
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However,thefactthatcorruptionalwaystakestwoactors,isoftenoverlooked.58AsKlitgaardputsit,‘‘…corruptionisacrimeof calculation,notpassion’’.59Insomecases,corruptionhasbeenlookedatasstrictlyapoliticalissue,60andsomeinstitutionsliketheWorldBankhaveonlyfoughtcorruptiononlyapoliticalwaywhichhasunfortunatelybeensuccessful.61 Therefore,by refusing toapproachcorruption inamultifacetedway,Thomasnotesthat,“…theBank(just)lendstocorruptgovernmentstohelpthemcontroltheirowncorruption.”62Mwendaagreeswhenhestatesthatmany(corrupt)regimesontheAfricancontinenthavebeensavedfromcollapsebyforeignaid. 63
It isclearfromtheaforementionedprovisionsthatcorruptioninUgandaisgivenanarrowinterpretationbecausetherearemanyincidencesof corruptionforexampleinelections,privatebusinesses,andothersituationsthatdonotgenerallyapplytopublicofficials.
58Ifcorruptionindicesweretoincludetheaidingandabettingofcorruptionandtaxevasion,the‘geographyofcorruption’wouldlookratherdifferentandCountriescurrentlydesignatedasbeingamongsttheleastcorrupt,suchasSingapore(nowNo.5),Switzerland(7),UK(11),Luxembourg(13),HongKong(15),Germany(16),USA (17), Belgium and Ireland (19) would slip some way down the list. For example, Africa Confidential editor-in-chief,PatrickSmith,estimatesillicitsalesofsmallarmstodevelopingcountriestobenolessthan$1b,andthoseofconventionalweaponsasmuchas$10b.Nigeriaislosingatleast100,000barrelsofcrudeoil per day from illegal and secret shipments. The shipping companies and commercial firms are located in Amsterdam(Netherlands),Zug(Switzerland).Fordetails,see,TheOtherSideofCorruption:ThirdWorldNetwork,TheNewVision;Saturday,17thFebruary2007.Availableathttp://www.sundayvision.co.ug/detail.php?mainNewsCategoryId=7&newsCategoryId=134&newsId=549629.
59Klitgaard,op.cit,at46quotedinOmarAzfar2001at44.60 Wolfensohn, ‘Remarks at a global forum on fighting corruption’, World Bank 24thFebruary1999,available
athttp://go.worldbank.org/FQMIZVENCo.Lastaccessed24thJune2007.61Thomas2007at742.62Id.63Mwenda2006at3.
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ii. ratiOnaLe FOr tHe CreatiOn OF tHe insPeCtOrate OF gOVernMent
2.1.0 Historical Context
Ugandahasnothadagoodhistoryof adherencetothepreceptsof theruleof lawandhumanrights.Indeed,fouryearsafterindependencein1966,thecountryexperiencedthefirstof manycoups d’etatwhichwouldthenbecomeanintegralpartof thepoliticallandscapeof thecountryuntil1986.64Asstatedearlier,theseoccurrencesneedtobeunderstoodinlightof Uganda’shistoryof colonialrule,ethnicandreligiousdiversity,difference in levels of development,massive poverty, foreign interests, the lackof capableleaders,andpoliticalunderdevelopment.65Corruptionbecameendemicbecauseof manyyearsof politicalturmoilandacollapsedeconomy,renderingthesalariesof publicservantsnearlyworthless.66
The Inspectorate of Governmentwas therefore a reform initiated by theNRMGovernmentpriortothepromulgationof the1995Constitutioninabidtorestorerespectfortheruleof lawandgoodgovernance.67Atthetimeitwasestablishedin1986,68 the Inspectoratewas referred toas theOfficeof theInspectorGeneralof Government (OIGG)69with the general dutyof protecting andpromotinghumanrightsandtheruleof lawinUgandaaswellaseliminatingandfosteringtheeliminationof corruption and abuse of public offices.70 However, the responsibility for thepromotion andprotectionof human rightswas transferred to theUgandaHumanRightsCommission(UHRC)andtheInspectorGeneralof Government,nowrenamedInspectorateof Government(IG),wasgivenwiderpowersof investigation,arrestandprosecution,plustheadditionalresponsibilityof enforcingtheLeadershipCodeof Conduct.71Unfortunately,by1994,justasitistoday,theviceof corruptionwasstillpervasive,thusnecessitatingarethinkingof themandateof theinspectoratetoaddresstheseloopholes.72
2.2 Original Mandate of the inspectorate of government
The Inspectorate is an independent institution charged with a three-pronged
64ForfurtherreadingonthehistoryofUganda,seeKivejinjaKirunda1995;Karugire1988,OnyangoOdongo1993,ThompsonGardner2003.
65SeeMakubuya-KhidduE.,TheRuleof lawandhumanrights inUganda: themissing link inHansen&Twaddle,1991at217.
66Id.67InterviewwithMr.JothamTumwesigyecarriedoutonthe29thofAugust2007.TheideaofanInspectorate
of Government was an idea that was first started in Sweden and other Scandinavian countries before it was spreadtotherestoftheworld
68EstablishedbyInspectorGeneralofGovernmentAct1987StatuteNo.2of1988.69SeeWattAlanDoig,David&WilliamsRobert2005at73.70Id.,at73.71SeegenerallyRaphaelBaku,“TheIGGhaspowertoinvestigateaminister”TheNewVisionWednesday,
30thJuly2008availableathttp://www.newvision.co.ug/D/8/459/641914.SeealsoPeterMulira,“TheIGGhasnopowertoinvestigateaminister”TheNewVision;24thJuly2008.Availableathttp://www.newvision.co.ug/D/8/20/640613.
72Thishuman rightsmandatewas later takenoverby theUgandaHumanRightsCommission.SeeOloka-Onyango,1993.SeealsoAmnestyInternational1989at22.
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responsibilityof firstly,eliminatingcorruption,andtheabuseof office.73AccordingtoJothamTumwesigye,74formerIGG,thisoffice,whichreportstoParliamentbi-annually,75 alsohasthefunctionof promotingandensuringstrictadherencetotheruleof lawandprinciplesof naturaljusticeinadministration.ItisalsothenationalOmbudsmanof Ugandaandtheenforcerof theLeadershipCode.76
TheInspectorateof Governmentisnowmandatedbythe1995ConstitutionandtheInspectorateof GovernmentAct2002tointer aliafightcorruption.PrincipleXXVIof theNationalObjectivesandDirectivePrinciplesof StatePolicystatesthat:“…allpublicofficesshallbeheldintrustforthepeople,”andthat“…allpersonsplacedinpositionsof leadershipandresponsibilityshall,intheirwork,beanswerabletothepeople.”ThePrinciplesfurtherstatethat“…alllawfulmeasuresshallbetakentoexpose,combat,and eradicate corruption and abuseof powerby thoseholdingpolitical andotherpublicoffices.”TheInspectorateof GovernmentwasaccordinglyestablishedwithintheConstitutiontomeettheseobjectiveswithamandate“…toeliminateandfostertheeliminationof corruption,abuseof authorityandof office”and“topromotefair,efficientandgoodgovernanceinpublicoffice.”
Thefunctionsof theInspectorateof GovernmentareprescribedbyParliament.77Theserangefromthepromotionof theruleof lawtoinvestigationsontheconductof publicofficers in theexecutionof theirduties.Asnotedearlier, theInspector-Generalof GovernmentStatutewasenactedin1987beforethe1995Constitutionwaspassed.Apartfromtheprovisionswhichrelatedtohumanrightsandthatarenolongerapplicable,therestof thestatutoryprovisionstogetherwiththeConstitutionconstitutethelegalbasisfortheoperationof theInspectorate.
ThisActwasthenamendedtobringitintoperfectharmonywiththeConstitution.78 Specifically,topromoteandfosterstrictadherencetotheruleof lawandprinciplesof naturaljustice,eliminateandfostertheeliminationof corruption,abuseof authorityandpublicoffice,promotefair,efficientandgoodgovernanceinpublicoffices,enforcetheleadershipcode,andinvestigateacts,omissions,advice,decisionsorrecommendationsbypublicofficers.79
73InterviewwithMr.JothamTumwesigyecarriedoutonthe29thofAugust2007.74Interviewcarriedoutonthe29thofAugust2007.75SeeArticle227,231(1)oftheConstitutionoftheRepublicofUganda1995andS,28oftheInspectorateof
GovernmentAct2002.76ItshouldbenotedthattheUgandanConstitutionisbasedonthenotionthatthecountry’sfutureprospects
depend,largely,onthequalityandhonestyofitsleaders.Itcallsforanewcultureofleadershipforbothelectedandappointedleadersinthepublicsectorbasedontheprinciplesofhonesty,impartialitynon-discriminatoryleadership;sensitivitytomarginalizedgroups;developmentleadership;democraticleadership;respectfortheruleoflaw;a“senseofshame”;and,transparencyandaccountability.
77SeeArticle225ofthe1995ConstitutionandSection7oftheInspectorateofGovernmentAct5of2002.78TheInspectorateofGovernmentAct5of2002.79Section7oftheIGGInspectorateofGovernmentAct5of2002.
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2.3 Current Mandate, Jurisdiction and Powers of the inspectorate of government
AccordingtotheDeputyIGG,Mr.RaphaelBaku,80theInspectoratecurrentlyhasthreemainmandatesinpromotingoverallgoodgovernanceinthecountry,asprescribedbylaw;81thatis,EliminatingCorruptionandtheAbuseof Office;TheInspectorateof GovernmentastheNationalOmbudsman;andTheInspectorateof GovernmentastheEnforcerof theLeadershipCode.
Article230of theConstitutiongivestheInspectoratethepower“…toinvestigate,causeinvestigation,arrest,causearrest,prosecuteorcauseprosecutioninrespectof casesinvolvingcorruption,abuseof authorityorof publicoffice.”82ThesameArticlegoesfurthertogivetheInspectoratethepowertoenterandinspectthepremisesorproperty“…of anydepartmentof Government,personoranyauthority”andtoexamineanydocumentsrelatingtothecasebeinginvestigated.83Thisisinadditiontohavingthepowertoorderordirectthatcertainthingsbedoneornotdone84
Thejurisdictionof theInspectorateof Governmentcoversofficersorleaderswhetheremployedinpublicserviceornot,andalsosuchinstitutions,organisations,orenterprisesasParliamentmayprescribebylaw.”85Thiscoversofficersandleadersservinginagovernmentdepartmentundertakingorservice,astatutorycorporationorauthority,theCabinet,Parliament,acourtof law,thePoliceForce,theUPDF86andtheLocalDefenceForce.87Ithasalsobeenproposedtoextendthejurisdictionof theInspectoratetocoverallpublicservants.88
Inordertocarryoutitsfunctions,theInspectorateisgivenanindependentbudget89 inordertoprotectitfromfundingfluctuationscreatedbygovernment.
80Interviewcarriedoutonthe28thofAugust2007.81SeeArt230,225,and234ofthe1995Constitution.82SeealsocommentsbyMs.ChristineMugerwa,HeadoftheCommunicationDivisionoftheIGG,speakinglive
onWBSTVshow‘‘IssuesatHand’’programhostedbyMr.PeterKibaazoonthe18thofSeptember2007.83 The Inspectorate has indeed made headway and used its powers to investigate, arrest, and prosecute officials
accused of corruption and the abuse of office. See IGG “Case Summaries” 2007 available at http://www.igg.go.ug/cases.htm.
84SeeArticle230(2),whichstates:“TheIGGmay,duringthecourseofhisorherdutiesorasaconsequenceof his or her findings, make such orders and give such directions as are necessary and appropriate in the circumstances.”
85SeeArticle226.86Forexample,theformerarmyCommanderMaj.Gen.JamesKaziniwasaskedthethenethicsminister,Miria
Matembe,andtheformerIGG,JothamTumwesigye,tocomplywiththeLeadershipCodeanddeclare200bagsofcementandacowthattheKasesebusinesscommunityhaddonatedtohimasanappreciationforhelpingridthedistrictofrebels.SeeAnneMugisa&CharlesAriko,‘CourtMartialJailsKaziniFor3Years’,SeealsoAlfredWasike&HenryMukasa,‘WhoisMajorGeneralJamesKazini?availableathttp://www.thepromota.co.uk/index.php?option=com_content&task=view&id=640&Itemid=41.
87SeeSection9oftheInspectorateofGovernmentAct.88YasiinMugerwa,‘Allpublicservantstodeclaretheirwealth’,TheDailyMonitor;http://www.monitor.co.ug/
artman/publish/news/All_public_servants_to_declare_their_wealth_71767.shtml.89Article229oftheConstitution,1995.
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However,theInspectorate’spowersarelimited.It isforbiddenfromquestioningorreviewingthedecisionof anycourtof lawortribunal,anycivilmatterwhichisbeforecourtatthecommencementof theInspectorate’sinvestigations.90Itisfurtherforbiddenfromquestioninganymatterrelatingtotheexerciseof theprerogativeof mercyoranymattertherevieworinvestigationof whichhasbeencertifiedbythePresidentaslikelytobeprejudicial tothesecurity,defenceor internationalrelationsof Uganda.TheInspectorate isalsoforbiddenfromquestioninganymatterwhichmay involvethedisclosureof proceedingsanddeliberationsof theCabinetrelatingtomattersof asecretorconfidentialnaturethatwouldbeinjurioustothepublicinterest.91Thisstudyismainly concernedwith thefirstmandate of the Inspectorate; that is eliminatingCorruptionandtheAbuseof Office.
90SeeSection19(1)(a)(e)oftheIGGAct.91Id.
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iii. anaLYsing tHe rOLe OF tHe insPeCtOrate OF gOVernMent
3.1 Political Corruption Defined
Thephenomenonof political corruption isdifficult todefine.The yardsticksusedindifferentjurisdictionsarenotthesame.92However,politicalcorruptionhasbeendefinedasthatwhichinhibitsapoliticalsystem,orinstitutioninwhichpublicofficialsseek illegitimatepersonalgain throughactions suchasbribery, campaignfinancing,extortion,cronyism,nepotism,patronage,graft,andembezzlement.93Itisthereforeaseriousthreattodemocraticvaluessuchasaccountabilitytocitizens.Italsoposesaseriousthreattotheeconomicinstitutionsthatsafeguarddemocracyanddevelopment.94 JamesWolfensohnidentifiedthissituationwhenhestated;“I was then told that there was one word I could not use, which was the ‘C’ word, the ‘C’ word being ‘corruption’. Corruption you see, was identified with politics, and if I got into that, I would have a terrible time with my Board’’95ThisstatementwasindeedtruebecauseMr.Wofensohnlosthisjobafteritwasdiscoveredthathehadinfluencedthepreferentialtreatmentof hisgirlfriendattheworkplace.
Socomplex ispoliticalcorruptionthat there isaviewthatcertainpolitical fundingpractices96thatarelegalinoneplacemaybeillegalinanother.97Indeedsomehavearguedthatpoorcountrieshaveapropensitytowardscorruptionduetoculturalandhistoricalreasons.98Insomecountries,governmentofficialshavebroadorill-definedpowers,andthelinebetweenwhatislegalandillegalcanbedifficulttodraw.99ThisisconfirmedbyLordYoung,theformerSecretaryof StateforTradeandIndustryof theUnitedKingdomwhenhestated;
Now when you are talking about kickbacks, you are talking about something that is illegal in this country and that, of course, you would not dream of doing…but there are parts of the world I have been to where we all know it happens. And if you want to be in business, you have to do-not something that is morally wrong, because in some parts of the world…that is not immoral or corrupt. It…would be totally wrong in our environment but was not wrong in their environment; and what we must be careful of is not to insist that our practices are followed everywhere in the world.…100
However,inthisageof globalisation,itwouldbeunfortunatetoinsistonclassifyingcorruptionusingageographicalanalysis.101 Inanycase,suchananalysisisquestionable
92SeeOmar2001at44.93Id.94SeeMwangi2008at267.95Wolfensohn,1999.Availableathttp://go.worldbank.org/FQMIZVENCo.96ForexampleinApril2008,thegovernmentagaingaveNRMMPsShs500millionfor“consultations”overthe
Land(Amendment)Bill2007.SeeSsemujjuIbrahimNganda,‘BriberytalkleavesParliamentintatters’TheWeeklyObserver;15thMay2008.Availableathttp://www.ugandaobserver.com/new/news/news200805015.php.
97SeegenerallyCaiden&Caiden1977at304.98Id.99InothercountrieslikeFrance,businessmenweregrantedtaxreliefforpayingbribestoAfricanbureaucrats.100PadidehAla’I2000at930.101Id.,at877.
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becausethereareaspectsof behaviour,whichcanbeusedasbenchmarksindecidingwhetheranact,omission,behaviour,orhabit,amountstocorruptionornotregardlessof thegeographicaldimension.102 Somepeopleclaimthatcertaingovernmentpracticessuchaspatronage,while legal,mightbe suspect.103 Thisdefinition sets averyhighstandardforpoliticalproprietyandmanyhavequestionedit.104 Therearealsosituationsof conflict-of-interestwherebypublicofficeisusedforpersonalgain.105 Thisisanethicalissuedealingwiththepremisethatpowercorruptsandabsolutepowercorruptsabsolutely.106 Corruption, therefore, is aword used for all such commissions andomissionsthatareeitherillegalorunethical.107Sincepowercorrupts,thechallengeistoensureaccountabilityatalllevelsof governmentandtocreatevirtuousandethicalcitizens.108Clearlyallformsof governmentaresusceptibletopoliticalcorruption.Formsof politicalcorruptionvarybutincludebribery,extortion,cronyism,nepotism,patronage,graft,andembezzlement.109Whilecorruptionmayfacilitatecriminalenterprisesuchasdrugtrafficking,moneylaundering,andtrafficking,itisnotrestrictedtotheseactivitiesof organizedcrime.Insomenations,corruptionissocommonthatitisexpectedwheneverordinarybusinessesorcitizensinteractwithgovernmentofficials.Argumentshavebeenmade that corruption is amatterof “culture” indevelopingcountries, and that itwould be culturallywrong forEuropeans to “impose” theiranti-corruptionstandardsonthedevelopingworld.However,somehavearguedthatbrandingcorruptionasculturalinthedevelopingworldisconfusingandmisleadingsinceitassumesallformsof hospitalityandgift-givingareaformof corruption.110
102SeeforexamplethecaseofUgandaV.EmmaKatoinwhichthemainwitnessforthestate,MajorGeneralCaleb Akandwanaho a.k.a Salim Saleh testified that the money he received form the defendant was considered asacommissionandnotabribe.
103Forexample,somepeoplehavearguedthatwhereasHon.AmamaMbabazi,theMinisterforSecurityandSecretaryGeneraloftheNRMpartysaysthathesoldhislandtotheNationalSocialSecurityFundaftertheFundmanagersapproachedhimthroughhisdonee,oneAmosNzeyi,thefactthatnoprocurementprocedureswerefollowedandyetthelandwassoldatapriceoverandabovethatwhichwassetbythreeindependentvaluers,clearlymakesthetransactionsuspicious.SeeRichardWanambwa&EliasBiryabarema,‘QUERIESASNSSFBUYSMBABAZI’SLANDAT11B’TheDailyMonitor,13thAugust2008.Availableathttp://www.monitor.co.ug/artman/publish/news/Queries_as_NSSF_buys_Mbabazi_s_land_at_11b_69776.shtml.
104SeePaulBusharizi,‘NSSF,youaredamnedifyoudoordon’t’TheNewVisionFriday,22ndAugust2008.Available at http://www.newvision.co.ug/D/8/220/645856; Moses Byaruhanga, ‘NSSF got fair deal intheTemangalo land’The NewVision; Monday, 1st September 2008.Available at http://www.newvision.co.ug/D/8/459/647457. Political corruption has been defined as the misuse by government officials of their governmental powers for illegitimate private gain. Misuseof government power for other purposes, likerepressionofpoliticalopponentsandgeneralpolicebrutality,isnotconsideredpoliticalcorruption.Anillegalactbyprivatepersonsorcorporationsnotdirectlyinvolvedwiththegovernmentisnotconsideredpoliticalcorruptioneither.Seealsohttp://www.answers.com/topic/political-corruptionlastaccessed24thJune2007.
105SeeKaroroOkurut,‘Guiltyornot,Mbabazihasarighttobeheard’TheNewVision;1stSeptember2008.Availableathttp://www.newvision.co.ug/D/8/12/647600;SeealsoAlfredWasike&JudeEtyang,‘Mukulagrilledinnewprobe’TheNewVision;Thursday,22ndJune2006.Availableathttp://protectafrica.wordpress.com/about/ugandas-health-ministrys-woes/.
106Id.107Seehttp://www.answers.com/topic/political-corruptionlastaccessedJune24,2007.108Id.109SeeFinalStatementoftheUgandaInternationalConferenceonEmpoweringCivilSocietyintheFightagainst
Corruption.Availableathttp://www.transparency.org.Accessedon24thJune2007.110Id.
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ThedifficultyindefininganddetectingcorruptionisadmittedbythecurrentIGGinher245-pageReporttoParliamentdatedApril52007.Shestatesthat,“although there was no evidence corroborating the allegations of bribery against the minister, there was gross interference, manipulation and influence peddling during the procurement process by the minister.”111 AsstatedbytheMinisterof Ethicsandintegrity,“It’s a complex situation which involves networks which can’t be easily identified...and that explains the difficulty we have.”112
This statement shows the difficulty of defining, identifying and proving politicalcorruption.
3.1.1 genealogy of the Fight against Political Corruption
TherecordforthefightagainstpoliticalcorruptioninUgandaisnotveryimpressive.Priortothesettingupof theInspectorateof Government,investigatingcorruptionwasmainlyhandledbythePoliceandtheDirectorateof PublicProsecutions(DPP).113
TheInspectorateonlyhandledcorruptionasanadministrativematterratherthanasacrime,becausethestaff of theInspectoratewerenottrainedtohandlethesekindsof investigations.114 Thiswasreflectedinthefactthatveryfewcorruptioncaseswerefiledinthecourtsandfewerstillwereeverheardordisposedof.115Eventhosecasesthatwere taken to the courtswere not successfully handledbecause thewitnessesnormally turnedhostileafterbeingeithercompromisedor intimidated,whileotherwitnesseswouldloseinterestwhencasesdraggedonforyears.116Thehighprofilecasesinvolvingpoliticalcorruptionhavebeenmainlyhandledbycommissionsof inquirywhoserecommendationsremainlargelyimplemented.(See Table One 1).
111SeeJudeLuggya,YasiinMugerwa&RisdelKasasira:,‘Uganda:IGGPins2Ministers,’TheDailyMonitor;availableathttp://allafrica.com/stories/200706070018.htmlaccessedon24thJune2007.Seealsohttp//:www.igg.go.ugdocspopulation_Dbank.doc.
112SeeNsabaButuro.,Supra.SeealsoBySsemujjuIbrahimNganda,‘BriberytalkleavesParliamentintatters’TheWeeklyObserver;15thMay2008.Availableathttp://www.ugandaobserver.com/new/news/news200805015.php.
113BalabaAsuman,‘NationMuzzledinCorruption,WhatCanBeDone?’availableathttp://www.citizenxpress.com/blog/view/2568/asat7thJune2007.
114Interviewedonthe29thAugust2007.115ThisviewissupportedbytheformerMinisterofEthicsandIntegrity,Dr.MiriaMatembe,whilstdebatingat
theK-FM(93.3FM)RadiotalkShowonthe14thJanuary2008,at7pm.116Interviewwithaformerprosecutorwhospokeonconditionofanonymitycarriedoutonthe27thAugust
2007.
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inQuirY date resuLt Prosecution arrests Convictions Police117 May2000 Nil Nil Nil
JunkHelicopter118 August2001 EmmaKato 1 Nil
URA119 December Report struckoff public recordsvide Misc. Appl. No. 441 of 2004 Annebrit Aslund V. The Attorney General of Uganda howeverthechairpersonof theCom-mission,JusticeSebutindestatedthattheinstitutionalrecommendationsarebeingenforced120
taBLe OnetaBLe OF inQuiries intO POLitiCaL COrruPtiOn in uganda
Source: Daniel Ruhweza 2008
117RepublicofUganda(2000),TheReportOfTheJudicialCommissionOfInquiryIntoCorruptionintheUgandaPoliceForce(Chair:JusticeJuliaSebutinde),UPPC,Entebbe.
118RepublicofUganda(2001),TheReportOfTheJudicialCommissionOfInquiryIntothepurchaseofMilitaryHelicopters(Chair:JusticeJuliaSebutinde),UPPC,Entebbe.
119RepublicofUganda(2003),TheReportOfTheJudicialCommissionOfInquiryIntoAllegationsofCorruptionintheUgandaRevenueAuthority(Chair:JusticeJuliaSebutinde),UPPC,Entebbe.
120InterviewcarriedoutinDecember2007whilsttherespondentwasonChristmasbreakfromhercurrentpostingwiththeSpecialCourtforSierraLeone.
121RepublicofUganda(2006),TheReportOfTheJudicialCommissionOfInquiryIntoTheMismanagementOfTheGlobalFund(Chair:JamesOgoola),UPPC,Entebbe.
122TheReportofTheInspectorGeneralofGovernmentIntoTheMismanagementOfTheNationalSocialSecurityFund.
123TheReportOfTheInspectorGeneralofGovernmentIntoTheMismanagementOfTheGlobalAllianceforVaccinesandImmunisationFunds.
124ItalsoagreedthatMuhweziliedtothecommissionthathedidnothaveanyknowledgeofDr.TiberiusMuhebwa,theProjectMonitoringUnit(PMU)co-ordinator.Muhwezionlyconcededhedidaftermuchprobing. Cabinet said Muhwezi used his political influence to meddle in the appointment of Muhebwa and otherstaff,yethehadnoprofessionalcompetenceinoperationalmatters.FordetailsseeCharlesEtukuriandFelixOsike,‘MuhweziliedonGlobalFund–Cabinet’TheSundayVisionNewspaper.SeealsoCharlesEtukuri‘MuhwezitoblameforGlobalFund–Cabinet,TheSundayVisionNewspaper;availableathttp://sundayvision.co.ug/detail.php?mainNewsCategoryId=7&newsCategoryId=132&newsId=534293.
125Seeforexamplehttp//:www.igg.go.ugdocspopulation_Dbank.doclastaccessedon24thJune2007.
GlobalFund121 2006 Nil.However,theDraftCabinetWhitePaperagreedthatMaj.MuhwezibeheldpoliticallyaccountableforthemessintheGF.
NationalSocialSecurity 2007 IG.Ref.TS.35/2003;CRTRef.BU-CO-1222-2006(Ongoing againstOnegi, Mpuuma, Bakoko & IsabiryebutsuspendedbyappealsinHigherCourts)
Fund122
GAVIFund123 2007 OngoingagainstCapt. Mike Mukula, Maj. Gen. Muhwezi, Dr. Alex Kamugisha & Ms. Alice Kaboyobutsuspendedbyappeals inHigherCourts.124
Nil Nil
OnegiObelNil
Mukula,NilMuhwezi,Kamugisha&Kaboyo
Nil NilTheNationalPopulationDatabankandIdentificationSolutionsinvestigation125
2007 Nil.TheIGGfoundthatbetween2004and2005stateministerforregionalco-operation,of influence peddling in the award of theUS$150millioncontract
2003
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126FollowingAnnebritAslundv.TheAttorneyGeneralofUganda,Maj.JimMuhwezialsoseekstoexpungetheGAVIreportfromthepublicrecords.SeeEmmanuelGyezaho&SolomonMuyita&RisdelKasasira,‘Muhwezi in London’The Daily Monitor, 23rd May 2007 available at http://www.monitor.co.ug/news/news05232.php.
127CommentsmadeonNTVProgramme“OntheSpot”2ndAugust2008.128Article234oftheConstitution.129SeeSection10oftheLeadershipCodeActNo.17of2002.130SeePartIIIoftheLeadershipCodeActNo.17of2002.131InspectorateofGovernment:theInspectorateofGovernmentandtheFightagainstCorruptioninUganda,
availableatwww.igg.go.ug/docs/Corruption%20Insert.doc,lastaccessedon28thJune2007.132InterviewwithMr.JothamTumwesigyecarriedoutonthe29thAugust2007.
Most of the recommendations from the aforementioned inquiries remain largelyunimplementedwhilesomewerechallengedinthecourtsof law.126However,theHon.JusticeMrs.JuliaSebutindecommentedthatshewashappythatsomeaction(likethechangeof leadershipinthePolice)hasbeeneffected.127Obviously,thisisfarshortof thevoluminousrecommendationsthatweremadebytheSebutindeandothercommissionsandthereforethereisneedtoanalysetheefficacyof theInspectorateof Governmentasarguablythelastpersonstandinginthefightagainstcorruption.
3.2 ‘Barking Dog’ or ‘Poisonous Snake’? : An analysis of the efficacy of the Inspectorate in the fight against Political Corruption
TowhatextenthastheInspectorGeneralof Governmentbeenabletouseitspowerseffectivelyinthefightagainstpoliticalcorruptionandtherebyfulfiltheconstitutionalmandategivenbytheconstitution?Acontrarylineof inquirywouldbetoinvestigatewhethertheInspectoratehassimplyabuseditspowersandremainedineffective.
3.2.1 Enforcement of The Leadership Code In The Fight Against Political Corruption
TheLeadershipCodewasoneof thelawsusedtodetectandfightpoliticalcorruption.Asitnowstands,theLeadershipCodeActdescribestheexpectedandprohibitedformsof conduct for government leaders.128 TheCode requires leaders tomake annualdisclosuresof theirincome,assets,andliabilities.Thisdisclosuremustnotonlycovertheleaderbutalsohisorher“nominees”(definedasanyonewhocontrolsormanagesbusinessorotheractivitiesof whichtheleaderisprincipalbeneficiary).Activitieswhichareforbiddenincludeaskingoracceptinggiftsorbenefitsinrelationtotheexerciseof official duties andpersonal interests;129 failure to seek prior approval from theLeadershipCodeCommitteetocontractwiththegovernmentorwithcertainkindsof foreignbusinesses;abuseof governmentproperty;andmisuseof officialinformationnotavailabletothepublic.TheCodealsoprohibitsthemisappropriationof publicfunds,130 aswellassettingaminimumstandardof behaviourthecodealsoestablishespenaltiesfortransgressions.131
ThisCodewasoriginallyenactedbytheNationalResistanceCouncilin1993ontheunderstandingthatitwouldbeenforcedbyaLeadershipCodeCommitteeappointedbythePresident.132 However,the1995ConstitutionempoweredtheIGGtoenforce
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theCode.Unfortunately, the levelsof compliancewerevery low133 and it took theinterventionof thethenMinisterforEthicsandIntegrity,Hon.MiriaMatembeandalotof donorpressure,tomakeParliamentstrengthenthelaw.However,theConstitutionalCourtinFox Odoi & another v. A.G,134 effectivelyrevertedthesituationtothepre-1995statuswheretheofficewasamerebarkingdogwithnoteeth.135InessencethePresidentwasnolongerboundtoimplementtherecommendationsof theIGGregardingtheappointmentanddismissalof anofficer.136
Bethatasitmay,theIGGstillhaspowerstoprosecuteorcausetheprosecution137of publicofficialswhoaresuspectedof havingbreachedthelaw.138Weshallnowanalysesomekeycasesinordertoappreciatethecomplexityof theworkof theInspectorateinthefightagainstpoliticalcorruption.
A: Fox Odoi Oywelowo & James Akampumuza v. Attorney General;139
Thepetitionersinthiscasechallengedvarioussectionsof theLeadershipCodeActNo.12of 2002asbeinginconsistentorascontraveningcertainarticlesof theUgandanConstitution,insofarastheydidnotgivethePresidentdiscretioninpunishingcertainofficerswhohadbreached theLeadershipCode. In essence, thePresident couldonly implement the recommendations of the Inspector of Governmentwithoutdiscretion. ThispositionwashoweverreversedbytheConstitutionalCourt. 140 Assuch,therecommendationsof theInspectorof GovernmenttodaynolongerbindthePresident.Heneednotimplementthem.Whereasthisdecisionclearedtheairwithregardtohowcertainpublicofficerslikejudgescouldberemovedfromoffice,it ismycontentionthat itcrippledthefightagainstpoliticalcorruptionas itmadetheInspectoratetoothlesswhenitcametorequiringthePresidenttoimplementtherecommendationsitmade.
Furthermore,itcanalsobearguedthatthePresidentdidnottakekindlytohavinghisdiscretionarypowersstripped.Thisisconfirmedbyastatementmadebythefirst
133See‘MuseveniHailsAnti-CorruptionCrusade’inTheMobiliserVol.1No.5at28.134ConstitutionalCourtPetitionNo.8of2003.135InterviewwithMr.JothamTumwesigyecarriedoutonthe29thofAugust2007.Thisviewissupportedby
theformerMinisterofEthicsandIntegrity,Dr.MiriaMatembe,whilstdebatingattheK-FM(93.3FM)RadiotalkShowonthe14thJanuary2008at7pm.
136OlokaOnyango,2007at46.137SeeUgandav.OnegiObel,LeonardMpuuma,BakokoBakoruZoë&JamesIsabiryeIG.Ref.TS.35/2003;CRT
Ref.BU-CO-1222-2006.138SomecommoncasesrecommendedforprosecutionthatareencounteredbytheInspectorateofGovernmentin
the course of its work include; corruption involving either bribery or extortion, abuse of office, embezzlement, causing financial loss and others which are linked with forgery and /or utterance or use of false academic documentsparticularlyofacademicdocumentsoraccountabilitydocuments.Ifconvictedofacriminaloffence,a public official may suffer imprisonment and may have to pay compensation. According to sections 21 and 35oftheLeadershipCodeAct,wherealeaderacquirespropertythroughbreachoftheCode,forexampleifthes/hefailstodeclarecertainpropertiesormakesafalsedeclaration,theconsequenceofsuchbreachofthe Code is confiscation or forfeiture of the property. See IGG; the Inspectorate of Government and the Fight againstCorruptioninUganda,availableatwww.igg.go.ug/docs/Corruption%20Insert.doclastaccessedon28thJune2007.
139ConstitutionalPetitionNo.8of2003.140Id.
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PetitionerFoxOdoiOywelowo(alsoapresidentiallegalassistant)totheeffectthat,“…theConstitutionalCourtjustaffirmedthatthePresidentisthemostpowerfulmaninthelandandcannottakedirectionsfromanyone.”141 Inessence,thefightagainstcorruptionwasleftinthehandsof oneinstitutionwhoserecommendationswerenolongerbinding.Howfrustrating!
B: Roland Kakooza Mutale v. the Attorney General Application No. 665 of 2003 arising out of HCCA No. 40 of 2003142
KakoozaMutale,aSeniorPresidentialAdvisor,failedtodeclarehiswealthasrequiredby theLeadershipCodeAct,prompting the InspectorGeneralof Government inMay2003torecommendthatthePresidentdoesrelieveMr.Mutaleof hisduties.ThePetitioner’smaingroundwasthattherewasnoprescribedlegalformonwhichtodeclarehiswealth,whicharguablewasameretechnicalitysinceallotherleadershadmanagedtodeclaretheirwealthinvariousforms.143 However,thePresidentsworeanaffidavitinsupportof hisapplication,therebysendingoutthemessagethatthePresidentandhismenwerenotinterestedinthefightagainstpoliticalcorruptionandassuchweremakingitharderfortheInspectorof Governmenttocarryouthisfunctions.ThiswasconfirmedbythePresident’swillingnesstore-instateKakoozaMutaledespitethefactthatthesaidpetitionerhadcontravenedthelaw(asitwasthen).144 If itwerenotso,thenthePresidentdidnothavetobethedeponentnordidhehavetocategoricallystatethathewouldreinstatetheapplicantdespitethefactthattheapplicanthadbreachedthelaw.ThiswasacleardeparturefromthePresident’searliercommitmenttostrictadherencetotheruleof lawandzerotoleranceforcorruption.145
Theaforementionedactionscreatelaxityinthemindsof thosewhoaresupposedtoactagainstcorruptindividuals.AsconfirmedbytheformerIGGJothamTumwesigye“Mostpermanentsecretariesdonotwanttotakeactionagainsttheirinsubordinatestaff.”
146Hefurthernotedthattherewasalackof willpowertodealwithcorruption,adding
141SeeAngeloIzama‘SailingwithoutballastonIGGship,TheDailyMonitor;27thNovember2003.142SeeJudeEtyang,‘HighCourtBlocksIGGOutOfMaj.KakoozaMutaleAppeal’TheNewVision;Saturday,
6thMarch2004:(RulingbyJusticeYorokamuBamwineinMisc.Appl.No.665of2003arisingoutofHCCANo.40of2003).ThiswaslateroverruledbyInspectorGeneralofGovernmentV.KikondaButemaFarmLtd&AttorneyGeneralConstitutionalApplicationNo.13of2006arisingoutofConstitutionalPetitionNo.18of2006;Seealso“PoliticalGrapevine”,TheDailyMonitor,December24-30,2006.Availableathttp://www.monitor.co.ug/sunday/grapevine/grape12241.php.
143SeeArticle126(2)eofthe1995Constitution.144 In an affidavit sworn in support of the petition, the President stated,… (That) if the Court finds that the IGG
made the … recommendation to me on the basis of a flawed procedure and never followed the Leadership Codeandthelawgenerallyinmakinghisrecommendation,IampreparedtoreinstateMajorRolandKakoozaMutale to his office as Presidential advisor. Paragraph 5 of the Affidavit sworn on the 22nd of September 2003 byH.E.thePresidentofUgandainsupportofMajorKakoozaMutale’spetitiontobereinstated.
145Museveni1985,at17.146SeeSimonMugenyi,‘‘GovernmentFrustratingMe–IGG’’NewVisionNewspaper,24thMarch2004.
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Frustrated Or Frustrating
thatfactorssuchastribalismandreligionhinderedthestruggleagainstgraft.147Itisclearthatsuchactionsmaketheworkof theInspectorateverydifficultespeciallywhenofficersarerequiredtocarryouttherecommendationsmadebytheInspectorate.
Whereas Justice Bamwine refused to allow the IGG to be added as a party tothe proceedings in this case on the grounds that it lacked legal personality,148 theConstitutionalCourtthreeyearslater,declaredthattheframersof theconstitutionhadintendedthattheIGGshouldbeclothedwithlegalpersonality.149Suchjudgementsshowanencouragingtrendinpromotingthefightagainstpoliticalcorruptionandarewelcomed.
C: John Ken Lukyamuzi v. the Attorney General of Uganda & Electoral Commission Constitutional Petition No. 19 of 2006
AsintheKakooza Mutaale petition,theIGGorderedtheSpeakerof ParliamenttoremoveLukyamuzifromtheHouseandalsodirectedtheElectoralCommission(EC)todisallowhisnominationtocontestforaseatinthe8thParliamentbecausehefailedtodeclarehiswealth,asrequiredbytheLeadershipCode.Subsequently,LukyamuzifiledapetitionintheConstitutionalCourtseekingadeclarationthathisremovalfromtheHouseandbarringhimfromstandinginthe2006electionswasnullandvoid.HereliedonArticle83(1)(e)of theConstitution,whichstatesthatapersoncanvacatetheHouseif,amongothers,heisfoundguiltybyanappropriatetribunalof violatingtheLeadershipCode.Mr.Lukyamuziarguedthatbecauseatribunalwasnotexistenttohandlethecomplaintagainsthisfailuretodeclarehiswealth,hisremovalfromparliamentwasillegal,aswashisdisqualificationfromnomination.TheAttorneyGeneral—inarareshowof supportfortheIGG’srecommendations—arguedthatuntilParliamentdecidestoconstitutethe “appropriate tribunal”, the powers of such tribunal are exercisedby the IGG.CourtruledthatsincetheIGGhadthepowerstoordertheremovalof aMemberof Parliamentwhowasfoundguiltyof breachof theLeadershipCodeof Conduct,allthattheSpeakerof ParliamentandtheChairpersonof theElectoralCommissionhadtodowascomplywiththeordersof theIGG150.
WhereasthiswasalaudablemovebytheCourt,itshouldbenotedthattheIGGwas
147ForexampletheNSSFBoardchairmanMr.Gamuwa,whileappearingbeforetheparliamentaryCommitteeofCommissionsandStateEnterprises,saidthattheFundboarddealswithanyoneirrespectiveofreligion,tribe, sex or political affiliation but later acknowledged that they were at first uncomfortable to deal with Hon.AmamaMbabaziregardingthesaleofhislandatelevenbillionUgandashillings.SomemembersoftherulingNRMhavealsocriticisedMr.AmamaMbabaziforallegingthattheinvestigationsagainsthimarebecause of his tribe and religion. See comments by Hon. Kahinda Otafiire, Hon. Jim Muhwezi and Hon. Henry Banyenzakiontheprogram“OntheSpot”talkshowonNTVSeptember19,2008.SeealsoEdrisKiggundu,‘MPsgrillNSSFbossesover landdeal’TheWeeklyObserver availableathttp://www.observer.ug/index.php?option=com_content&task=view&id=866&Itemid=59lastaccessedontheSaturday,23rdAugust2008.
148SeePoliticalGrapevine,TheDailyMonitor;24th–30thDecember2006availableathttp://www.monitor.co.ug/sunday/grapevine/grape12241.phplastaccessedonAugust29th2007.
149InspectorGeneralofGovernmentV.KikondaButemaFarmLtd&AttorneyGeneralConstitutionalApplicationNo. 13 of 2006 arising out of Constitutional Petition No. 18 of 2006 re-affirmed legal personality on the IGG.
150HillaryNsambu;“AfterLukyamuzicaseMPsmustfeartheIGG”TheNewVision,Wednesday,28thMarch2007alsoavailableathttp://www.newvision.co.ug/D/8/459/556537.
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never the intended “appropriate tribunal” for the enforcement of theLeadershipCodeunderArticle235A.151ThisisconfirmedbythecurrentIGGwhensheadmitsthatthereisaconfiscationprovisionintheLeadershipCodeActthatshallbeusedeffectively‘whenwehavethetribunal.’152FormerIGGTumwesigyefurtherrevealsthattheTribunalwassupposedtoimplementthefindingsof theIGG.153SincetheTribunalhadnotbeenestablished,thenLukyamuzihadbeenimproperlydismissed.154 Inhisview,Parliamentdidnotappreciatethepurposeof Article235Awhenitpassedtheamendment.155Tumwesigyealsostatedthatthepurposeof theArticlewastocheckonthepowersof theIGGbutthiswasunfortunatelynotexplicitlystatedinlightof Article83(1)(e).156Indeedif theinterpretationremainsasittoday,thereisnowaywecanguardagainsttheexcessesof theIGG,whichlacunacaneasilybeabusedasweshallseeinthesubsequentchapters.
Ontheotherhandhowever,thisjudgmentsignificantlydepartsfromtheFox OdoiandKakooza Mutaalepetitionsandthuscontributestothecreationof aconducivesituationfortheworkof theIGG.Assuch,Membersof Parliamentmusttakeheedof theIGGmorethananyotherpublicofficerbecausetheSpeakerandtheElectoralCommissionChairpersonareboundbyherorderstosackanyMPandtoblockhimorherfromcontestingforaparliamentaryseatforthenextfiveyears.157Whatthisdemonstratesisthatitbecomeseasytoinstildisciplineandrespectfortheruleof lawwhentheIGG’srecommendationsarerespected.AlthoughMr.Lukyamuzihaslodgedanappealagainstthisruling,theimpactof thelawasitstandstodayisthatitishighlyunlikelythataMemberof Parliamentwouldrefuseordelaytodeclarehis/her,assetsbecausetheynowknowtheconsequences.158
Inconclusion,therefore,anenablinglegalenvironmentmakestheworkoftheInspectorateeasier.TheaforementionedcasesdemonstratethattheInspectoratehasbeenabletoregainitsbalanceinspiteofthefrustratingcircumstancesunderwhichitoperates.Thisthereforemeansthatthefightagainstpoliticalcorruptionisnotyetlost.159
3.3 Major Challenges to the inspectorate of government in dealing with Political Corruption
151Id.152SeeFelixOsike,‘IExpectaConvictionInMuhwezi,MukulaCase-IGGMwondha’,TheSundayVision,
Saturday,2ndJune2007availableathttp://www.sundayvision.co.ug/detail.php?mainNewsCategoryId=7&newsCategoryId=130&newsId=568497.
153InterviewwithJothamTumwesigyeconductedonthe23rdofAugust2007.154Id.Thisissobecauseuponapplyingtheliteralruleofinterpretation,onecaninferthattheframerswerenot
either properly advised as to the rationale of the article or its significance.155Id.156See‘IGGtotryerrantleaders’availableathttp://www.mtti.go.ug/docs/July13.pdf.157Seealsohttp://www.newvision.co.ug/D/8/459/556537lastaccessedonAugust29th2007.158SeeFelixOsike,‘IExpectaConvictionInMuhwezi,MukulaCase-IGGMwondha’,TheSundayVision,
Saturday,2ndJune,2007availableathttp://www.sundayvision.co.ug/detail.php?mainNewsCategoryId=7&newsCategoryId=130&newsId=568497.
159Forexample,355billionUgandaShillingshasbeensavedoverthelastthreeyears.SeeRisdelKasasiraandMercyNalugo, ‘MwondhaCancels shs335billion tender;TheDailyMonitor,Wednesday15thOctober,2007availableathttp://www.monitor.co.ug/artman/publish/news/mwondha_cancels_shs333b_tenders_73/55.shtml.
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We shall now analyse someof the challenges that have crippled thework of theInspectorate in itsfightagainstpoliticalcorruption. Someof thecaseshandledbytheInspectorateareanalysedinthefollowingsectionof thepaper,withtheviewof identifyingthebottlenecksthatareencounteredandofferingsomesuggestionsastohowtheycanberesolved.
3.3.1 Lack of Political Will
Oneof themostchallengingaspectsof thefightagainstcorruptionisthelackof politicalwill.160Thisismadeworsebythemixedmessages161fromthoseinauthorityregardingthisfight.162AsstatedbythecurrentIGG,FaithMwondha,thefightisworthlessunlessthereispoliticalleadershipandstrongsupportprovidedbythePresident.163
WhereasthePresidentlosesfewopportunitiestodrivetheanti-corruptionmessagehome, and sometimes removes corrupt politicians from senior positions in thegovernmentthroughaseriesof reshuffles,164thereare,atthesametime,individualsinhighofficewhoarewidelyknownfortheircorruptactivitiesbuttheyremaininpowerforreasonsthatarenotimmediatelyobvious.165Thecontinuedfailuretoremovesuchpeopleunderminespublicconfidenceintheleadership’scommitmenttodealwiththeissueof corruption.166
Thisisfurtheraccentuatedbytheallegationsthattheverypersonwhoissupposedtobeatthehelmof thefightagainstcorruption,isallegedtobeinvolvedinseeminglycorruptpracticeslikeusingGlobalAllianceforVaccineandImmunization(GAVI)to
160YasiinMugerwa,‘MPslaughatMusevenianti-corruptiontalk’DailyMonitorMay12,2008availableat http://www.monitor.co.ug/artman/publish/news/MPs_laugh_at_Museveni_anti-corruption_talk.shtml.
161Forexample,inMay2003Maj.KakoozaMutaalewasrelievedofhisdutiesforfailuretodeclarehiswealthasrequiredbytheLeadershipCodeAct.However,whenMutaalechallengedhissackingincourt,PresidentMuseveni of did swear an affidavit in support of his application. Interestingly, four years later in May 14, 2007 the President again swore an affidavit forming part of the evidence challenging a petition by ex-health Minister JimMuhwezichallengingtheprocedureusedbytheIGGincarryingout investigationsabouthisallegedmismanagementofShs7.9billiondonatedtoUgandabytheGlobalAllianceforVaccinesandImmunisation(GAVI).SolomonMuyita,‘Musevenifacescross-examination’,TheDailyMonitor;23rdMay2007http://www.monitor.co.ug/news/news05233.php.
162InterviewwithformerIGGemployeeonconditionofanonymity.163SeeOfwonoOpondoandWafulaOguttu,“Uganda:WhyHasMuseveniDecidedtoFightCorruptionNow?”
TheNewVision;9thJune2007,availableathttp://allafrica.com/stories/200706111055.html.Lastaccessedon9thJune2007.
164SsemujjuIbrahimNganda,‘Wantedex-ministerBakokospeaksout’WeeklyObserveravailableathttp://www.ugandaobserver.com/new/news/news200707191.phplastaccessedon19thJuly2007.
165TheformerStateMinisterforYouthandChildAffairsFelixOkotOgongo(NRM,Dokolo)isquotedassaying;“The President is not serious…his anti-corruption fight is below the required standard. He is lamenting yet he knows the action to be taken on corrupt ministers and other government officials.” See note 129 supra.
166MrIshaaOtto(UPC,OyamSouth)isquotedassaying;“Thosecorruptministersshouldbeforcedtoretireinpublicinterestandbearrestedimmediately.ButwithoutPresidentMuseveni’swill,corruptionwillcontinueasusual.”
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mobilisepoliticalsupportinthereferendumonpoliticalsystems.167Morefrustratingisthefactthatin2005,membersof parliamentwerefacilitatedwithUgandaShillingsfiveMillion(US$2,800)toenablethemconsulttheirconstituentswithaviewtochangingtheclauseinthe1995ConstitutionwhichlimitedaPresidenttostandforonlytwoterms.168 ThisclausewassubsequentlychangedbyParliament,thusallowingMuseveniunlimitedaccesstoStateHouse.Interestingly,thePresidentisonrecordforcriticisingAfricanleaderswhostayinpowerfortoolong.169This“catonthefence”doublestandardhasclearlyputtheNRMgovernmentindisreputeandgreatlyunderminedthefightagainstpoliticalcorruption.170
Such double standards are also alluded to by the Spokesman for the Forum forDemocraticChange,themainoppositionpoliticalpartyinUganda,Mr.WafulaOgutturevealedastatementthatthePresidentmadetohimtowit;
…You behave like a padiri (priest) and see those of us in government as sharks… don’t you think that the corruption today is better than in the past since the stolen money is now being used to put up buildings in Uganda instead of taking it outside the country?171
This statement,whichhas remained undisputed to date, clearly puts thePresidentindisrepute.Intheabsenceof contraryview,itdemonstratesthatthereisnoclearleadershipinthefightagainstcorruption.172
Inanothersituation,theMinisterof StateforRegionalIntegration,MrIsaacMusumbawhilstmarkingtheDanishConstitutionDayinKampalain2007wasreportedashavingstatedthat,“Ourleadershipisdeterminedtointensifyeffortsanddemonstratepoliticalwillinthefightagainstcorruption.”173However,theHon.JusticeFaithMwondhahasaccusedMr.Musumba,of influencepeddlingintheawardof the$150millionnationalidentitycardcontracttoFaceTechnologiesof SouthAfrica.174Theawardwassuspended167SeeLomindaAfedraru,‘Uganda:ImmunisationCashUsedInCampaign-MuseveniAide’,TheDailyMonitor;
10thMay2007availableathttp://allafrica.com/stories/200705100894.html,SeealsoHillaryNsambu,‘MuhweziBlocksHisArrestOverFunds’,TheNewVision,Tuesday,8thMay,2007availableathttp://www.newvision.co.ug/D/8/12/564037;SeealsoSimonKasyate, ‘HowVaccineBillionsLeftHealthMinistry’,TheDailyMonitor;14thMay2007availableathttp://www.monitor.co.ug/news/news05142.php.
168SeeBiryetega; ‘‘Reporter’sNotebook:Uganda’’availableathttp://www.globalintegrity.org/reports/2006/pdfs/uganda.pdf. See also http://www.globalintegrity.org/reports/2006/uganda/notebook.cfm last accessedJuly19,2007.
169SeeTusasirwe,2003.170SeeEditorial;WhatIsBehindTheGrowingGAVIScandal?TheDalyMonitor;17thMay2007availableat
http://www.monitor.co.ug/oped/oped05171.php.171StatementbyH.E.PresidentMuseveni, toForumforDemocraticChange’sWafulaOguttu1stJune1988
at the President’s Office in Entebbe. See http://allafrica.com/stories/200706111055.html.Lastaccessed19thJuly2007.
172SeeGeraldBareebe,“NSSF:Musevenioutoforder-FDC,”TheDailyMonitor,MondayOctober14th2008availableathttp://www.monitor.co.ug/artman/publish/news/NSSF_Museveni_out_of_order_says_FDC_73074.shfml.
173SeeJudeLuggya,YasiinMugerwa&RisdelKasasira:Uganda:IGGPins2Ministers,TheDailyMonitor;7thJune2007.Availableathttp://allafrica.com/stories/200706070018.html.Lastaccessed7thJune2007.
174TheIGGfoundthatbetween2004and2005MrMusumba“irregularlyinvolvedhimself”intheIDproject“asifhewaspartofaProcuringandDisposalEntity”contrarytothePublicProcurementandDisposalofAssetsAct.SeeReportoftheIGGontheInvestigationontheProcurementoftheVendorfortheNationalPopulationDatabank and Identification Solution August 2006. See http://www.igg.go.ugdocspopulation_Dbank.doclastaccessed7thJune2007.
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buttheonlyactiontakenagainstMr.Musumbawassimplytomovehimtoanotherministry.175Suchinactionfrustratesthefightagainstcorruption.
The above clearly shows that there is a need for a clear and unequivocalmessagefromtheleadershipof thisnationthatthefightagainstcorruptionisapriority.TheGovernmentneedstoshowthatallactionstakenarenotamerefaçadeeitherduetodonorpressureorbecausethegovernmentpreparestohosteventsliketherecentlyconcludedCommonwealthHeadsof GovernmentMeeting(CHOGM).176Thereshouldbeaclearmessagethatleavesusbeyondreasonabledoubtthatthegovernmentindeedhaszerotoleranceforcorruption.177NoexcusesshouldcontinuetobemadeasinthepastwhenthepresidenttoldhisbrotherCalebAkandwanaho(whoadmittedreceivingabribe),touseitforthepeopleinthenorthandthenatthesametimeorderfortheprosecutionof thoseinsimilarcircumstances.178
WhereastheIGGhasbeenseentoscorehighlyof recent,manyscepticsarenotquicktotoasttheGovernmentortostamptheirfeetinapplause.179MosesSerwangaclearlystates that thisfight against corruption is longoverdue and that thePresidenthadhithertodonelittletocrackthewhip.180OtherscepticslikeformerIntegrityMinisterMiriaMatembe, Prof.DanWadadaNabudere,181 and otherswhohave spokenonconditionof anonymity,182havenotedthattherecentarrestsandprosecutionof top-notchpoliticianswasdoneinlightof thefactthatthecountrywasgoingtohosttheCommonwealthHeadsof Governmentmeeting,afactalludedtobythepresident.183
Inspite of the above, the fact that the government has implemented someof therecommendationsmade by the IGGdeserves some applause.184 Recently,Major
175EliasBiryabarema,‘IdScandal:GovtSuedForShs87b’TheDailyMonitor;20thMarch2008.Availableathttp://www.monitor.co.ug/artman/publish/news/id_scandal_govt_sued_for_shs87b.shtml.
176Indeed some people like Hon. Banyenzaki expect the government to sit back now that the CHOGM isover.IndeedsomepeoplelikeHon.BanyenzakiexpectthegovernmenttositbacknowtattheCHOGMisoverCommentsmadeatrecentPre-CHOGMRegionalConferenceonthetheme:“GoodGovernanceandConstitutionalisminEastAfrica:TheContemporaryRelevanceoftheCommonwealth”onNovember2nd,2007GrandImperialHotel,Kampala.
177Id.178SeeforexampleUgandav.JosephKaliasEkemuandDavidKadidiKamwadaCriminalCaseNo.2829of
1997(Unreported).SeealsoTheReportofTheJudicialCommissionofInquiryintothepurchaseofMilitaryHelicoptersandthesubsequenttrialofMr.EmmaKato.
179OnyangoObbo argues that corruption is used as a kindof political glue.There is a groupof people inthe NRM who rally, and work tooth and nail to preserve “their” power, because they have accumulateda lot of wealth corruptly. See Onyango Obbo, “Kazini and the danger of eating small frogs”The DailyMonitor; 14th May 2008.Available at http://www.monitor.co.ug/artman/publish/CharlesOnyangoObbo/Kaziniandthedangerofeatingsmallfrogs.shtmllastaccessed14thMay2008.
180Moses Sserwanga, ‘Make us believe in the graft fight,’ The Daily Monitor; 26th June 2007 available at http://www.monitor.co.ug/oped/oped06263.php;Seealsomsserwanga.blogspot.com.
181SeeSsemujjuIbrahimNganda,‘WhyMuseveni’sGettingToughOnCorruption’,TheWeeklyObserver;21stJune2007.Availableathttp://www.ugandaobserver.com/new/archives/2007arch/news/jun/news200706211.php.
182Comments by government official who spoke on condition of anonymity.183SeeEddieSsejjoba,“Oppositionprovokinggovernment-M7”TheNewVision,availableathttp://www.
newvision.co.ug/D/8/13/572900.Lastaccessed24thJune2007.184SeeTheNewVision;Wednesday9thMay2007.
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GeneralJimMuhweziwaschargedwithabuseof office,theftandcausingfinanciallossafterinquiriesweremadebytheIGG.185HewasalsoblamedforfailingtodeclaretoPresidentYoweriMuseveniabouttheUS$4,361,000,whichwasreceivedasarewardforUganda’ssuccessfulimmunizationprogramfromtheGlobalAllianceforVaccineandImmunization(GAVI).186Inoneway,thisshowsthatthePresidentandgovernmentappreciatedandenforcedtherecommendationsmadebytheIGG.However,thisisnotthefirsttimethatministersinthisgovernmentorotherofficialshavebeensubjectedtodisciplinaryactionduetocorruptpracticesandtendencies.187Thismeansthatthegovernmentneeds to cleanup its act and improve its image regarding to thefightagainstcorruption188byinteraliaappointingpersonsof provenintegritytothesehighofficesandtakingpunitiveanddeterrentactionagainstthosecaughtwith their hands in the till.189
3.3.2 The Question of Political Interference
Onitsown,politicalinterference190standsoutasthestrongestobstacletotheIGGascomparedtoanyothersinglefrustrationmentionedinthispaper.191Inalmosteveryinvestigationof high-levelcorruptioninwhichtheIGGhasbeeninvolved,therehasbeenpoliticalinterference.192Thisisbecausethemodus operandiof doingbusinessin
185Seehttp://www.ugandaobserver.com/new/news/news200705101.php.Lastaccessed24thJune2007.186SeeHillaryNsambu:“MuhweziBlocksHisArrestoverFunds”TheNewVision;Tuesday,8thMay2007.
Availableathttp://www.newvision.co.ug/D/8/12/564037. See also, “MPs flock Luzira to see Muhwezi” The NewVision;Wednesday,30thMay2007availableathttp://www.newvision.co.ug/D/8/12/567954.SeealsoTheNewVision;Friday4thMay2007.SeealsoTheNewVision;Thursday3rdMay2007.
187 Ministers who have resigned from office, been prosecuted in the courts of judicature or censured by Parliament intheearlydaysoftheNRMgovernmentincludeformerAttorneyGeneralJosephEkemu(convictedandsentenced),MathewRukikaire(resigned),JimMuhwezi(censured),SamKuteesa(censured),KirundaKiveijinja(resigned),amongothers.SeegenerallyParliamentofUgandaHansardfordetails.
188Supra,note158.189See, Michael J Ssali, “Uganda: IGG Wants Masaka Officials Axed”, The Daily Monitor; 29th August 2007
availableathttp://allafrica.com/stories/200706130480.html.190InitscountryreportonUganda,FreedomHousereportedthat,’whereastheautonomyofthepublicservice
is protected by the Constitution, the public, health, and education service commissions generally makeappointmentsonthebasisofmeritandopencompetition,despitethewidespreadrelianceonpatronageandcorruptionelsewhereinthegovernment.In2005,however,casessurfacedofinterferenceintheappointmentsof JustusAkankwasa asAssistant Commissioner in the Ministry of Education and Sports and Dr. JohnMutumbaasthecoordinatoroftheProjectManagementUnitfortheGlobalFundtoFightAids,TuberculosisandMalaria.Thedistrictservicecommissions,whichmakeappointmentsinlocalgovernments,confrontedfurtherallegationsofdiscriminationseeFreedomHouseCountryReport–Ugandahttp://www.freedomhouse.org/modules/publications/ccr/modPrintVersion.cfm?edition=7&ccrpage=31&ccrcountry=127 lastaccessedonthe24thJune2007.
191 See Fortunate Ahimbisibwe, ‘Otafiire blasts IGG over Naguru estate, The New Vision; 25thJune2008http://www.newvision.co.ug/D/8/12/63558.
SeealsoGraceMatsiko:‘‘Iwon’tresign;IGGreacts,TheDailyMonitor,June10,2004alsoavailableathttp://www.monitor.co.ug/news/news06101.php.Lastaccessedonthe24thofJune2007.
192ChrisKiwawulo,‘Uganda:NaguruEstates-IsItaCaseofPersonalVendettaorFoulPlay?’TheNewVision;25thJuly2008.Availableathttp://allafrica.com/stories/200807280053.html.SeealsoStevenCandia,AnneMugisa and Charles Odongtho, ‘Naguru Project to Proceed – Otafiire’, The New Vision; 30th June 2008. Availableathttp://72.3.244.61/stories/200807010085.html; Edris Kiggundu, ‘Otafiire appeals to Museveni over IGG’TheWeeklyObserver;3rdJuly2008.Availableathttp://www.observer.ug/index.php?option=com_content&view=article&id=407:edris-kiggundu&catid=34:news&Itemid=59; See alsoWafula Oguttu & OfwonoOpondo, ‘Who benefits from the redevelopment of Nakawa and Naguru housing estates? The New Vision; http://www.sundayvision.co.ug/detail.php?mainNewsCategoryId=7&newsCategoryId=614&newsId=634784.
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Ugandaisheavilypoliticised.193
AccordingtoJuliusKiiza,patronageandpersonalinterestsarekeyfactorsinbusiness-politicslinkagesinUganda.194Kiizafurtherassertsthatseniormilitaryofficersandtheircivilianbusinessassociateshaveprofitedfrommilitaryprocurementslargelybecauseof theirpersonaltieswiththepowersthatbe(includingthePresident).195Thiscronycapitalismhasbeenworsenedby the absenceof effective institutions to check theexcessesof corruptofficials.196Hefurtherstatesthatinadditiontocorruptmilitaryprocurementpracticestherehasbeentheriseof profitable“civilian”businesses(suchasSpekeResort,MunyonyoandMosaCourts)ownedbyindividualslikeSudhirRuphareliawhoareconnectedtoleadingmembersof theregime.197Therefore,suchastatusquomakesitextremelydifficultfortheinstitutiontocarryoutitsworkandanyinvestigationcarriedoutbytheIGGwillbesubjectedtoalotof politicalinterference.
Anexampleof unnecessarypoliticalinfluenceisastatementbytheLocalGovernmentministerKahindaOtafiirewhohasstatedthat;“She(theIGG)wasgivenapowerfulofficewhichsheisabusing.SheisbecomingaburdentotheGovernment.Whycan’tshepointouttheproblemandwecorrectitinsteadof sayingthatsheisinvestigatingtheprojectwithoutpointingoutthewrong.”198ClearlysuchastatementisprematurebecausetheIGGcanonlyidentifytheproblemcomplainedof aftertheinvestigationsarecomplete.Inanycase,JothamTumwesigye,formerIGGhasthereforeadvisedthatinordertoavoidastallingovernmentprojects,governmentofficialsneedtofollowthelawanddothingsproperly.199
Itshouldbenotedthatpoliticalinfluenceisnoteasytoimputeandprove,butcanonlybeinferredfromthesurroundingcircumstances.200 Itcanbetheuseof diversionary
193SeeSsemujjuIbrahimNganda,‘CHOGMscandal’TheWeeklyObserver;22ndMay2008.Availableathttp://www.ugandaobserver .com/new/news/news200805011.php, whereVice President, Prof. Gilbert Bukenyaand Foreign Affairs Minister, Sam Kutesa, were named in the scandalous lease and purchase of 240 official limousinesfortheCommonwealthHeadsofGovernmentMeetinginUganda.
194SeegenerallyKiiza,Julius2004.195SeeAnneMugisa&CharlesAriko,‘CourtMartialJailsKaziniFor3Years’,SeealsoAlfredWasikeand
Henry Mukasa, ‘Who is Major General James Kazini? available at http://www.thepromota.co.uk/index.php?option=com_content&task=view&id=640&Itemid=41.
196See‘UPDF’slongbattlewithCorruption’20thApril2008availableathttp://www.monitor.co.ug/artman/publish/inside_politics/UPDF_s_long_battle_with_corruption.shtml.
197Forfurtherreading,seeBardhan,Pranab.1997.198Steven Candia, Anne Mugisa and Charles Odongtho, ‘Uganda: Naguru Project to Proceed – Otafiire’ The
NewVision,30thJune2008availableathttp://72.3.244.61/stories/200807010085.html.199InterviewwithMr.JothamTumwesigyecarriedoutonthe29thofAugust2007.200SeeforexamplethequestionsputtoHon.HopeMwesigyewhowassendingtextmessagestophonesof
membersofparliamentprobingthesalebyHon.AmamaMbabazioflandinTemangalototheNationalSocialSecurityFund.Shestatedthatshewasonlylobbyingtherulingparty’srepresentativesontheCommitteetodealwiththeissuesandnotbedivertedby“politics”.ItisclearthatmemberslikeDr.LyomokihavesincechangedtheiraggressivestanceagainstAmamaMbabazi,whileotherslikeHon.TinkasimireBarnabashave,muchtothedismayofhisformerpetitioners,changedsidesandallegedthattribalismandreligionaretheactualcauseoftheprobeagainsttheMinisterMbabazi.SeealsoNSSFMD)JAMWAslettertoMusevenionTemangalo-NSSFdealDailyMonitor,October20,2008availableathttp://www.co.ug/artman/publish/news/jamwa_s_letter_to_museveni_on_Temangalo_NSSF_deal_73425.shtml
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tacticslikeusingfakedocumentsorfalseorbaselessnewsreportslikethepurportedreport on the removal of the IGG.201 Other instances include theway inwhichpresidentialadvisorMaj.RolandKakoozaMutaleblockedtheIGGfromarrestingtheformerSolicitorGeneral,andsuccessfullyfrustratedtheIGGfromproceedingwithhisinvestigations.202 Thistypeof behaviourshouldbediscouragedsoastodiscourageimpunityandpaveensurethattheIGGcarriesoutherworkwithoutdisruption.
3.3.3. ConflictswithGovernmentInstitutions
3.3.3.1 The Case for Co-operation
Asstatedearlier,thefightagainstcorruptionhastobemulti-facetedif atallitistobeeffective.Thismeansthatallgovernmentstructuresshouldworktogethertoensurethatallloopholesareeliminatedtoensuresuccessinthisfight.Intryingtoaddressthisissue,theMonitorNewspaperwroteinitsEditorialthat,
Though belated, Ugandans should welcome this development (the prosecution of the ministers of health). All public officers are advised to avoid interpreting the actions by the Inspectorate of Government, one of the bodies mandated to investigate these offences, as a personal vendetta. Where one is the subject of an investigation, it is hoped that due process will follow, and if found innocent, the relevant judicial authority will exonerate the suspect(s).203
However, this alsomeans that the procedures prescribed for public offices andinstitutionsshouldberespectedbyallplayers.204 InmostEuropeancountries,whentheOmbudsmanmakesarecommendation,itisimplementedforthwith.205Thisisbecausethemoralauthorityof institutionsisveryhigh.Unfortunately,thisisthisisnotthecaseinUganda.206DeputyIGG,Hon.RaphaelBaku,concursandstatesthatinmanycases,therecommendationsof theIGGareseldomimplementedorevendiscussedinparliament.207Onapositivenote,thissituationhasstartedchangingrecentlyprobablybecauseof multipartypolitics,amorevibrantfourthestate(media),orduetothedesireof governmenttoshowtheinternationalcommunitythatitiscommittedtofightagainstcorruption.208
201SeeUganda,‘FinanceNotProbingIGG,SaysSuruma,’TheNewVision;22ndAugust2007.Availableathttp://allafrica.com/stories/200 708230004.html; See also “Don’t FightThe Inspector General Of Govt’,TheNewVision;26thAugust2007availableathttp://www.newvision.co.ug/D/8/14/583342,seealsoFelixOsike,‘ReportImplicatingIGGMwondhaFake’TheNewVision;26thAugust2007availableathttp://www.sundayvision.co.ug/detail.php?mainNewsCategoryId=7&newsCategoryId=123&newsId=583219.
202See Henry H. Ssali, ‘ IGG pins Muhwezi over NDA officials,’ November 25, 2003; See also Charles Kakamwa, ‘ Njeru Defies IGG Over Mayor’, The New Vision; Saturday, 14th April 2007. available on http://www.sundayvision.co.ug/detail.php?mainNewsCategoryId=7&newsCategoryId=125&newsId=559870.See also“IGG, Tibaruha in fresh fight” The Daily Monitor; 11th June 2007 available at http://www.monitor.co.ug/news/news06111.php.
203Id.204CommentsbyMr.JothamTumwesigyeinterviewedonthe29thofAugust2007.205Id.206SeeSsemujjuIbrahimNganda,‘WhyhaveUgandansbecomeSectarian?,’TheWeeklyObserver;7thJune
2007at12.207Interviewedon27thAugust2007.208Id.
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Furthermore,thenoticeableproliferationof institutionsthathavebeenestablishedtofightcorruptionhasinsteadcausedalotof conflictbetweenthem.209Thisisconfirmedby the IGGwho in the recent past has attacked thePrimeMinister Prof.ApolloNsibambi,formerChairmanof theLegalandParliamentaryAffairscommittee,MrPeterNyombi,andhisfellowMPsWilfredNuwagabaandMrAlexNdezi,of connivingwithpeopleshehasinvestigatedtofighther.210
Somescepticshavehoweverarguedthateventhoughtheseinstitutionsweregiventheirduerespect,theycannotexecutetheirtasksproperly,duetopolitical influence, lackof capacity,poorinfrastructure,andinternalcorruption.211 AsstatedbyDr.NsabaButuro,“…We know of institutions that are supposed to fight corruption but its members are the ones promoting it quietly. People you would expect to be at the vanguard of fighting corruption are the ones using the very rules and regulations to promote it…(there) is hypocrisy from a number of sections in our society who claim to be against corruption but quietly promote their own interests. You publicly profess to be against corruption but privately your actions suggest otherwise.212
The fact that the Inspectorate carries out a zero-tolerance approach to corruptionandabuseof officemeans that it easily createsenemieswithallothergovernmentdepartments,whichwouldhaveeasilyassistedit.213 Whereasthe lawrequiresthesedepartmentstogiveinformationtotheInspectorate,theinformationgivenisneversufficient.Theywillthusretaininformation,whichtheyhopewillassistthemtohaveadefenceandtherebyfrustratethecase.214 TheIGGisthusseenasa lonehuntersometimeswithouthelpfromtherestof theinstitutions.215
A case in point is a recent Symposiumorganised by theUgandaHumanRightsCommissionwheretheIGGarguedthatthefightagainstcorruptionshouldbelefttoherofficealone.216Howeverthissuggestionwasopposedbymanywhohaveargued
209SeeOmbudsman,Legislatorsclashagain,SeeJudeEtyang,‘HighCourtBlocksIGGOutOfMaj.KakoozaMutaleAppeal’,TheNewVision;6thMarch2004.Seealso“IGGCanNeitherSueNorBeSued”TheNewVision;29thMarch2004.
210seeRichardWanambwa,‘IGGaccusespremieroftrickery,Nsibambidenies’TheDailyMonitor,7thSeptember2008.Available at http://www.monitor.co.ug/artman/publish/sun_news/igg_accuses_premier_of_trickery_nsibambi_denies_71125.shtml.
211Seeforexample;OboreChris,‘Policefullofrogues,saysGen.Kayihura’TheDailyMonitor,8thAugust2008.Available at http://www.monitor.co.ug/artman/publish/news/Police_full_of_rogues_says_Gen_Kayihura_69489.shtml;SeealsoSsemujju IbrahimNganda, Bribery talk leavesParliament in tatters,’TheUgandaObserver;15thMay2008.Availableathttp://www.ugandaobserver.com/new/news/news200805015.php;SeealsoHillaryNsambu,‘CourtsAmongTopCorruptInstitutions,’TheNewVision;24thApril2008.Availableathttp://www.newvision.co.ug/D/8/12/624288.SeealsocommentsattheStakeholders’WorkshopToDiscussTheDraftWhistleblowers’ProtectionBill,Thursday16thAugust2007atFairwayHotel,Kampala.SeealsocommentsexpressedonvariousradiotalkshowslikeEkimeeza,thePeople’sparliamentonRadioOne90FM,theSpectrumProgramonRadioOne90FM.
212NsabaButuro,supra.213CommentsbyMs.BettyNamuhoma,HeadoftheOmbudsmandivisionoftheIGG,speakingliveonWBS
TVshow‘‘IssuesatHand’’onthe18thofSeptember2007.214Interview of Martin Erone, former Senior Inspectorate officer IGG.215Commentsbya seniorpublic servantworking foroneof theanti corruptionagencieswhospoke to the
researcheronconditionofanonymity.216 See Uganda, ‘Leave Corruption Fight to My Office, Says IGG Mwondha’ `The New Vision September 15,
2008availableathttp://allafrica.com/stories/200809050350.html.
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thatthefightagainstcorruptioninvolveseveryoneandcannotbethepreserveof theIGGalone.217 Inanotherincident,HonRubbyAweriOpio,whilstrespondingtoacomplaintlodgedbytheIGGregardinghowhehadhandledapetitionbroughtbeforehimby Maj.GenJimMuhwezi,Capt.MikeMukula,Dr.AlexKamugishaandformerStateHouseofficialAliceKaboyoareaccusedof misappropriatingsh1.6bfromtheGlobalAlliance forVaccinesand Immunisation (GAVI) funds, made the followingremarks;“ In Luo society where I belong genetically and historically, there is a saying that “cingi keni pe konyi” meaning your hands alone cannot help you. The Learned IGG should cooperate with other agencies if she is to be a prophet(ess) of hope in the fight against corruption.”218
AsimilarremarkismadebytheLocalGovernmentMinisterKahiindaOtafiireregardingthedeadlockoverthenowhalted$300mNakawahousingestatewhenhehaslamentedthelackof cooperationfromtheIGG.Hestated;“… I have been calling her. I have been trying to talk to her on phone. Every time I call her, she does not answer the phone. I leave a message, she does not call back. If she was answering my phone, may be we would not have reached this situation.”219 MoretheMinisterof EthicsandIntegrityalsoconsidershisministryasthe“captain”of thefightagainstcorruption.220
Clearly,suchbickeringoversuperiorityisunnecessaryandshouldstop.Itshouldnotmatterwhoisatthehelmof thefight,whatismostimportantisthatallanti-Corruptionagenciesshouldthereforeworktogetherinordertohaveamultifacetedapproachtoeliminatingcorruption. 221 Shortof whichthebattlewillbelosteasily.
Itisthereforegoodtonotethatthereiscollaborationandco-operationwithintheseveralinstitutionsmandatedtofightcorruptionthroughforexample,theInter Agency Forum Against Corruption (IAF),theAccountabilitySector,andtheAfricanParliamentariansNetwork againstCorruption.222 These have corresponding support fromofficesliketheAttorneyGeneral’sChambers.TheIAF isacoalitionof institutionsthatare
217CommentsbyMrBensonObua-Ogwal,MPforMorotoCounty.218SeeUgandav.Hon.JimMuhwezi&3OthersHighCourtRevisionPetitionNo.19/2007arisingfromBuganda
RoadCourtCaseNo.557/2007.Seealso,‘MwondhaOnTheBattleFront’TheDailyMonitor;30thJanuary2008.Availableathttp://www.monitor.co.ug/artman/publish/inside_politics/Mwondha_on_the_battle_front.shtml;seealsoCharlesAriko,‘IGGerredonMuhwezijudge–Ogoola’,TheNewVision;Wednesday,13thFebruary 2008 available at http://www.newvision.co.ug/D/8/13/611468. See also; Solomon Muyita ‘TheIGG-Muhwezi-JudiciarySaga,’TheDailyMonitor;30thJanuary2008availableathttp://www.monitor.co.ug/artman/publish/inside_politics/The_IGG-Muhwezi-Judiciary_saga.shtml.
219 See Edris Kiggundu; Otafiire appeals to Museveni over IGG,’ The Weekly Observer; 3rdJuly2008.Availableathttp://www.observer.ug/index.php?option=com_content&view=article&id=407:edris-kiggundu&catid=34:news&Itemid=59.
220Dr.NsabaButuroisquotedassayingthat(theDirectorateofEthicsandIntegrity)isthecaptain.Youhaveabattleagainstimmoralitygenerallyandthedirectorate,onbehalfofgovernment,isthecommander.Inotherwords,theministry,onbehalfofgovernment,setsstandardswhicharearrivedatthroughconsultationswithveryimportantsectionsofoursocietyandoncethosestandardsareagreeduponandsupportedbyParliament,thenwehaveaperfect frameworkwithinwhich tosay thewholecountrycanmove together.SeeNsabaButuro,supra.
221CommentsbyMr.JothamTumwesigyeinterviewedonthe29thAugust2007.222Seehttp://www.u4.no/document/showdoc.cfm?id=94accessedonthe28thJune2007.
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mandatedtofightcorruption.223 Whereastheseinstitutionsareworkingtogether,theyviewtheInspectorateasaspoilerof theirprogress,afactwhichhasnotbeenhelpedbytheperceivedhardlinestancetakenbytheIGGagainstmanyof theinstitutions.224 AccordingtoLindaTumusiime—theDirectorof LegalAffairsintheDirectorateof EthicsandIntegrity—theseinstitutionscometogetherwiththevisionof eradicatingcorruptionandworkingtogethertoensurethatthereiszerotoleranceforcorruption.However,theIGGdoesnotparticipateinthisforumwhichclearlyworksagainsttheunityof purposethatisneededinthisfight.225
3.3.3.2 Laxity in Implementing IGG Recommendations
Inordertoeffectivelyfightcorruption,therecommendationsof theInspectorateof Governmentmustbetakenseriouslyandimplementedtocreateadeterrenteffect.Inoneof herrecentreports,theIGGpointedoutthatoneof themainobstaclesfacingtheofficeisthecorruptionandnegativeattitudesintheinstitutionsthataresupposedtobepartnerswiththeIGGinthefightagainstcorruption.226Althoughnotnamed,thereportstatesthatsomeinstitutionstakeunnecessarilylongtotakeaction,orsimplyfailtoproviderequiredinformationortheyignoretherecommendationsmadeoutright.227 In anumberof cases thesebodiesor individualshave eithernot implemented therecommendations,nortakentheactionsexpected.228
Anexampleof suchactionincludethewayKampalamayorNasserSebaggalaopposedanordersignedbythedeputyIGG,RaphaelBakuObudra,requiringtheactingtownclerk,RuthKijjambu,toreinstateherprincipalassistant,WilliamTumwine,229orhow
223Theseinclude;InspectorateGeneralofGovernment,theDirectorateofEthicsandIntegrity,theDirectorateofPublicProsecutions,theCriminalInvestigationsDepartmentofthePolice,theAuditorGeneral,thePublicProcurementandDisposalofPublicAssetsAuthority, thePublicAccountsCommitteeofParliament,AllServiceCommissions,Justice,LawandOrderSector,InspectorateDivisionsoftheLocalGovernmentandPublicService,theLocalGovernmentFinanceCommittees.
224Forexample, therecentcommentsmadebytheIGGagainstvariousinstitutionsliketheParliament, thePrime Minister, the Deputy IGG in a recent Radio One talk show interview. See Rodney Muhumuza &RichardWanambwa,‘DeputyIGGattacksMwondha’TheDailyMonitor;availableathttp://www.monitor.co.ug/artman/publish/news/Deputy_IGG_attacks_Mwondha_71416.shtml;Uganda;“LeaveCorruptionFightto My Office, Says IGG Mwondha” The New Vision; 15thSeptember2008. Availableathttp://allaf rica.com/stories/200809050350.htmllastaccessed.
225View of a senior member of the Inter Agency Forum who spoke on condition of anonymity and confirmed bytheDeputyIGGHonRapahelBakuwhointimatedthattheInspectoratewillgetactivelyinvolvedinthenearfuture.
226IGGReporttoParliamentJanuary–June2006at103.227Id.228 This view is confirmed by Miria Matembe, a former minister of Ethics and Integrity who commented on the
now suspended former Solicitor General Lucien Tibaruha, thus; “Me and IGG Jotham, we raised and filed several reports about the misconduct and corrupt tendencies of Tibaruha…even recommendations by the IGG thatTibaruhashouldnotbeappointedSolicitorGeneral.”SeeSsemujjuIbrahimNganda,‘WhyMuseveni’sGettingToughOnCorruption’TheWeeklyObserver;21stJune2007.Availableathttp://www.ugandaobserver.com/new/archives/2007arch/news/jun/news200706211.php.
229See Florence Nakaayi, ‘IGG wants KCC official reinstated’, The New Vision; 5th August 2008 available at http://www.newvision.co.ug/D/8/13/643042.
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theNjeruTownCouncildefiedtheIGG’srecommendationtosacktheirMayor.230 Inotherinstances,theconcernedofficialshavesimplyreducedseriousrecommendationsbytakinglightactionagainstthoseconcernedwithoutconsentfromtheInspectorateof Government.231 Inessencetherefore,itcanbearguedthatthistypeof behaviouramountstoareviewof thefindingsof theInspectoratethus,acontraventionof theInspectorateof GovernmentActwhichprohibitsanychallenge,review,quashingor questioningof thefindings,recommendations,investigationsorinquiriesmadebytheOfficeof theInspector-Generalinanycourtof law.232 ThisisconfirmedbyJusticeAugustineKaniainKiara Amos, whenheheldthat
“… because the process of the Inspectorate of Government of making the said report is protected by immunity under section 21 of the Inspectorate of Government and because I respondent had no way of reviewing or varying the recommendation of the Inspectorate of Government, I find the application of all the five applicants against both respondents misconceived and bad in law...233
Therefore,thelegislatureshouldtakeupitsconstitutionalroleandensurethattherecommendationsof theIGGarecarriedout.AsnotedbyParliament’sPublicAccountsCommitteeChairmanNandalaMafabi“...it(is)appropriatefor…ParliamenttoquestiongovernmentofficialsastowhyIGGrecommendationsarebeingtakenforgranted.”234
3.3.3.3 Laxity of Parliament
Equallyfrustrating,hasbeenthelaxityof Parliamentinsupportingtheworkof theInspectorate andfightingpolitical corruption generally.235 According toHon.BetiKamya,‘thepublicisdisappointedintheinstitutionof Parliament;-insteadof hearingvoicesholdinggovernmentaccountable,addingvaluetothedemocratisationprocess,theyhearcallsforincreasedsalaries,medicalbenefits,poshoffices,fuelandmoreloanstofurthermortgagethecountry.’236Inthesamevein,theIGGnotes,‘TheMPsshould
230 According to the IGG, “The non-interdiction of the Chairman, Dr. Nganwa, from office, resulted into the victimisationof[formerNDAemployee]Mr.AtanasiusKakwemeire,whowasaprincipalstatewitness,”Tumwesigyeclaimed.HethenpointedtothefailureoftheNDAtorenewthecontractofKakwemeire,whowasthenheadoftheNationalDrugQualityControlLaboratoryintheNDA,whenitexpiredonApril10thatyear. See Henry H. Ssali, ‘IGG pins Muhwezi over NDA officials,’ The New Vision 25thNovember2003.Seealso Charles Kakamwa, ‘Njeru Defies IGG Over Mayor,’ The New Vision available on Saturday, 14th April 2007availableathttp://www.sundayvision.co.ug/detail.php?mainNewsCategoryId=7&newsCategoryId=125&newsId=559870 on. See also “IGG, Tibaruha in fresh fight” The Daily Monitor; 11thJune2007availableathttp://www.monitor.co.ug/news/news06111.php.
231SeeIGG;July-December2003ReporttoParliamentoutlinedthisproblemasoneofthebiggestchallengestotheIGG.
232SeeSections21,breachofwhichispunishableunderSection35oftheAct.233KiaraAmosWereba,DradriJohn,DramaniJames,EwamaMoses,DribiriElson,DribiriElsonV.Arua
MunicipalCouncilAndInspectorGeneralOfGovernmentHCT-02-CV-MA-0109-2004(Unreported).234YasiinMugerwa,“DistrictsTopIGGListofShame”TheDailyMonitor;2ndDecember2007availableat
http://www.monitor.co.ug/artman/publish/sun_news/districts_top_igg_list_of_shame.shtml.235SeeYasiinMugerwa,‘Fightingtheanti-corruptionwarriors”TheDailyMonitor;27thApril2008availableat
http://www.monitor.co.ug/artman/publish/inside_politics/Fighting_the_anti-corruption_warriors.shtml.236SeeBetiOliveKamya,‘TheCountryNeedsRedemption’,TheDailyMonitor;23rdJuly2007.Availableat
http://www.monitor.co.ug/oped/oped07232.php.
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conductandbeseentoconductofficialbusinessinanofficialmanner…thereisnoplacetodiscussstatementssuchaswhethertheIGGisstillinchargeof theinstitutionafterlocalgovernmentministerKahindaOtafiireallegedlycalledheraschoolgirl.’237
Hon.BensonObua-Ogwal admits thatParliament and the IGGhavebeenhaving“runningbattles”238overvariousissues,239whichhasledtotheIGG’srefusaltoappearbefore theParliamentaryCommitteeonLegal andParliamentary affairs240 claimingthattherearepeopleliketheformerchairpersonof thecommitteewhoweretryingtotaintherimage.241 ShealsoassertsthatthereisnoconstitutionalorlegalbasisthatjustifiestheneedfortheIGGtoappearinperson242 beforethelegalandparliamentaryaffairs committee of Parliament.243 According to the IGG,Article 155(2) of theConstitutiononlyrequiresthattheheadof anyself-accountingdepartment,commissionororganisationsetupunderthisConstitution“shallcausetobesubmitted”(not“shallsubmit”)reportstoParliament.244 ShefurtherstatesthatArticle227of theConstitutionprovidesthattheInspectorateshallbeindependentintheperformanceof itsfunctionsandshallnotbesubjecttothedirectionorcontrolof anypersonorauthorityandshallonlyberesponsibletoParliament.”245
Thisconflictbetweeninstitutionsthathavethesimilarmandateisunfortunatetosaythe least.246 Inanattempteddefenceof hiscolleagues,Hon.NandalaMafabinotesthatParliamenthasbeenboggeddownwithalotof workandhasneverdebatedanyof thebi-annualreportsof theIGG.247However,thisishardtoaccept,becauseitiseasytosummonmembersof Parliamentfromtheirrecess,todiscussthearrestand
237SeeFaithMwondha,‘IGGisNotAnswerabletotheParliament’,TheNewVision;23rdJuly2008availableathttp://72.3.244.61/stories/200807240332.html.
238JosephineMaseruka,‘IGGMwondhaslamsanti-corruptionBill’,TheNewVision;Wednesday,3rdSeptember2008.Availableathttp://www.newvision.co.ug/PA/8/12/647927.
239In therecentpast, theIGGcriticizedthePublicAccountsCommitteeofParliamentforhavinggiventheMinisterofEthicsandIntegrityasoftlandingwhenitaskedhimtopaybackaloanofUgandaShillingsTwentyMillionshillingswhichhehadillegallyborrowedfromaprivateradiostation.TheCommitteeChairmanatthattimethreatenedtotakeactionagainsttheIGGhowever,thethreatsnevermaterialised.
240 As confirmed by her recent interview on Radio One 90 FM. See Rodney Muhumuza & Richard Wanambwa; ‘DeputyIGGattacksMwondha.Availableathttp://www.monitor.co.ug/artman/publish/news/Deputy_IGG_attacks_Mwondha_71416.shtml.SeealsoPascalKwesiga“MPswon’tscareme,saysIGGMwondha,TheNewVision,TuesdayOctober7,2008at5.
241Id.242The IGG also argues that the Inspectorate is a public office by virtue of Article 223 (2) of the Constitution and
Section4(2)oftheInspectorateofGovernmentAct,2002andthatitwasnotenvisagedbytheConstitutionortheActaspersonaltoholder.
243SeeArticle155(2)andArticle232oftheConstitution.244SeeArticle231(1)oftheConstitution.245Mwondha,Op.cit.Shefurtherstatesthatbeingresponsibleisnotsynonymouswithbeinganswerableforitis
clearthatwhenthedraftspersonmeantanswerableoraccountable,theappropriatewordwasused(forexampleseeArticle117andPrincipleXXVI(ii)oftheNationalObjectivesandDirectivePrinciplesofStatePolicy).
246See‘MPsdemandrespectfromIGG’,availableathttp://www.parliament.go.ug/index.php?option=com_content&task=view&id=66&Itemid=65.
247SpeakingatStakeholders’workshoptodiscussthedraftWhistleblowers’ProtectionBill,16thAugust2007,FairwayHotel,Kampala.
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detentionof theKabaka’sministers248ortheongoinginquiryintothebotchedpurchaseof landbytheNationalSocialSecurityFund.249Inanycase,Article231(5)requiresParliamenttodiscussexpeditiouslyanyreportssubmittedtoitunderClause(1)butreportssubmittedcoveringtheperiodJune2004toDecember2007haveneverbeendiscussedbyParliament.250ThisisaccentuatedbythefactthatthelawdoesnotmakeitmandatoryforeitherParliamentorthePresidenttotakeactiononanyreportsubmittedbytheIGG.251Itjustsimplyshowsthattheworkof theIGG’sofficehasnotbeengivenpriorityortreatedasessential,252andhaslefttheInspectoratefrustratedinlightof thefactthatneitherParliamentnorthePresidentisimplementingtheIGGreportsandrecommendations.253
Itisthereforegoodtonotethatthecurrentchairmanof theLegalandParliamentaryAffairsCommittee,Hon.StevenTashobya,acknowledgedthatwhereasithasnotbeendonebefore,Parliamentissupposedtohelpherdoherworkandinhiswords,“thewayforwardistoseehowwecangetParliamentandherofficetoworktogether.”254
3.3.3.4 Clash with The Attorney General’s Chambers
EquallynoticeablearetheclashesbetweentheInspectorateandtheAttorneyGeneral’sChambers.
ThesehavetakenvariousformsandresultedinthreatsbytheIGGtohavetheSolicitorGeneralarrested,255aswellasthecreationof aseparatedepartmentforCivilLitigationintheinspectoratebecause,theAttorneyGeneral’sofficeseemedtohavenointerestintheIGG’swhichwouldendupbeinglost.256Inoneinstance,theDeputyAttorneyGeneral,Hon.FreddieRuhindirecentlychallengedtheIGGtonamestateattorneys
248 See Museveni, “”TheWeekly Observer, 23rd July 2008.Available at http://www.connectugan da.com/component/option,com_fireboard/Itemid,152/id,9960/catid,10/func,fb_pdf/, see also http://www.observer.ug/index.php?option=com_content&task=view&id=602&Itemid=59.
249EdrisKiggundu,‘MPsgrillNSSFbossesoverlanddeal,’TheWeeklyObserver,Saturday,23rdAugust2008.Availableathttp://www.observer.ug/index.php?option=com_content&task=view&id=866&Itemid=59.
250SeeMwondha.,Op.cit.251 Section 30 (1) and (2) of the IGG Act provides that, “…upon receipt of a report under S.29, Parliament may
takeorcausetobetakensuchactiononitasitmayconsiderappropriate.”Subsection2providesthat,“Uponreceiptofacopyofareportoftheinspectorateundersection28,thePresidentmaytakeorcausetobetakenagainst the public officer or other person in respect of whom the report is made such action as may be taken underorinaccordancewithanywrittenlaw.”
252Seeforexample“TimetoactonIGG’sNSSFreport”TheNewVision;Monday,1stSeptember2008.Availableathttp://www.newvision.co.ug/D/8/14/647453.
253Id.254RodneyMuhumuza&RichardWanambwa,‘DeputyIGGattacksMwondha’TheDailyMonitor;18thSeptember
2008 available at http://www.monitor.co.ug/artman/publish/news/Deputy_IGG_attacks_Mwondha_71416.shtml.SeesimilarcommentsbytheSpeakerofParliament,Hon.EdwardSekandiavailableathttp://www.parliament.go.ug/index.php?option=com_content&task=view&id=66&Itemid=65.
255See “IGG, Tibaruha in fresh fight” The Daily Monitor; 11th June 2007. Available at http://www.monitor.co.ug/news/news06111.php.
256SeeFelixOsike,‘IExpectaConvictionInMuhwezi,MukulaCase,IGGMwondha’,TheNewVision;Saturday2ndJune2007.Availableathttp://www.sundayvision.co.ug/detail.php?mainNewsCategoryId=7&newsCategoryId=130&newsId=568497.
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Frustrated Or Frustrating
who connivedwith corrupt government officials to frustrate their prosecution.257 AccordingtoHon.Ruhindi,hisofficecanonlytakeactionontheallegationsbytheIGGoncetheyare.Itismycontentionthattheministermissedthepoint,258andhasnotyetappreciatedhowsophisticatedorinstitutionalisedpoliticalcorruptionis.259Thisisbecauseevidenceof briberyandcorruptionisextremelydifficulttoadducesincethereishardlyanypaperorothertrail left.Applyingthestrictburdenof proof asrequiredbytheEvidenceAct260mightnothelpunlessthesuspectshavebeencarelessornegligentinthewaytheytransactedtheirbusiness.261
AnofficerwithIGG’sofficewhospokeonconditionof anonymity,alsoconfirmedthatduetotheuniquenatureof prosecutingcorruptioncases,thereisaneedtorethinktherulesof procedureincourt.Thisisbecausecorruptionisasyndicatecrimethatisnotcommittedbyonlyonepersonandthusitishardtoestablishbeyondreasonabledoubtasrequiredbythelaw.262Indeed,inmostcases,itcanonlybeassumedfromachainof events263likethehighnumberof cases,whichthegovernmentwaslosingallegedlyduetoconnivanceof stateattorneyandprivatelawyers.264
What the learnedDeputyAG shouldhavedonewas toborrow a leaf fromotherministriessuchasDefenceandLocalGovernmentandcauseaninternalinvestigationwithhischambersinordertoidentifytheculpritsandthisvice.265However,byseekingindisputableevidencefromthewhistleblowerinsteadof carryingouttheinvestigationfrustratesthecorruptionfight.ThiswasclearlyseeninparliamentwhenSamuelOdongaOtto266wasputtotasktoprovethattheMinistryof ForeignAffairshadbribedsomemembersof parliamenttopassadditionalfundingfortheCommonwealthHeadsof GovernmentMeeting,whichwasheldinNovember2007.267
257ThiswasinlightofthefactthattheIGGhadtoldMembersoftheParliamentaryCommitteeonLegalAffairsthat her office needs a department on civil litigation that was separate from that of the Attorney General’s chamberswhichfrustratesherwork.SeeId.
258SeeApolloMubiru,‘Uganda:BringEvidence,AttorneyGeneralAdvisesIGG,TheNewVision;19thApril2007.Available at http://allafrica.com/stories/200704200135.html; See also http://www.legalbrief.co.za/publication/archives.php?mode=archive&publication=Legalbrief _Africa&issueno=228&format=html lastaccessedon24thJune2007.
259SeeFinalStatementoftheUgandaInternationalConferenceonEmpoweringCivilSocietyintheFightagainstCorruptionMweyaLodge/Uganda21-25April1996.
260Chapter6LawsofUganda.261Section101Cap.121LawsofUganda.262SeeSection101oftheEvidenceActCap.6LawsofUganda.263SeeforexampleSection10Cap.121.264SeeSolomonMuyita,’CourtQuashesShs.68BillionClaimagainstGovernment;TheDailyMonitor;26th
June2007.Availableathttp://www.monitor.co.ug/news/news06265.php.265 See Henry Mukasa, ‘Legislators want Minister Otafiire punished’ The New Visison; 13thFebruary2008
availableathttp://www.newvision.co.ug/D/8/13/611464accessed;SeealsoSsemujjuIbrahimNganda,‘WhyMuseveni’sGettingToughOnCorruption’TheWeeklyObserveravailableathttp://www.ugandaobserver.com/new/archives/2007arch/news/jun/news200706211.php.
266SeeEmmanuelGyezaho,‘GovtBribedForChogmCash,OttoNowSays’,TheDailyMonitor;21stFebruary2008availableathttp://www.monitor.co.ug/artman/publish/news/Govt_bribed_for_Chogm_cash_Otto_now_says.shtml.
267Interestingly,thecurrentForeignAffairsminister,Hon.SamKutesa,hadbeendismissedfortherestofthesessionof theSixthParliament,after failing toprovehisallegations thatBukangaMPNathanByanyimahadsolicitedabribe.KampalaCentralMPEriasLukwagoalsofailedtoprovethathiscolleagues;GeofferyEkanya(TororoCounty)andNabilahSempala(Woman,Kampala)hadbeencompromisedbybusinessmanHassan Basajjabalaba during investigations into the sale of Nakasero market. See parliament of UgandaHansardfordetails.
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Frustrated Or Frustrating
This clearly confirms that just like themembers of parliament, the learnedAG’schambersareeitherillequippedtoinvestigateorreluctanttofightcorruption,268aviewalludedtobyH.E.PresidentMuseveniinaMay4,2008lettertothePrimeministerApoloNsibambitotheeffectthat“politicalleadersarenotsupervisingcivilservantswellenough,andthusbreedingcorruption”.269
3.3.3.4.1 The Battle of Wits: Challenges of Legislative interpretation
No greater force has fuelled the conflict between the two institutions than thedisagreementovertheinterpretationof enablinglawsestablishingtheIGG.270
According to the former SolicitorGeneral,Mr.Tibaruha, therewas a professionaldisagreementbetweenthetwodepartmentsastothemeaningof Article230(1)and(2)of theConstitution.271TibaruhaarguesthatArticle230onlyallowstheIGGtoinvestigateandprosecutepublicofficialsinvolvedincorruption,abuseof authorityorof publicofficeandnotboggingdownthegovernment’sdecision-makingprocess.272 ThispositionishoweverdisputedbyHon.Bakuasshallbediscussedbelow.Inanycase,evenif Mr.Tibaruha’sadvicewerethetruepositionof thelaw,theConstitutionalCourtin Kabagambe Faraj273hasheldthateventhoughtheAttorneyGeneralhasthemandatetoadviseothergovernmentdepartments,suchopinionisnotbindingonthosedepartments.Thosedepartmentshavediscretiontotakeorignorethatadviceandnosanctionscanbetakenagainstthemincasetheychoosenottoadheretotheadvice.274Inthisregardtherefore,theIGGisnotboundbytheopinionof theAG’schambers.275
However,inlinewiththeTibaruhaargument,theDeputyAG,Mr.FreddieRuhindiwroteanopinioninwhichhestatedthattheIGGdoesnothavethemandatetohandlecomplaintsinvolvingGovernmentprocurements.276Itcanbearguedthatthepurposeof this opinion, as requested for byH.E thePresident of Uganda,was to create
268ThisviewisheldbyaformerStateAttorneywhospoketotheresearcheronconditionofanonymityandisalso made by a Senior Inspectorate Officer at the IGG’s Office who spoke on condition of anonymity
269SeeSsemujjuIbrahimNganda,‘BriberytalkleavesParliamentintatters’TheWeeklyObserver;15thMay2008availableathttp://www.ugandaobserver.com/new/news/news200805015.php.
270AccordingtotheformerSolicitorGeneralMr.Tibaruha,therewasprofessionaldisagreementbetweenthetwodepartmentsastothemeaningofArticle230(1)and(2)oftheConstitution.
271 See “IGG, Tibaruha in fresh fight,” The Daily Monitor, 11th June 2007 available at http://www.monitor.co.ug/news/news06111.php.SeealsoFortunateAhimbisibwe,‘IGGinvestigatesSolicitorGeneral’,TheNewVision;Friday,25thMay,2007availableathttp://www.newvision.co.ug/D/8/13/567191.
272Id.273KabagambeFarajv.AG&AnotherPetitionNo.1of2006.274Id. 275 Comments by Mr. Sydney Asubo, a Senior Legal Officer at Inspectorate, made at Good Governance Workshop
organizedbytheHumanRightsandPeaceCentre,FacultyofLaw,MakerereUniversity.276See‘IGGLettertoPresidentMusevenionMutundweThermalPowerPlant,TheNewVision;Tuesday,29th
August2006availableathttp://www.newvision.co.ug/D/526/544/517912lastaccessedon28thJune2007.SeealsoUganda,‘etterforskningavanbudsprosessutsetterkraftutbyggingsprosjekt,Norskselskapinvolvert.15.04.2006availableathttp://www.transparency.no/article.php?id=209&p=lastaccessedonthe28thofJune2007;Seealsohttp://www.againstcorruption.org/CorruptionCase.asp?id=877;SeealsoAngeloIzama;‘KoreansFightNorwegiansfor$300MillionElectricityDeal’;TheDailyMonitor;15thApril2006.
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legalgroundtoproceedwithprojectsstalledbytheIGG.277Furthermore,itshouldrememberedthattheIGG’sactionontheThermalPowertendercameatatimewhenthecountrywasexperiencingacutepowershortages.TheRuhindiopinionthereforecannotbedivorcedfrompoliticalconsiderationsandindeed,itdidcauseconsiderableconsternationwithingovernmentcircles.278
Thus, itcanbeinferredthatthegovernmentwashardpressedtoresolvethiscrisisandsawtheinterventionof theIGGasafrustratingevent. TheformerIGG,JothamTumwesigyeandthecurrentdeputyIGGRaphaelBakuagreethattheinvestigationsof theIGGtaketimeandhenceputGovernmentworkatastandstill.279However,whereasitmightbetruethathaltingaprojectinordertocarryoutaninvestigationmightnotbeinthebestinterestsof government,notdoinganythingorallowinganillegalitytocontinueunabated,willgivebureaucratsleewaytodoastheyplease.280Itisthereforeadvisablethatpublicofficesfollowthecorrectproceduresandcarryouttheiractivitiesintimeinordertoavoidemergencyprocurements.281
Theaforementionednotwithstanding,theTibaruhaviewwasrecentlysupportedbyPeterMulira.282AccordingtoMulira,theconstitutiondoesnotgivetheIGGpowerto“overlapthethreebranchesof government”butrather,theInspectorateis“limitedtoadministrativeactionsof publicofficers.”HealsostatesthattheInspectoratecanonlyinvestigate“publicofficials”whoaredefinedas“personsholdingoractinginanypublicoffice”saveforthosespecificallyexcludedbytheConstitution.283MulirahoweveradmitsthattheInspectorateof GovernmentStatutedoesextendtheIGG’sjurisdictioneventothecabinet,parliamentandacourtof law284whichhecalls“nullandvoidasbeingrepugnanttoaprovisionintheconstitution.”285
277Theseincludedanemergencyprocurementof50MWofHeavyfuelThermalPowertogetherwithacontractfor the National Population Databank and Identification Solutions project. See Emma Mutaizibwa, ‘IGG, AttorneyGeneralRowcloudsIDTenderReport,’’TheDailyMonitor;13thSeptember2006at25.Seealsohttp//:www.igg.go.ugdocspopulation_Dbank.doc.
278See,forexample,Seealso‘Uganda;$300MillionElectricityDealDelayedDuetoBiddingConcerns’TheDailyMonitor;15thApril2006;SeealsoIbrahimKasita:HearingOfNamanveThermalPowerAwardStartsOnAugust17,TheNewVision,22ndJuly,2007availableathttp://www.newvision.co.ug/D/8/220/577293.
279Interviewscarriedoutonthe23rdofAugust2007and29thofAugust2007respectively.280 See comments on HardTalk Show hosted by Simon Kasyate, Radio KFM 93.3 on the 20th September
2008.281“CommentsbyMr.JothamTumwesigye,Supra.282MuliraPeter,‘TheIGGhasnopowertoinvestigateaminister’,TheNewVision;23rdJuly2008availableat
http://www.newvision.co.ug/D/8/20/640613.283SeeArticle257(2)(b)oftheConstitution1995.284 Section 9 provides that ; The jurisdiction of the Inspectorate shall cover officers of and leaders serving in
the following offices— (a) a government department; undertaking or service; (b)a statutory corporation or authority; (c) theCabinet; (d)Parliament; (e)acourtof law;(f) theUgandaPoliceForce;(g) theUgandaPrisonServices;(h)agovernmentaidedschool,collegeorotherinstitutionoflearningthataccessespublicfunds;(i)theUgandaPeoples’DefenceForces;(j)theLocalDefenceForce;(k)alocalgovernmentcouncilorlocalgovernmentunitoracommitteeofsuchcouncilorunit;(l)acouncil,boards,societyorcommitteeestablishedbylawforthecontrolandregulationofanyprofession;(m)apubliccommission,associationorsimilarbodywhethercorporateornot,establishedbyorunderanylaw;(n)nationalsecurityorganisationsincluding Internal Security Organisation ISO; (o) any other person, office or body that administers public fundsonbehalfofthepublic.
285Mulira,op.cit.
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However,DeputyIGGBakudoesnotagreewithMulira’sinterpretation.286AccordingtoBaku,theInspectorateisananti-corruptionagencywiththeduty“toeliminateandfostertheeliminationof corruption,abuseof authorityandof publicoffice.287 He furtherarguesthattheInspectorateisalsoanOmbudsmanwiththefunctionsof;
“promoting and fostering strict adherence to the rule of law and principles of natural justice, promote fair, efficient and good governance in public offices, investigating any act, 288 omission, advice, decision or recommendation by a public officer or any other authority … taken, made, given or done in exercise of administrative functions.” 289
He thereforeopines that the Inspectorate is not just anOmbudsman like inotherjurisdictions,butalotmore,whosejurisdictionisnotlimitedtopublicofficersonlybutalsoextendsto“otherauthority.”290
AccordingtotheDeputyIGGtherefore,itisclearthattheInspectoratehaspowersnotonlytoinvestigateanyact,omission,advice,decisionorrecommendationof pubicofficerstakeninexerciseof theiradministrativefunctions,butalsotoinvestigatetheirconductwhen such conduct is alleged to be highhanded, outrageous, infamousordisgraceful.291ThisviewisalsosupportedbyHon.BetiKamyawhowritesthat;
…I wish to remind her(The Inspector General of Government (IGG) that her brief goes beyond watching over public funds, it includes watching over all forms of abuse of office, and I dare say that the effects of abuse of office on Uganda by far outweigh all loss of public funds through corruption, put together…292
WhereasIagreewiththeaforementionedposition,IdonotagreewithHon.Baku,whenhefurtherassertsthattheInspectorateisaLeadershipCodeTribunalwithafunction“tosupervisetheenforcementof theLeadershipCodeof Conduct”293asdiscussedin 3.2.2.C above.294
Theabovedisagreementsnotwithstanding,notallhopeislost.Thetwodepartmentscanwork together for the commonpurpose of fighting corruption and abuse of authority.Thiswasseeninthecaseof IGG v. Kikonda Butema Farm Ltd &. AG,295 in
286BakuRaphael,‘TheIGGhaspowertoinvestigateaminister’,TheNewVision;30thJuly2008availableathttp://www.newvision.co.ug/D/8/459/641914.
287Article225(1)(b)oftheConstitution.288Inanearlierinterview,conductedonthe29thofAugust2007atIPSBuildingtheDeputyIGGstressedthat
the word ‘‘any’’ is all-inclusive. This opinion is supported by three other employees at the IGG’s office, who spokeontheconditionofanonymitybecausetheyarenotauthorisedtospeakonbehalfoftheIGG.
289AccordingtoArticle225(1)(a)(c)and(e),1995Constitution.290Baku,Op.cit.,note258.291Seeforexample,FelixOsike,‘IGGDemandsNSSFShake-Up’,TheNewVision;31stAugust2008available
athttp://allafrica.com/stories/200809010449.html; See also Elias Biryabarema, ‘ IGG probes BoU officials’, TheDailyMonitor;9thJanuary2007.
292SeeBetiOliveKamya,‘TheCountryNeedsRedemption’,TheDailyMonitor;23rdJuly2007availableathttp://www.monitor.co.ug/oped/oped07232.php.
293Article225(1)(d)andArticle234ofthe1995Constitution.294SeeFelixOsike,‘IExpectaConvictionInMuhwezi,MukulaCase-IGGMwondha’,TheSundayVision;
2ndJune2007availableathttp://www.sundayvision.co.ug/detail.php?mainNewsCategoryId=7&newsCategoryId=130&newsId=568497.
295ConstitutionalPetitionNo.13/06arisingoutofConstitutionalPetitionNo.18/06.
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Frustrated Or Frustrating
whichAttorneyGeneral,didnotobjecttotheIGG’sapplicationtobeaddedasapartytothepetitionashasnormallybeenthepractice.296SuchatrendishealthyandshowsthattheGovernmentandtheIGGareonthesamesideinsteadof fightingeachotherallthetime.297
AnothercaseinpointisAfric Tours & Travel Cooperative Society v. AG298 inwhichtheplaintiff soughttorecoveroversixtyeightbillionUgandashillingsfromgovernment.TheformerDirectorof CivilLitigation,JosephMatsikoarguedthatAfric’sclaimwasademandfordoublepayment,basedonforgeddocuments,andthatthecompany’sclaimshadlongbeensettled.Thiscasewasoneof theninecontroversialgovernmentcaseswhichtheIGGallegesweremishandled299bytheformerSolicitorGeneral,LucianTibaruhaforhavingfailedtoinformthethendeputyAttorneyGeneralAdolphMwesigethat Afric Tours hadresurrecteditsformerclaim.300
TheAfric Tours casethereforedemonstratesthatunlessthereismalpracticeonthepartof eithertheAGortheIGG,thetwoinstitutionscanworkwelltogetherinthestruggleagainstcorruptionandfraudulentpractices.
3.3.4. Non Adherence to Procurement Rules
Over thepastseveralyears,majorpublicworkshavebeenstuck in thegridlockof governmentprocurementprocedures.301 Thisisaseriousmattersinceitisestimatedthatoverhalf Uganda’s totalbudgetpasses through theprocurement systemeveryyear.302 About90%of thecomplaintsreceivedbytheIGGreportedlyconcerncontestedprocurements,whichinevitablyleadtodelaysasinvestigationstakeplace.AccordingtostatementfromtheMillenniumChallengeAccount(MCA),65percentof Uganda’stotalbudgetpassesthroughthepublicprocurementsystemeachyear.IntheNationalSocialSecurityFundalone,8.4billionUgandashillingsislostperyearduetocorruption.303
Therefore,ithopesthatthegovernmentcanreduceprocurement-relatedcorruptionby$10million.304
296SeeforexampletheMaj.KakoozaMutaleAppeal(RulingbyJusticeYorokamuBamwineinMisc.Appl.No.665of2003arisingoutofHCCANo.40of2003)Unreported.
297SeeforexampletheattemptedarrestoftheSolicitorGeneralbytheformerIGGJothamTumwesigyewhichwasinterestinglyblockedbythesameMaj.KakoozaMutale.
298SeeSolomonMuyita,‘CourtQuashesShs.68BillionClaimagainstGovernment,’TheDailyMonitor;26thJune2007availableathttp://www.monitor.co.ug/news/news06265.php
299See,‘IGGblackmailingme,saysSolicitorGeneral’,TheNewVisionSunday;10thJune,2007availableathttp://www.newvision.co.ug/D/8/12/569795;SeealsoFelixOsike,‘IGGinvestigatesGarugaMusinguzi28thJune2007availableathttp://www.newvision.co.ug/D/8/12/573219.
300AfricToursinitiallysuedgovernmentin1981overtheseizureofitspropertyin1977andinterferencewithits business when the late President Idi Amin Dada’s administration confiscated 26 company trucks and froze itsbankaccountsheldwiththedefunctUgandaCommercialBank(UCB).OnJuly17,1989,thegovernmentacknowledged liability for its action and made an out-of-court-settlement in which it committed to payUS$832,000asvalueforthelosttrucks,recoveryofthebankaccounts,interest,anddamagescaused.
301MikailiSseppuya,‘DisciplineBakibinga,PPDAInsists,’TheNewVision;6thFebruary2008http://www.newvision.co.ug/D/8/220/610189.
302SeegenerallyNankinga,2007.303SeeFelixOsike,‘IGGDemandsNSSFShake-Up’,TheNewVision;31stAugust2008availableathttp://
allafrica.com/stories/200809010449.html.304See Angelo Izama, ‘Billions earmarked for fight against corruption’ The Daily Monitor; 23rd May 2007
http://www.monitor.co.ug/news/news05234.php.
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Thismeansthatdespitetheexistenceof acomprehensiveprocurementlaw,whichaimsinter-aliaattransparency,accountability,andvalueformoney,suchlawishardlyeverimplementednorappreciated.305AsstatedbyLocalGovernmentMinisterKahiindaOtafiire;
The procurement law needs to be amended. At first there was an outcry against the district tender boards. It was alleged that councillors were using them to award themselves contracts. The tender boards were dismantled and we now have contracts committees. We still have a problem but we are going to revise the procurement process and plug the loopholes. 306
Asstatedabove,itispossibletoevadetheproceduressetinthelaws,forexamplebyusingemergencyprocurement,307therebymakingithardtoachievecorruptfreepublicsector procurement.308 Corruption in government contracts has partly risenwiththeevolutionof themultiplereformsingovernance.Analystshaveevenstatedthatanti-corruptionagenciesliketheIGGwhichistargetedfortheMillenniumChallengeAccount(MCA)fundingsometimesaddtothecorruptionbecauseof theirabilitytoinfluencethedirectionof tenders.309
AccordingtoTangriandMwenda,oneof themostnotoriousareasof corruptioninmostdevelopingcountries likeUganda is that concernedwith theprocurementof militaryequipmentanddefencesupplies.310 Sincethelate1990s,thegovernmentbeganacquiringmoreandlargermilitaryhardware.Anumberof majortenderswereenteredintoforaircraft,guns,andtanksaswellasitemssuchasfoodrationsanduniforms.These deals invariably involved bribes, kickbacks andmassive overpayments fromwhichmanyofficers,topgovernmentofficials,andintermediariesprofited.311 TangriandMwenda further state that itwasPresidentMuseveniwhowas responsible forpermittinganenvironmenttoemergethatwasconducivetomuchmilitarycorruptionbyahandfulof hisrelativesandsupporters.312 Thismadeitdifficultforhimtotakeastrongstanceagainstcorruptionsince,manyof thesemilitaryandpoliticalfigures
305Forexample,MrSamNahamya,thePermanentSecretaryintheMinistryofTradewhileappearingbeforethePublic Accounts Committee, accused President Yoweri Museveni of pushing him to flout the tendering process toawardacontroversial$1.35million(Shs2.4billion)dealtoCableNewsNetwork-CNNtopromoteUgandaasatourismdestinationundertheGiftedbyNaturecampaign.ItemergedthatthePresident’ssoninlaw,OdrekRwabwogo who brokered the deal is reported to have been paid USD $350,000 under his local firm TERP Group, whichwasincontraventionoftheprocurementrulesissuedbythePublicProcurementandDisposalofPublicAssetsAuthority.SeeYasiinMugerwa,‘Politicsandthewaroncorruption’TheDailyMonitorFebruary6,2008available at http://www.monitor.co.ug/artman/publish/inside_politics/Politics_and_the_war_on_corruption.shtml;SeealsoEditorial,‘Govtshouldstopgraft,wastage,’TheDailyMonitor;7thFebruary2008.Availableathttp://www.monitor.co.ug/artman/publish/opinions/Govt_should_stop_graft_wastage.shtml.
306SeeKiggunduEdris,supra.307Aswas revealed in theCommissionof Inquiry into theMismanagementof theGlobalFund forAIDS,
TuberculosisandMalariaheadedbyJusticeJamesOgoola.308See,‘ProcurementLegislation,SystemandProcedures:ARealityCheck’,ProcurementNewsJune2006at
56.309Id.310SeeTangri,&Mwenda2003at539.311Id.,at539.312SeeNandalaMafabi,‘$55bnwastedin22years,’TheDailyMonitor;6thFebruary2008availableathttp://
www.monitor.co.ug/artman/publish/inside_politics/55bn_wasted_in_22_years.shtml.
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werecloselyconnected—attimesrelated—toPresidentMuseveniandhiswife.313 Itisthiskindof statusquothatmakesitextremelydifficultfortheIGGtofightpoliticalcorruption.
3.3.5 Court Processes and Unique Corruption Trials
Thefightagainstcorruptionrequiressupportfromallarmsof governmentincludinga strong and active Judiciary.Unfortunately, the regular courts are slow and havecumbersomelegal technicalities,whichtendtofrustratethepromptprosecutionof corruptioncases.Inordertoachievethedesiredimpact,corruptioncasesneedtobetriedwithoutdelaywhilethecaseisstillvividinthepubliceyeinordertohavetheadequatedeterrenteffect.314 Moreso,thereisaneedtostudycloselytherulesof evidenceincorruptioncaseswithaviewtorevisingthemsincecorruption(andespeciallypoliticalcorruption)isveryhardtoprovebeyondreasonabledoubt.
ThereareadditionalproblemstheIGGencounterswiththecourts.FormerIGGJothamTumwesigyestatedthat“… there are some cases you would have the judges being transferred in the middle of the case, then the witness would disappear and the case would collapse.” 315 Forexample,theIGG’sofficearraignedaboutsixpeopleintheElectoralCommissionandchargedthemwithcorruption,abuseof office,andmisappropriationof publicfunds.316Thecaseisstillincourtandhasbeenthereforthelastsixyears.AnothercaseinvolvingtopofficialsinthePrimeMinister’sofficehastakenevenlonger.317Suchcasesarelikelytobedismissedforwantof prosecutionortheaccusedpersonsacquittedbecausewitnessesfailtoshowupforavarietyof reasons.318Insomecases,theMagistratesarenotevenwillingtoprosecutetheirowncolleaguesandcriticisetheIGGforarrestingthemlike‘‘commoncriminals’’.319AccordingtoaSeniorProsecutorattheIGG’sOfficewhospokeonconditionof anonymity,theCourtsmaketheworkof theIGGveryhardwhenthecasedragsonforyearswithendlessadjournments.Furthermore,itisverydifficulttocommenceanappealagainstajudgmentof thehighcourtbecauseof thedelayingettingcopiesof thecourtproceedings,whicharenormallyhandwrittenandneedtobetypedandapprovedbythejudgebeforebeingreleased.320 Accordingtothisofficer,onlyoneappeal
313SeeYasiinMugerwa,‘Politicsandthewaroncorruption’TheDailyMonitor;6thFebruary2008availableathttp://www.monitor.co.ug/artman/publish/inside_politics/Politics_and_the_war_on_corruption.shtml;SeealsoTangri,&Mwenda2003at539.
314IGGReporttoParliamentJuly-December2005at160.315SeeBenjaminKiiza,‘ImmigrationtoBeToughonQuackInvestors:InterviewwiththeformerIGGofUganda
Mr.JothamTumwesigye’TheWeeklyObserver;12thApril2007availableathttp://www.ugandaobserver.com/new/features/interview/int2007040121.php.
316Id.317Supranote259.318Id.319InterviewwithformerIGGJothamTumwesigye23rdAugust2007.320Interviewonthe27thofAugust2007.
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(Joseph Ekemu 321 )hadbythetimeof theinterview,beenarguedbutnorulinghaseverbeendelivered. 322
3.3.5.1 Legal TechnicalitiesIn themost recent past,many legal technicalities have been raised to prevent theprosecutionof thoseaccusedof politicalcorruption.Everincreasingly,thebattleagainstcorruptionisboggeddownbylegaltechnicalitiesof varioustypes.323 ThisiscontrarytotheConstitutionwhichrequiresthatsubstantivejusticebedonewithoutundueregardtotechnicalities. 324 However,inspiteof theclearprovisionsof theConstitution,therehavebeenmanyinstancesinwhichtrialshavebeenfrustratedbyeitherreviews,petitions,appealsandapplicationsforreviews.
3.3.5.1.1 The Jim Muhwezi Case325
Thiscaseinvolvesthetrialof Maj.Gen.JimMuhwezi(formerministerof Health),Capt.GeorgeMikeMukula(Ministerof StateforHealth–GeneralDuties),andDr.AlexKamugisha(Ministerof StateforHealth–PublicHealth).326Thethreewerearrestedanddetainedforallegedmisappropriationof GlobalAllianceforVaccinesandImmunization(GAVI)funds,whiletheywereattheMinistryof Health.327
ThefirstapplicationbyMaj.MuhweziwastochallengehisarrestandprosecutionbytheIGG.However,theHighCourtrejectedthisapplicationonthegroundsthathehadalreadyfiledasimilarpetitionintheConstitutionalCourt328seekingredressonthe
321AppealfromCriminalCaseNo.2829of1997Ugandav.VersusJosephEkemu&Others(Unreported).322SeeCharlesAriko,‘HighCourtputsstoptoMuhwezitrial,’TheNewVision,Tuesday14thOctober2008
availableathttp://www.newvision.co.ug/D/8/13/654590323For example, according to the former Deputy Director of Public Prosecutions Hon. Justice Mr. Simon
Byabakama,thetrialofthelateDr.SuleimanKiggunduwashaltedbecausemorethanonemagistratehadpresidedoverhiscasewhichwascontrarytothelawatthattime.
324Article126(2)(e)1995ConstitutionofUganda.325CharlesAriko&EdwardAnyoli,‘HighCourtstopsMuhwezi,Mukulatrial’TheNewVision;15thSeptember
2008.Availableathttp://www.newvision.co.ug/D/8/13/649831.326SsemujjuIbrahimNganda,‘WhyMuseveni’sGettingToughOnCorruption’TheWeeklyObserver;21stJune
2007availableathttp://www.ugandaobserver.com/new/archives/2007arch/news/jun/news200706211.php.SeealsoMuyita.S.,LuggyaJ.,MukisaL.&KibuukaS.,‘MukulaSentToLuzira,MuhweziSurvivesArrestTheDailyMonitor;23rdMay2007availableathttp://www.monitor.co.ug/news/news05231.php.
327SeeSolomonMuyita, ‘‘Muhwezi loses roundone’’TheDailyMonitor available athttp://www.monitor.co.ug/news/news05251.phpSeealso“Muhwezilosesplea,Mukulamissesbail”TheNewVision24thMay2007availableathttp://www.newvision.co.ug/D/8/12/567056;SeealsoEdwardAnyoli,CharlesAriko,andHillaryNsambu:“Mukula,Kamugishaoutonbail”TheNewVision;25thMay2007.Availableathttp://www.newvision.co.ug/D/8/12/567186.SeealsoChrisObore:“Gen.Muhwezi,Mukulaarrests;theinsidestory”TheDailyMonitor;3rdAugust2007alsoavailableathttp://www.monitor.co.ug/sunday/news/news05271.php.
328 Muhwezi had filed a constitutional petition challenging the independence of the IGG. In his affidavit, he claimed that Justice Faith Mwondha, a judge of the High Court, is holding the office of the IGG contrary to theprinciplesoftheindependenceoftheJudiciaryandseparationofpowersofthedifferentorgansofthestate.HealsocomplainedthattheIGG’sindependencehadbeenwhittledawaybecauseshewasunderthedirectionsandcontrolofthePresident,whoinstructedhertoinvestigateandprosecutehim.HefurtherstatedthatthereportoftheIGGcontainedadverserecommendationsagainsthimandotherslikehimonmattersthatwereneverbroughttotheirattentioninthecourseoftheinvestigationsandassuch,theywerenevergivenanopportunitytorespondtothem,andthattheInspectorateofGovernmentActisunconstitutionalbecauseitprohibitsthemfromchallengingorquestioningtheIGG’sreportinginanycourtoflaw.SeeHillaryNsambu,‘Muhwezi Blocks HisArrest over Funds,’The NewVision; 8th May 2007 also available at http://www.newvision.co.ug/D/8/12/564037.
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samematter.329Thiswasthesecondattempttostallthetrialof theformerMinisters,comingshortlyafterthetrialcourtrejectedanapplicationtostallthetrialuntildisposalof theapplicationintheHighCourt.330
WhereasJusticeArach’sdecisionisappreciated,theaccusedpersons,managedtostallthetrialatthemagistratecourt,first,bytwoweeksbecausetheirlawyershadwalkedoutandtheyneededtolookfornewlawyers,331 andsecond,bysecuringastayfromJusticeAugustineKaniainordertochallengethepowersof theIGGtoprosecutethem.332 ThisisinadditiontochallengingtheirtrialbeforeHerWorshipTibulyaattheBugandaRoadCourtongroundsthatsheisrelatedtoJusticeFaithMwondha,theInspectorGeneralof Governmentwhoisprosecutingthecase.333
Thesechallengestotheworkof theIGGclearlyshowaconcertedefforttofrustrateitsmandatebearinginmindthatthepetitionersarealllegislatorswhoparticipatedinthepassingof thelaw.Wenowawaittherulingsof thehighcourtandconstitutionalcourtonthemattersraised,sinceallproceedingsinthetrialcourthavenowbeenhalted.TheInspectorateisonlyleftwiththechoiceof requiringthevacationfromoffice334 in caseMaj.Gen.JimMuhwezifailstorefundUgandashillings470millionwhichhewasfoundliableof misappropriating.335
3.3.5.1.2 The Serapio Rukundo Case
Equally challenging is the fact that in the prosecution of cases involving politicalcorruption,suspiciousbehaviouroractivitieswhichmightbeunethicalbutmightnotnecessarybeillegalandincasetheyareillegal,thenitisveryhardtoprovethisbeyondreasonabledoubtasrequiredbythelaw.336
For example, attempts to prosecuteMinister SerapioRukundohit a snag after theDirector of PublicProsecutions refused to sanction charges because of a January20,2003letterfromtheManagingDirectorof NationalHousingandConstruction
329 Justice Stella Arach-Amoko ruled that ‘‘…(Court) cannot condone an abuse of the court process by letting two related cases in courts …She further stated that “court is already constrained in terms of resources so it has a duty to prevent the multiplicity of cases…”. As such she contended that the findings of the investigation by the IGG be tested before a court of law…and concluded that she would not grant the application in “considering awiderpublicinterest.”
330SeeSsemujjuIbrahimNganda,‘WhyMuseveni’sGettingToughOnCorruption’TheWeeklyObserver;21stJune 2007 available at http://www.ugandaobserver.com/new/archives/2007arch/news/jun/news200706211.php;SeealsoHillaryNsambu,‘MuhweziBlocksHisArrestoverFunds,’TheNewVision;8thMay2007alsoavailableathttp://www.newvision.co.ug/D/8/12/564037;Seealsohttp://www.ntvuganda .co.ug/news.php?task=news&§ionid=15&&id=1166&&opt=bo.
331Acommonpracticeusedbylawyerstostallthejudicialprocess.332See ‘Defence lawyersquery IGGpowers,’TheNewVision29thOctober2007available athttp://www.
newvision.co.ug/D/8/637/594498.333SeealsoCharlesArikoandEdwardAnyoli,‘HighCourtstopsMuhwezi,Mukulatrial’,TheNewVision,
http://www.newvision.co.ug/D/8/13/649831.334SeeArticle83(e)ofthe1995ConstitutionasinterpretedinJohnKenLukyamuziv.theAttorneyGeneralof
UgandaandtheElectoralCommissionConstitutionalPetitionNo.19of2006.335See‘Muhwezihas30daystorefund470millionshillings’’TheNewVision;16thOctober2007,p.3.336SeeSection101oftheEvidenceActCap.6LawsofUganda.
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Corporation(NHCC)clearingtheministerof hisallegedindebtedness.337WhereastheIGGraiseddoubtsaboutthefactthatthismatterhadnotbeenadequatelyhandledbytheDPPsince,inheropinion,therewasenoughevidencetoimplicatetheMinisterforabusinghisofficewhilsthewasstillthechief Accountantof NHCC,thecaseclearlyshowedtheinadequaciesof theDPPintheabsenceof compellingevidence.338ThisviewisconfirmedbytheformerDeputyDPP,(nowHon.Justice)Mr.SimonByabakamawhodescribesthecurrentrulesof evidenceasthebottlenecksinfightingcorruptionsincemanyunscrupulouscriminalswillhideanytracesof corruptionforexamplereceiptsoraccountbooks.339Inthisparticularcase,thewould-becomplainant(NHCC)hadalreadyclearedthesuspectof anywrongdoing,thusmakingithardtopursuethematterlestwitnessesturnhostileinthecourtroom.Byabakamaalsostatedthatinspiteof theseshortcomings,thereisstillcoordinationbetweenthetwoinstitutionsandinsomecases,theInspectorateforwardscertaincasestotheDepartmentforprosecution.340
3.3.5.1.3 The Nsimbe Housing Estate ScamIn some situations, the courts fail to appreciate the uniqueness of thewar againstcorruption.This is seen through the caseof the attemptedprosecutionof formerlabourministerZoëBakokoBakoru, formerNationalSocialSecurityFund(NSSF)bossLeonardMpuumaandbusinessmanJamesIsabiryeof MugoyaHousingEstatesbytheIGGarisingoutof themulti-millionshillingNsimbeHousingEstateScaminwhichUgandaShillingsEightBillionwasallegedlylost.341 InearlyMarch2007,JusticeStevenKavumaof theConstitutionalCourthaltedanarrestorderissuedagainstthethreeaccusedpersonspendingthedeterminationof theaccusedperson’sapplicationseekthecourt’sinterpretationof theprovisionsof afairhearingandtrial.Bakoko(now seeking asylum in theUSA) andMpuumawere chargedwith theoffenceof abuseof officetogetherwithformerNSSFBoardchairpersonJeff OnegiObel,whileMrIsabiryewasaccusedof bribinghiswayintotheNSSFhousingjointventure.Bystallingprosecutionof thesecases,thelearnedjudgefrustratedtheworkof theIGGandthetrialshaveneverkickedoff todate. 342
ThesameproblemappliestotherulingbyJusticeVincentKagabawhenheblockedthesuspensionof SolicitorGeneralLucienTibaruha.343 Byblockingthesuspension
337SeeJudeLuggya,YasiinMugerwa&RisdelKasasira,‘Uganda:IGGPins2Ministers’,TheDailyMonitor;7thJune2007,availableathttp://allafrica.com/stories/200706070018.html.
338Id.339InterviewcarriedoutinNovember2007.340Interviewcarriedouton29thAugust2007.341SolomonMuyita&FredMukinda:‘KenyapolicehuntUgandanbillionaire’,TheDailyMonitor;23rdJuly
2007availableathttp://www.monitor.co.ug/news/news07231.php.Seealso‘BakokoshouldreturnTheNewVision;24thJuly2007availableathttp://www.newvision.co.ug/D/8/14/577352;SeealsoSsemujjuIbrahimNganda:‘Wantedex-ministerBakokospeaksout’TheWeeklyObserver;19thJuly2007availableathttp://www.ugandaobserver.com/new/news/news200707191.php
342Id.343SeeLydiaMukisa&HusseinBogere:“TibaruhaBlocksMuseveniAxeBid”,TheDailyMonitor;21stJune
2007availableathttp://www.monitor.co.ug/news/news06212.php.SeealsoDavidF.K.Mpanga,’Thereisa glaring conflict of interest in Tibaruha’s case!’ The New Vision; 25thJune2007.Availableathttp://www.newvision.co.ug/D/8/21/572497.
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of theSolicitorGeneral,thejudgewasineffect,askinghimtopreparetheresponsefortheStatesincehewouldhaveremainedthemandatedofficerof thegovernmenttodoso.344 Assuch,itsmycontentionthatthelearnedJudgedfailedtoappreciatethestalematehecreatedinthisuniqueof thefightagainstcorruption.
All these cases show the challenges facedby the IGG in thefight against politicalcorruption. Thisanalysisdoesnotattempttodenytheconstitutionalrightsof theaccused.TherighttoafairhearingasenshrinedintheConstitutionshouldcertainlybeprotected.345However,thecourtsshouldbeseentoworkproactivelyinsupportingtheworkof theIGGespeciallywhentheoldploysof legaltrickeryarebeingusedtofrustratetheprocess.Itisthereforemyhopethatthejudgesof thenewlyconstitutedAntiCorruptiondivisionof theHighCourt,headedbyJusticeKatutsiwilltakenoteof theseuniquesituationswhendispensingjustice.
3.3.6 Poor Ethical and Moral Standards
Nothingfrustratestheworkof theInspectorateasmuchasthealmostnon-existentmoralandethicalstandardswithinthepeoplegenerally346andingovernmentinparticular.347Thisisbecausethefightagainstcorruptionrequiresthecooperationandsupportof themasses.348Dr.Buturonotesthat“the population has not sufficiently understood that it’s in our interest to collectively work together against corruption. Some of them politicise the issue instead. Of course they protect those they think are their own and our efforts are watered down.”349
Inorderforthemtodoso,themassesoughttofeeloffendedbythecorruptofficersandpractices.350Surprisingly,therespondentstointerviewsandgroupdiscussionsaswellastheviewsfromvariousradioandtelevisiontalkshows351hardlyexpressedanyabhorrenceforsuchbehaviour.352AssuccinctlyputbythePrincipalJudgeof Uganda,TheHon.JusticeMr.JamesOgoola,whochairedtheCommissionof InquiryintotheMismanagementof theGlobalFundforAIDS,Tuberculosis,andMalaria, “…Society is 344 See David F. K. Mpanga: There is a glaring conflict of interest in Tibaruha’s case’ The New Vision; 25thJune
2007availableathttp://www.newvision.co.ug/D/8/21/572497.345“Article28(3)(a)”
346Seecommentsbyvariouscallerson“Kimeeza-ThePeople’sParliament”ProgramRadioOneFM90;“Mambo Bado” CBS Radio 89.2FM on Saturday afternoon. See also Interview with police officer at Kiira RoadPoliceStationonconditionofanonymity.
347TheseviewsarealsosharedbyDr.MiriaMatembe347whoalsostatesthatinadditiontomoraldecadence,corruptionisalsostatedriven.SeealsoYasiinMugerwa,‘DistrictsTopIGGlistofshame’,TheDailyMonitor;2ndDecember2007availableathttp://www.monitor.co.ug/artman/publish/sun_news/Districts_top_IGG_list_of_shame.shtml.
348NicholasSengoba,‘NSSFlandsaga;onesmallroominthegianthouseofcorruption’,TheDailyMonitor,availableathttp://www.monitor.co.ug/artman/publish/opinions/NSSF_land_saga_one_small_room_in_the_giant_house_of_corruption_71219.shtml.
349NsabaButuro,supra.350NicholasSengoba,‘WhyTheNewAnti-CorruptionLawWillBeJustAnotherComedy’,TheDailyMonitor,
18th March 2008 available at http://www.monitor.co.ug/artman/publish/opinions/Why_the_new_anti-corruption_law_will_be_just_another_comedy.shtml.
351SeecommentsbyMinisterofEthicsandIntegrity,Dr.NsabaButuroappearingon‘OntheSpot’programmeofNationTelevision,25thSeptember2008.
352SeeWBSTV‘IssuesatHand’ProgrammehostedbyPeterKibazo;TheEkimeeza-People’sParliamentairedliveonRadioOne90FMfromClubObligattoandMamboBaddoonRadioCBS89.2FMairedonSaturdayafternoons. 44
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rotten to the core and the moral thermometer has fallen below freezing point.”353 PresidentMuseveniconfirmedthiswhenhestated;“The public should know that when there are no givers there will be no takers. If the public does not agree to give bribes, no body will receive bribes.”354Hethenadmitsthatthereisaneedforpeoplewhoareconvincedandtrainedaboutchange,tobeabletoleadthestruggleagainstcorruption.355 Thisisprobablybecauseof thehighlevelsof povertyinthecountry.However,thiscannotbeablankchequeforcorruptionandespeciallyforpoliticalcorruption.
Whereasmanyinstitutionswherebuiltandcreatedtofightcorruption,peoplewereignoredandnotsensitizedabouttheillsof corruption,neitherweretheyeducatedonwhycorruptionshouldbefoughtatanindividuallevelfirst,andlateratthenationallevel.356ThechallengewasputforthbyMatthewHennesseywhohassaid“With this bribe-paying and bribe-taking going on, it’s fair to ask: Is anyone doing the right thing by refusing to take part?”357Thisisaquestionthatshouldbeansweredbyallof us,notjustthegovernment.Dr.Matembeputsthechallengetoleadersbystating“… if you steal whilst carrying some one on your back, your are teaching them how to steal…”358
AccordingtoHenryMuguzi—spokespersonfortheAntiCorruptionCoalitionUganda(ACCU)—thesituationismadeworsebythepublic’stoleranceof it.359Muguziarguethat“The corrupt are still regarded in high esteem, even in churches and mosques because they are the ones who can make huge offerings.’’360 This isconfirmedby thegeneraldeviationordepreciation in themoral order probably becauseof influences exertedby diversecircumstancesof themodernenvironment,whichincludethemedia,wars,migration,andothers,whichinfluencesocial lifeandinspirebehaviouralchangeinmostcasesfortheworse.361Inmanycases,politicalleaderswhohavebeenfoundresponsibleforelectoralfraudhavebeenallowedtostandforpublicofficeagainwithoutanysortof repercussion,rebukeorpunishmentandtheirfollowershavegoneaheadtocarrythemshoulderhighandapplaudthemforthe‘‘goodjob’’theyaredoing.362Somepeoplehaveendedupadvocatingfordifferentstandardsof thelawespeciallywhendealing
353SeeOmonaJuliusPhillip,‘MoralDecayinToday’sWorldinlightofHumanRights’,TheExaminerIssue12006quotedinTheDailyMonitor;30thMarch2006.
354See‘MuseveniHailsAnti-CorruptionCrusade’inTheMobiliserVol.1No.Vat.28.355Idat28.356Id.357See Matthew Hennessey ‘Kicking BackAgainst Corruption’ available at http://www.policyinnovations.
org/ideas/briefings/data/corruption.358KinyankoreproverbquotedbyHon.Dr.MiriaMatembedebatingontheK-FM(93.3FM)RadioHardTalk
Showon14thJanuary2008at7pm.359SeeforexamplethevariouscommentsanddiversionaryissuesmadeabouttheNSSF-Temangalolandsaga
whichhaveresurrectedtribalsentiments,religioussentimentsandlobbyingonpoliticalpartylines.SeeCyprianMusoke,‘NRMchiefsdebatesNSSFTemangaloland’,TheNewVisionTuesday,9thSeptember,2008availableathttp://www.newvision.co.ug/D/8/13/648832;SeealsoKaroroOkurut,‘Guiltyornot,Mbabazihasarighttobeheard’,TheNewVision;1stSeptember2008availableathttp://www.newvision.co.ug/D/8/20/647462
360SeeSalimR.Biryetega:‘Reporter’sNotebook:Uganda’August29thAugust2007.Availableathttp://www.globalintegrity.org/ reports/2006/pdfs/uganda.pdf and http://www.globalintegrity.org/reports/2006/uganda/notebook.cfm.
361Id.362SeeKizzaBesigyev.Y.KMuseveniandElectoralCommission,ElectionPetitionNo.1of2006.Forfurther
readingseegenerallyBuriAlexander2003.
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withpoliticalleaders.Forexample,Hon.Capt.Mukula’slawyersarequotedassaying“…as a political leader,hewasundeservedlyhoundedoutof hishomeasif hewasarunawaycriminalwhoseguilthadbeenpredetermined.”363ThisshowsthatpeopleexpectpoliticianstobetreateddifferentlyascomparedtoordinarycitizenswhichiscontrarytotheContitution.
Indeed,insomesituationscorruptionisviewedasaneverydayaffairandisnolongerconsideredwrongorillegal.364WhereassuchbehaviourisprohibitedbySection21of thePreventionof CorruptionActCap121,itisimpossibletogetajobdonewithouthaving topay some chai or kitu kidogo for it.Thismakes it impossible to competefavourablyintheopenmarketsincethereisalotof corruptioninitsvariousforms.365 Somehavegoneaheadtosuggestthatcorruptionremainsoneof themainreasonsthatcapitalismcannottakerootinAfrica,giventhatitcanmakeitsimplytooexpensivetostartabusiness,orinmanycases,tokeepasmallonerunning.366ThisisconfirmedbytheformerIGGJothamTumwesigyewhostatesthatthemoralfibreof thesocietyhasindeedcollapsedanditisaveryhardjobtofightcorruptioninsuchcircumstances.367 Tumwesigyefurtherstatesthatthemostdisturbingcaseisof leaderswhogetmillionsof shillingsinkickbacksthroughtheawardof tendersandcontractsorthroughtaxevasion.368
Interestingly,thesamepeopleexpecttheIGGandthegovernmentgenerallytoclampdownonsuchcorruptofficialsandfeelgreatlyletdownwhennothingisdone,thusputtingtheInspectoratebetweenarockandahardplace.369Thechallengeisfurtherrealisedbythefactthatthosewhoareinkeyofficesandarerequiredtofightcorruptionareeitherincapableof doingso,ordonothavethemoralfibretodoso.370ThisviewissupportedbyformerministerMiriaMatembewhostatesthatshehasundergoneandcontinuestoundergoalotof criticismforstandingupagainstthepoliticallycorruptandcitesthisasoneof thereasonsshewasdroppedfromCabinet.371
3.3.7 Institutional Challenges at The Inspectorate
Asan independent institution, theIGGisalsoboggeddownwitha lotof internalchallengesthatcomplicatethefightagainstpoliticalcorruption.
363SeeMuyita,LuggyaJ.,MukisaL.&KibuukaS.,‘MukulasenttoLuzira,Muhwezisurvivesarrest‘,TheDailyMonitor;23rdMay2007availableathttp://www.monitor.co.ug/news/news05231.php.
364InterviewwithlawstudentonconditionofanonymitywhoisworkingwithaverykeygovernmentdepartmentNovember2007.
365Seeforexamplehttp://www.answers.com/topic/political-corruption.366SeeJackandSuzyWelch,‘IsCorruptionaCostofDoingBusiness?’TheDailyMonitorDecember19-25,
2006availableathttp://www.monitor.co.ug/bizpower/bp12197.php.SeealsoBaker,2005.367Interviewconductedonthe23rdofAugust2007.368SeegenerallyTumwesigye,2005.369Id.370SeeforexampletheformerMinisterofHealthJimMuhweziwhowasformerlycensuredbyparliament,found
politicallyliablebytheGlobalFundCommissionandtheCabinetwhitepaper,foundliablebytheIGGintheGAVIfundscandalaswellasthenationaldrugAuthorityinquiries.
371BySsemujjuIbrahimNganda,‘WhyMuseveni’sGettingToughOnCorruption’TheWeeklyObserver;21stJune2007availableathttp://www.ugandaobserver.com/new/archives/2007arch/news/jun/news200706211.php.
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3.3.7.1 Case ProsecutionTheprosecutionof casesinthecourtsof lawisaverychallengingjob.Accordingtoaformerprosecutor,white-collarcrimehasnopapertrail,thusmakingitverydifficulttoprove.372Inthepublicservice,corruptionisaninterdepartmentalaffairandthusalmostimpossibletotrace.373Furthermore,accordingtotheformerIGG,Mr.Tumwesigyeduetothefactthattheinvestigatorsarehardlytrainedinmoderninvestigationskills,theworkof theinspectorateismademoredifficult.374Thismeansthatworkwillbeslowandassuchgovernmentworkwillbestalledand thus frustratinggovernmentbusiness.Inarecentinterview,thelocalgovernmentMinistercommentedaboutthestalledNaguruhousingprojectasfollows;
We thought the matter would be sorted out in two to three months. This would be reasonable time to investigate any outstanding issue but now it is seven months. This is beyond the boundaries of a reasonable period to sort out this matter. Now it is no longer an investigation, it is obstruction. And if the investor-having signed an agreement with government, having gone through an international tendering process-decides to go to court, the penalty would be heavy for government and I do not think Parliament and the electorate would be amused. Surely what is there within the agreement that would take the IGG seven months to sort out? 375
TheaboveclearlystateshowtheinadequacyattheInspectoratedoeshampergovernmentbusiness.
3.3.7.2 Lack of Training FacilitiesAsmentionedabove,thedelayindeliveringresultsismetwithanevengreaterchallengeof lackof specialisttrainingfortheIGGpersonnel.Accordingtooneof theofficersattheIGG’sofficewhospokeonconditionof anonymity,therearenoin-housetrainingsattheInspectorate,whichmakesithardtohaveuptodateinvestigationandlitigationskills.376Furthermore,thereareinadequatetransportationandcommunicationservicesespeciallyairtimetofollowuptheinvestigationswiththevariousofficers,coupledwiththetensionscreatedbytheestablishmentof thenewDirectorateof CivilLitigationwithintheInspectoratewhiletheDepartmentof Legalaffairsisstillinexistence.377
Theneedtostrengthenthe inspectoratebothfinanciallyand legallycannotbeoveremphasised.378Byfailingtodoso,thestatefrustratestheworkof theIGGandleavesitasalameduck.379FormerIGGJothamTumwesigyestatedthathealwaysappealedto
372Interviewcarriedoutontheconditionofanonymity.373CommentsmadebyanemployeeoftheIGGwhospokeonconditionofanonymity.374Interviewcarriedoutonthe27thofAugust2007.375 Edris Kiggundu, ‘Otafiire Appeals To Museveni Over IGG’, The Weekly Observer; 3rd July 2008 available
athttp://www.observer.ug/index.php?option=com_content&view=article&id=407:edris-kiggundu&catid=34:news&Itemid=59.
376Informationdeliveredonconditionofanonymityforfearofreprisals.377Interviews carried out with some officers of the inspectorate of government who spoke on condition of
anonymity.378“CommentbyEthicsMinisterDr.NsabaButuro,onHotSeat93.3KFM5thOctober,2008379Seehttp://www.ugandaobserver.com/new/features/interview/int2007040121.php.
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thegovernmenttostrengthentheinstitutionfinancially;unfortunatelythisdidnothappenduringhistenure.Severaldonorstriedtohelpout,butnotthegovernment,whichonlymetrecurrentexpenditure,butnotforthedevelopmentoftheinstitution.Tohim,thegovernmentnotonlyfailedtostrengthentheIGG’soffice,butitalsofailedtoenhancethecapacityofotherimportantinstitutionssuchastheofficeoftheAuditorGeneralandtheJudiciary,allofwhicharekeyinstitutionsinthefightagainstcorruption.ThisisalsoconfirmedbyDr.NsabaButurowhenhenotesthat“(there is) limited capacity of the anti-corruption agencies - IGG and DPP- and the challenge is increasing that capacity”380
Therefore,inorderforthefightagainstcorruptiontobewon,thecapacityof institutionsshouldbeimproved.
3.3.7.3 Need For Financial Assistance
Mostof thebi-annualreportsof theIGGtoParliamentunderlinethelackof adequatefundingasamajorchallengetotheeffectiveoperationof theoffice.381WattandWilliamsreportthataccordingtoTransparencyInternational,Governmentcurrentlyallocatesonly1.1percentof itsbudgettoaccountabilityinstitutions,whichisclearlyinadequateforthetasksof anticorruptionagenciesandmightbeinterpretedasalackof politicalsupportfortheeffectiveenforcementof anti-corruptionmeasuresinUganda.382
TheIGGlacksadequateresourcestocarryouthisorherfunctionseffectively.383Asnotedearlier,inadequateresourcesmeanalackof equipment,transportfacilities,andoperationalfunds.Thishasalsoledtopoorstaff remuneration,whichmakesitdifficulttoattractexperiencedprosecutorsandotherprofessionalstaff.Theremunerationisalsoinadequate.Assuch,inasituationwhereaprosecutorispaidUg.Shs.300,000/=andisrequiredtoprosecutesomeonewhohasstolenUg.Shs500,000,000/=,itisverylikely that suchprosecutorwillbecompromisedwithapromiseof moremoney.384 Evenwhenitappearsthattheofficehasadequatestaff,theylackpropertrainingandfacilitation.ItcanbecontendedthatthissuchinactionfromthestateisunconstitutionalsinceitplacesadutyupontheStatetoensurethattheInspectoratehasadequateandqualifiedstaff inordertocarryoutitsfunctionseffectivelyandefficiently.385
WhereasdonorssuchasDANIDA,DFID,andUNDPcontinuetoprovidesupporttoruntheinstitution’sprograms,thegaplefttoenabletheinstitutiontoperformoptimallyisstilltoobig.Despiteperformingatsub-optimallevel,thepublicneverthelessbelievesthattheIGG’sinstitutionisimportantandshouldbegivenmorefinancialandpoliticalsupport.386
380NsabaButuro,supra.381SeeIGGReporttoParliamentJanuary-June2006at103.382SeeWattAlanDoig,David&WilliamsRobert2005at74.383InterviewwiththeDeputyIGGHon.RaphaelBakuconductedonthe29thofAugust2007.384Id.385Article229(2)ofthe1995Constitution386SeeTumwesigye,2005.
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ItisthereforeencouragingtolearnthattheUgandangovernmentreceivedagrantof US$10.4millionfromthegovernmentof theUnitedStatesof AmericaundertheUnitedStatesMillenniumChallengeAccount(MCA).387AccordingtoMargotEllis,theUgandaMissiondirectorfortheUnitedStatesAgencyforInternationalDevelopment(USAID),thefundingwillgointoproviding“extensivetraining,technicalassistanceandmentoringtovariousgovernmentanti-corruptionagencies”.theInspectorateof Government,thePublicProcurementandDisposalof AssetsAuthority, theOfficeof theAuditorGeneral,thefraudsquadof CriminalInvestigationDepartmentof theUgandaPoliceandtheDirectorof PublicProsecutions.388MCAisaUSgovernmentfunddesignedtoworkwithpoorcountriestoimprovegovernancebystrengtheninganti-corruptionagenciesinabidtostrengthentheinvestigation,documentation,andprosecutionof corruptioncases.389
3.3.7.4 House Divided Against Itself
Probablythemosttragicchallengeof allisthefactthattheInspectorateof Governmentisahousedividedagainstitself.390ThissituationwasrevealedmoststarklybytherecentstatementsmadebytheIGGJusticeFaithMwondhainarecordedinterviewbroadcastduringtheAugust282008editionof Spectrum—atalkshowonRadioOneFM90.Inthatinterview,JusticeMwondhaallegedthatdeputyIGGRaphaelBakuwasconnivingwithmembersof parliamentandotherpeoplesuchasPrimeMinisterApolloNsibambitotainthernameandthusensureherexit.391
In a rebuttal to the accusation,392 Baku revealed that the cause of the problem isbecausethetwoworkindependentlyandheisnotsupposedtoreporttoherasdeputyIGG.Hewentontonotethatthey“haveadoptedaworkingstylesothatonematterisundermysupervision.Isupervisetheinvestigations—andshedoesherpart…Ourworkisdividedaccordingtotheindividualcasesweareworkingon.”ThissituationisconfirmedbyanearlierinterviewinwhichBakuconfirmedthatinvestigationswerebeingcarriedoutregardingtheallegedembezzlementof GAVI(GlobalAllianceforVaccinesandImmunization)FundsbytheformerjuniorHealthMinisterMikeMukula.Hehowevernotedthathewasnotinchargeof theinvestigationandthatthematterwasbeingdirectlysupervisedbyJusticeMwondha.393
387 See Angelo Izama, ‘Billions earmarked for fight against corruption’ The Daily Monitor; 23rd May 2007 http://www.monitor.co.ug/news/news05234.php
388Id.389Id.390RodneyMuhumuza&RichardWanambwa,‘DeputyIGGattacksMwondha’,TheDailyMonitorhttp://www.
monitor.co.ug/artman/publish/news/Deputy_IGG_attacks_Mwondha_71416.shtml391Id.whereJusticeMwondhaisquotedassaying“IknowthattherearesomemembersofParliamentconniving
with my officers here, including the deputy Inspector General of Government and the officers whom I sent awaybecauseofcorruption,totaintmynameandtomakesurethatthePresidentremovesme”.
392Id.Heisquotedashavingsaidthat“IwasverysurprisedtolistenonradiothattheIGGisaccusingmeofconnivingwithMPsandpeoplewhohavebeendismissedfromtheInspectorateofGovernmenttoensurethatthePresidentremovesherfromthejob.Certainly,thatisfalse,andIthinkitwasirresponsibleofhertomakesuchastatementinpublic,”supra.,note264.
393AlfredWasike&JudeEtyang,‘Uganda’sHealthMinistry’sWoes;Mukulagrilledinnewprobe’,TheNewVision;22ndJune,2006http://protectafrica.wordpress.com/about/ugandas-health-ministrys-woes/.
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Thesecommentsarenotsurprisingbecauseanumberof peopleinterviewedforthisstudycommentedabouttheabrasivenessof thecurrentIGGinherlineof work.394 Examplesof thisallegedabrasivenessincludethesurprisingsackingsof manyemployeesattheInspectorate,395thearrestandblatantpersecutionof journalistswhowroteabouthersalarystructure,396andtherefusaltoappearbeforetheParliamentarycommitteeonlegalaffairs.397Thisattitudehasindeedcausedanumberof conflictsinwhichmanyhave found itdifficult to separate thepersonalityof the IGGfromthe institution.However,thishasbeencomplicatedbyhecklingfromsomewellplacedindividuals,398 andyetsomehavenotedpositivelythatwhereas“theremaybesomeedginessaboutherconductof publicaffairs,…shehasre-invigoratedtheofficeof IGG.”399
Theaboveclearlyrevealsasorrystateof affairs;notonlyistheIGGhousedividedagainstitself butitisclearlydifficulttoworkinsituationswhereoneisfounddifficulttohaveadisagreeablecharacter.400 Thisisunfortunateinafightthatneedsunityof purpose,acomityof ideasandsufficientresources.Insuchasituation,theInspectoratestandsatahugedisadvantagewhichimpactsnegativelyonthepublicandthemandatethattheInspectoratehastoaccomplish.
394TheseincludedpersonnelwhoareeitherformerlyemployedorcurrentlyemployedbytheInspectorateofGovernment.Theyhoweverspokeonconditionofanonymityforfearofreprisals.OthersimilarviewswereexpressedbypersonnelwhohaveinteractedwiththeInspectorateeitherasmembersofotheranti-corruptionagencies,orrelatedagenciesliketheAttorneyGeneral’sChambers.
395As confirmed in her remarks. See supra, note 324.396MosesSserwanga,‘IGG;WhyCrucifyTheMessenger?’TheDailyMonitor;5thFebruary2008.http://www.
monitor.co.ug/artman/pub lish/moses_s/igg_why_crucify_the_messenger.shtml; see alsoTabu Butagira,SolomonMuyita&EphraimKasozi,‘MoreMonitorEditorsChargedOverIGGStory”TheDailyMonitor;30th January 2008 available at http://www.monitor.co.ug/art man/publish/news/more _monitor_editors_charged_over_igg_story.shtml;SolomonMuyita‘IGGSalaryScandal:5thjournalistsummoned’TheDailyMonitor,29thJanuary2008availableathttp://www.monitor.co.ug/artman/publish/news/igg_salary_scandal_5th_journalist_summoned.shtml.
397SeecommentsinparliamentmadebythePrimeMinisterandvariousmembersoftheparliamentaswellascommentsbyHon.StevenTashobyainRodneyMuhumuza&RichardWanambwa,‘DeputyIGGattacksMwondha’TheDailyMonitor;18thSeptember2008.Availableathttp://www.monitor.co.ug/artman/publish/news/Deputy_IGG_attacks_Mwondha_71416.shtml.ThesecommentswererepeatedbyTashobyaandothermembersofthelegalandparliamentaryaffairscommitteeaswellasmembersofthepubliconvariousRadiotalkshowslikeSpectrumonRadioOneFM90.
398See Chris Obore, ‘IGG Mwondha acting like school girl, says Gen. Otafiire’, The Daily Monitor; 13th July 2008.Availableathttp://www.monitor.co.ug/artman/publish/sun_news/IGG_Mwondha_acting_like_school_girl_says_Gen_Otafiire_printer.shtml.
399KaroliSsemogerere,‘Mwondha,Museveni,Muhwezi:WhencetheIGG?’TheDailyMonitor;17thMay2007availableathttp://www.monitor.co.ug/oped/oped05172.php.
400See comments by Local Government Minister Otafiire in Fortunate Ahimbisibwe, ‘Otafiire blasts IGG over NaguruEstate’,TheNewVision;availableathttp://www.newvision.co.ug/D/8/12/63558.
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iV: COnCLusiOn and MaJOr reCOMMendatiOns
ThispaperhasdemonstratedthattheIGGhasawidemandate inthefightagainstpolitical corruption,while at the same timeactingas thenationalombudsmanandenforcerof theleadershipcodeof conduct.However,thisfightagainstcorruptionhastobeamulti-prongedapproachsincecorruption,andspecificallypoliticalcorruption,comesinallshapesandforms.AsnotedbyTanzi,“…thegreatestmistakethatcanbemadeistorelyonastrategythatdependsexcessivelyonactionsinasinglearea,suchasincreasingthesalariesof thepublicsectoremployees,orincreasingpenalties,orcreatingananticorruptionoffice,andthenexpectquickresults.”401 TheIGGshouldthereforebeencouragedtoworkinconcertwithothersimilarlyequallymandatedinstitutionsinordertoachievethishugegoal.
4.1 revisiting the definition of Corruption and the Mandate of the inspectorate
Thereisanurgentneedtorevisitthedefinitionof politicalcorruption.Corruptionshouldnotonlyincludecommissionsdonebutalsothoseomissions,whichfacilitatecorruptpractices.TheLawReformCommissionandtheFirstParliamentaryCounselwho are in charge of drafting the new anti-corruption legislation should considersituationswhere corruption shall be assumed from the surrounding circumstances.Thisisbecausecorruptionissohardtoprove,yetcircumstantialevidencecouldbeusedtoguidetheinvestigatorstoinfercorruptbehaviourandpractice.402 Membersof Parliamentshouldnothesitatetosupporttheseofficesandthatof theIGGbygivingpriorityamendingthelawsthatareaimedatfightingcorruption.403
Themandateof theInspectorateneedstobesplitupandsomerolestakenupbyotheragencies.404 Inordertohavemoreefficientresults,workingasanOmbudsmanandenforcerof theLeadershipcode,inadditiontothedauntingtaskof fightingcorruptionistoomuchworkandisboundtohaveseriouslapsesinlightof thefactthattheInspectorateisoverwhelmedwithalotof workbuthavinginsufficientfundingandresources.405TheIGG’sdutiesshouldthereforebesplitinordertomaximiseefficiency.406ThisisthecaseinTanzaniawherethethreefunctionsarecarriedoutbyaseparateAnti-CorruptionUnit,anEthicsCommissionandtheOmbudsman.407InUganda,theOmbudsmanroleshouldbetakenoverbytheDirectorateof EthicsandIntegrityandthetribunalthatshouldbeestablishedbyArticle235AcanconcentrateonenforcingtheleadershipcodewhiletheIGGfocussesonthefightagainstcorruption. 408
401SeeTanzi,op.cit.at587.402 Supra note 323. See Uganda: ‘Leave Corruption Fight to My Office, Says IGG Mwondha’, The New Vision
15thSeptember2008Availableathttp://allafrica.com/stories/200809050350.html403AngeloIzama,‘Uganda:Graft-theIGGMustCarryOnRelentlessly’,TheDailyMonitor;12thJune2007.404SeeWattAlanDoig,David&WilliamsRobertMay,2005at73.405Interviewedonthe29thofAugust2007.406See Alfred Nyongesa Wandera, ‘Leave Corruption Fight to My Office, Says IGG Mwondha’, The Daily
Monitor;5thSeptember2008availableathttp://allafrica.com/stories/200809050350.html.407SuggestionbyMrJothamTumwesigyeformerIGG.408Seealsohttp://allafrica.com/stories/200809050350.htm.
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Inmostsituations,theIGGhasinsistedthatasanindependentinstitution,itisnotanswerabletoanybody.409 TheIGGshouldhoweveralsobeanswerabletoanotherwatchdogandthis iswhyArticle235AcreatedaLeadershipCodeTribunalwhosedecisionswouldbebindingontheauthority(IGG)thatissupposedtoenforcethecode.410 However,thishascausedmanyclasheswithotherinstitutionsthatarealsofightingcorruption411 TheIGGshouldthereforestrivetoworkwithotherinstitutionsinsteadof shootingitself inthefootbyrefusingtoworkwithotherssincecorruptionisanamoebathatneedstheinputof allstakeholders.
The IGG should be given facilitation to train its staff, purchasemore vehicles,computersandotherhi-techequipmenttoenableitmeetthechallengesof cyber-basedcorruptpractices.Indeed,allthestakeholdersinvolvedinthefightagainstcorruptionshouldsupporttheInspectorate’swork.412 TheIGGshouldalsoimproveitsworkingrelationshipswiththerestof thegovernmentandotherministriesandinstitutionssothatitcangetasmuchsupportaspossibleinthefightagainstcorruption.Thearrestandthreatstoarrestofficersof otherinstitutionsliketheSolicitorGeneralshouldbeavoided. Instead,amorediplomaticapproachaimedatestablishingbetterworkingrelationshipsshouldbeencouragedasmuchaspossible.
Thosemembersof thepublicwhoareauthoringfalsedocuments413 asawayof tryingtoremovetheIGGfromofficeshoulddesistfromdoingso.ThisisbecausetheInspectorateisthelastresortinthefightagainstpoliticalcorruptionandabuseof office.414 ‘Therefore,boththegovernmentandtheoppositionmustshowstronganti-corruptioncommitment. TheMPsshouldnotplayJudas(traitors)inthefightagainstcorruption.TheIGGshouldbeinsulatedfrompoliticalinterference.’415
4.2. the role of academia and the Media
Academiclawyers,inconcertwithallotherprofessionals,haveaspecialroletoplayinthefightagainstcorruptionandspecificallypoliticalcorruption.Whereaslawyersinpracticearegenerallymoreconcernedwithwinningthecaseonhand,consequently,their
409SeeforexamplestatementbyChristineMugerwa,Head,Communications&PublicRelationsUnitofIGGentitled ‘Clarification on the Powers of the Inspectorate of Government and the Proposed Anti Corruption Court’asreactionto‘GovtToSetUpAnti-CorruptionCourt’,TheDailyMonitor;14thAugust2007at1;SeealsoLorrindaAredraru,‘GovthasnopoweroverIGG,CourtRules’TheNewVision;16thSeptember2006,at1.
410PerJothamTumwesigyeasinterviewedon23rdAugust2007.411InterviewwithamemberoftheInterAgencyForumagainstCorruptionconductedon24thAugust2007.412 See http://www.freedomhouse.org/template.cfm?page=140&edition=1&ccrcountry=64§ion=48&ccrp
age=5accessedon24thJune2007.InKenya,JusticeAaronRingeraispaidabout$20,000amonth,whilehere, Justice Mwondha is paid $2500 a month. See Karoli Semwogerere “Mwondha vs Muhwezi, Right fight wronglocation”TheDailyMonitor,November15th,2007.
413SeeFelixOsike,‘ReportImplicatingIGGMwondhaFake’,TheSundayVision;25thAugust2007,avialabeat http://www.sundayvision.co.ug/detail.php ?mainNewsCategoryId=7&newsCategoryId=123&newsId=583219.
414SeeBetiOliveKamya, ‘Thecountryneeds redemption’TheDailyMonitor;23rdJuly2007availableathttp://www.monitor.co.ug/oped/oped07232.php.
415Editorial,‘Don’tFightTheInspectorGeneralOfGovt’,TheNewVision;26thAugust,2007availableathttp://www.newvision.co.ug/D/8/14/583342.
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professionalfocustendstorestonfindingandknowingthelawasitis,academiclawyerscanbemoreconcernedwithwhatthelawshouldbe.416Academiclawyersarebetterplacedto‘‘…engage the flaws and merits of judicial opinions in a more rarified atmosphere without jeopardising the interests of the client.’’417Theroleof theacademiclawyerandespeciallytheconstitutionalscholaristo‘renderbothasecondopinionof sortsonwhatthecourtshavealreadydecidedandanadvisoryopiniononwhattheymayyetdecideinthefuture’.418Thiscantaketheformof publicinterestlitigation,writingcritiquestojudgementsandstatepolicyinvariousprintmediaandjournalsandgettinginvolvedinhelpingthelawreformcommissiondraftbetterlawsbymakingtheirresearchavailabletothem.
TheRole of theMedia should also be encouraged to courageously expose thosewhoengage in corruptionof all forms, likebreachingprocurementproceduresorundulyinfluencingdecisionsof publicofficersamongothers.However,mediashouldensurethatitisnotintimidatedbutlaysdownthetruthwithoutundueinfluenceorintimidation.419TheMediashouldnotbeintimidatedbythegovernmentortheIGGandneithershouldthepublicrefrainfromassistingthemediaindisclosingcorruption.Attemptstoclampdownonthemediashouldbeavoidedanddiscouraged.420
4.3 government
TheEnglishsaying“…tohewhommuchisgiven,muchisexpected...,”appliesinitstotalitytotheGovernment.Thestartingpointshouldbeaclearpolicyof equitableresourcedistribution.421
Alotof supportshouldbeshownbythegovernmentespeciallywithregardtohelpingtheIGGaccesspublicrecordsforinvestigation,arrestingsuspects,andprovidingthefacilitation for these activities.Equally, the constantbickeringbypoliticians againstthemodus operandi of theIGGshouldbediscouraged.Weneedtohearmorepositivestatementsinsteadof criticismof theworkof theIGG.If not,thenthereisnowaythepublicwill know that the leadershipof this country is in supportof theworkof the inspectorate. AsnotedbyTanzi, (thereneedstobe)“…honestandvisiblecommitmentbytheleadershiptothefightagainstcorruption,forwhichtheleadershipmustshowzerotolerance.”422 Governmentshouldalsoreviewtheroleof theanti-corruptionagencieswithaviewtostrengtheningthem.Therearetoomanyandthecentralquestioniswhetherthemultiplicityof institutionsisafacilitatororahindrance
416SeeKwasiPrempeh2006.417Id.418Id.,at33.419See‘UKenvoy’sspeechonKenyanCorruption’,BritishBroadcastingCorporation(BBC)News2006available
at<http://newsvote.bbc.co.uk/mpapps/pagetools/print/news.bbc.co.uk/2/hi/africa/3893625.stm.420See‘‘FinancenoProbingIGG,saysSuruma’’,TheNewVision;22ndAugust2007alsoavailableathttp://
allafrica.com/stories/200708230004.html.421See Ssebuliba Mutumba, ‘Land Act: Why is Buganda breathing fire on changes?” The Daily Monitor; 13th
November2007.422SeeNandalaMafabi,‘$55bnwastedin22years’,TheDailyMonitor;6thFebruary2008availableathttp://
www.monitor.co.ug/artman/ publish/inside_politics/55bn_wasted_in_22_years.shtml; See also Editorial,GovtShouldStopGraft,Wastage’,TheDailyMonitor;7thFebruary2008availableathttp://www.monitor.co.ug/artman/publish/opinions/govt_should_stop_graft_wastage.shtml.
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inthefightagainstcorruption.Currently,theyaretoomany423 andpoorlyresourcedtohaveanymeaningfulimpactinthefightagainstcorruption.
TheDirectorateof EthicsandIntegritywasestablishedtoamongotherthings“…co-ordinateanti-corruptionagencies.”Whereasthecreationof thisDirectoratewasanobleidea,itisproposedthatinordertoavoidpoliticalcompromise,suchdirectorateshouldnotbeheadedbyanelectedpolitician.424 Thisisbecausemostdecisionsbypoliticiansarenormallymadeasstrategiesforthenextcampaignandnotnecessarilyhavingthefightagainstcorruptionasapriority.425
Additionally,governmentdepartments,ministriesandparastatalsshouldbeencouragedtofollowthecorrectproceduresinordertoavoidthe-everincreasinginterferencebytheIGGinsituationswhereprocedureshavenotbeenfollowed.426 Thisismostcommonwithtenderingandotherprocurementprocesses.Furthermore,Publicofficialsshouldbe encouraged towork ethicallybybeing rewarded forhonestbehaviour, but theyalsoshouldbesubjectedtostringentpenaltiesincasetheybreachthemoralcodeof conduct.Similarly,theyshouldbeabletostepasideincasetheyareincompetentorwhenaccusedof corruptpractices427inordertoenabletheinvestigationprocesstotakeplacewithouthindrance.428Theseofficerscantheneitherbereinstatedorawardeddamagesincasetheyarefoundinnocentorincasetheyareaggrieved.429However,if theyinsistonstayinginoffice,anysuccessintheirlegalchallengeswillforeverbetaintedbytheirregularitydescribed.430 Finally,itisquiteclearthatinordertooperateeffectively,theIGG’sofficeshouldbegivenmorepoliticalandfinancialsupport.431
Sincethemostperversepoliticalcorruptiontakesplacewithrespecttotheprocurementof goodsandservices,withbillionsof shillingslosteveryyear,rulesforthebehaviourof internationalcorporationsshouldbemademorestringent.AnInternationalAnti-
423TheseincludetheDirectorateofEthicsandIntegrity,theMinistryofPublicServiceInspectoratedivision,theMinistryofPublicServiceInspectoratedivision,theLocalGovernmentFinanceCommittee,allministerialserviceCommissions,TheAuditorGeneral,theAccountantGeneral,theJusticeLawandOrderSector.
424Ibid.425InterviewwithamemberofparliamentrepresentingtherulingNRMpartyspeakingonconditionofanonymity.
SeealsocommentsbyAngeloIzamaandCharlesMwagushyaon“TheHotSeat”93.3KFMRadiotalkshowonOctober5,2008.
426Edris Kiggundu, ‘Otafiire appeals to Museveni over IGG’, The Weekly Observer; 3rd July 2008 available at http://www.observer.ug/index. php?option=com_content&view=article&id=407:edris-kiggundu&catid=34:news&Itemid=59.
427David F. K. Mpanga, ’There is a glaring conflict of interest in Tibaruha’s case!’ The New Vision; 25th June 2007.availableathttp://www.newvision.co.ug/D/8/21/572497,SeeDetailsofTibaruha,MatsikoSuspensionavailableathttp://www.tmcnet.com/usubmit/2007/06/18/2720339.htmaccessed18thJune2007.
428See Elias Biryabarema, ‘Anti- Corruption Coordinator wants NSSF, Minister Mbabazi Investigated’,TheDaily Monitor; 15thAugust 2008. available at http://www.monitor.co.ug/artman/publish/news/anti-corruption_coordinator_wants_nssf_minister_mbabazi_investigated_69878.shtml.LydiaMukisa&HusseinBogere, ‘Tibaruha blocks Museveni axe bid’,The Daily Monitor available at http://www.monitor.co.ug/news/news06212.php.
429“forexampleformerDirectorofCivilLitigationMr.CheborionBarishakihassincebeenclearedofanywrong doing and asked to return to office”.
430 See David F. K. Mpanga, ‘There is a glaring conflict of interest in Tibaruha’s case!’, The New Vision; 25th June2007.Availableathttp://www.newvision.co.ug/D/8/21/572497.
431See Paul Busharizi and Ells De Temmerman, ‘Sh120b more to fight Corruption’, The Sunday Vision; 24th June2007.availableathttp://www.sundayvision.co.ug/detail.php?mainNewsCategoryId=7&newsCategoryId=123&newsId=570896.
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CorruptionTribunalshouldalsobeestablishedtodealwithcorruptionacrossborders.TherearealreadymovestolobbytheGlobalForumonCorruptioninTheHaguetoapprovethesuggestionthatwasmadebyCivilSocietyOrganisations.432
4.4 role of development Partners, Judiciary and Civil society
Theroleof developmentpartnersinsupportingtheworkof theIGGislaudable.433 ThereisneedformorespecialistandfinancialsupportfromourdonorpartnerstopushtheGovernmenttodomoreaboutcorruption.434 TheGovernmentshouldbeengagedfurthersothatitdoesnotdragitsfeet.435
Theroleof thecivilsocietyandreligiousorganisationsshouldnotbeunderestimatedbutrather,encouraged.Churchleadersandreligiousleadersshouldbeencouragedtopreachagainstcorruptpracticesandcivilsocietyshouldsupporteffortsmadeatthegrassrootstofightcorruption.Thegovernmentshouldalsoconsiderfundingreligiousbasedorganisationstopreachthegospelagainstcorruption.OrganisationssuchastheAntiCorruptionCoalitionof Uganda,UgandaDebtNetworkandothersshouldbeencouragedandsupportedintheircampaignagainstcorruption.
Equallyimportantistheroleof parentsandguardiansinteachingtheirchildrenaboutthedangersof corruptionandtolivebyexample.436ItisthereforelaudabletonotethattheMinisterof EthicsandIntegrityisworkingwiththeMinistryof EducationandSportstomakesurethatissuesof moralityareimbeddedinschoolcurricula.Thisiscertainlythebestwayof dealingwiththiscorruption weedbyuprootingitfromthemindsof tomorrow’sleaders.437
The newly establishedAnti Corruption division of theHighCourt needs to befacilitatedinordertoensurethatthetrialsarespeedybeforewitnessesloseinterestorareundulyinfluencedtoagainsttheprosecution.Theuseof moderninformationandcommunicationtechnologyshouldalsobeencouragedsothattrialsdonotdragonforlongperiodsduetothefactthatthejudicialofficerhastomanuallywritedowneachandeverythingthatisspokeninthecourtroom.Suchfacilitationwillgoalongwayin
432Id.433USgovernmentprovided$10.4m(aboutsh17billion)totacklecorruptionbyimprovingpublicprocurement,
audit and financial management practices, and strengthen the role of civil society in fighting graft. Uganda alsoreceives$70millionfromdonorsunderthePublicFinancialManagementprojectandoutofthismoney;about$2millioniscommittedtoParliament.Seenote129supra;SeealsoYasinMugerwa,‘Donorsscoffat govt’s anti-corruption fight’, The Daily Monitor; available at http://www.monitor.co.ug/artman/publish/news/Donors_scoff_at_govt_s_anti-corruption_fight.shtml.
434See,forexample,RisdelKasasira,‘ProsecuteGlobalFundculprits–EU’,TheDailyMonitor;18thFebruary2007availableathttp://www.monitor.co.ug/sunday/news/news02183.php;SeealsoMercyNalugo;‘FinancetohandleGlobalFundCash”TheDailyMonitor;14thMarch2007.Availableathttp://www.monitor.co.ug/news/news03149.php.
435SeeYasiin Mugerwa, ‘Donors ScoffAt Govt’sAnti-Corruption Fight’,The Daily Monitor; http://www.monitor.co.ug/artman/publish/ news/donors_scoff_at_govt_s_anti-corruption_fight.shtmlSeeAlsoEditorial,‘LetUsSeizeChanceOnTheGlobalFund’,TheDailyMonitor;3rdApril2007.Availableathttp://www.monitor.co.ug/oped/oped04031.php.
436CommentsbyMinisterofethicsandIntegrity,Dr.NsabaButuroappearingon‘OntheSpot’programmeofNationTelevision,25thSeptember2008.
437SeeNsabaButuro,supra.
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showingthatthegovernmentiscommittedtothefightagainstcorruption.Thedoctrineof tracingshouldalsobeusedtohelpthesecourtsattachingandsellingpropertiesof culpritsinordertoputthemoneybackinthepubliccoffers.Moreso,therulesof procedureandevidenceshouldbeconstantlyreviewedincorruptioncasesinlightof theuniquewayinwhichthisviceisbeingperpetrated.438
4.5 COnCLusiOn
ThereisnodoubtthattheInspectorateof Governmenthasdoneacommendablejob.Insteadof lookingattheIGGasanorganthatfrustratesitsprojects,governmentshouldinsteadviewtheIGGasapartnerindevelopmentandinthefightagainstcorruptionandparticularlypoliticalcorruption.
However,thispaperhasshownthattheworkof theIGGisfrustratedbylackof politicalwill.Thisnormallysendsconflictingmessagesaboutthegovernment’swillingnesstofightcorruptionandassuchcomplicatestheworkof theIGG.Thepaperalsonotesthatthereiswell-orchestratedpolitical influencethatseekstostalltheworkof theIGGandthisisnothelpedbytheescalatinginstancesof in-fightingamongthestateinstitutions.Thisiscoupledwithaproliferationof anti-corruptioninstitutionswhichhavenoclearmandateandyeteachareclamouringforsuperiorityinthefightagainstcorruption.MostfrustratinghoweveristhefactthattheIGGisahousedividedagainstitself whichisatime-bombabouttoexplode.ThisisinadditiontotheinadequaciesfacedbytheIGGasaninstitutionbecauseitlacksthefinancialandhumancapacitytomakeanimpactonhighlevelpoliticalcorruptioninvolvingseniorgovernmentofficials,whitecollarcorruptionorthatbasedoninformationcommunicationtechnology.439
TheIGG’sofficeshouldthereforebestrengthenedwithsupervision,investigation,andenforcementmechanisms.Inthisway,theIGG’sworkinfulfillingitsconstitutionaldutieswillbeeasier.However,notallthiswillbeachievedunlessruleof lawtakesdeeperrootsinUganda.Allthosewhotakepartindecisionmakingespeciallythepoliticalheads,andcivilservantsshouldworkhandinhandwithIGG’sofficetofightagainstabuseof office,andcorruption.440
Mostimportantly,thefightagainstcorruptionisnotfortheIGGorthegovernment; 441 itisaboutallcitizensof Ugandadevelopingasenseof responsibilitytofight,reduce,reportandabhorcorruption. 442
438As suggested by a former prosecuting Officer.439Id.440Sam K.Byamugisha, ‘Museveni should use security organs to fight graft’, The Daily Monitor; 19th May 2008.
Availableathttp://www.monitor.co.ug/artman/publish/opinions/Museveni_should_use_security_organs_to_fight_graft.shtml.
441The IGG is also quoted as advising the public this; ‘Let us fight corruption together because it is a cancer whichhaseatenthiscountry.ItisnotthejoboftheIGGalone.’SeeFelixOsike,‘IexpectaconvictioninMuhwezi,Mukulacase-IGGmwondha’,TheNewVision;2ndJune2007availableathttp://www.sundayvision.co.ug/detail.php?mainNewsCategoryId=7&newsCategoryId=130&newsId=568497.
442SeecommentsbyMinisterofethicsandIntegrity,Dr.NsabaButuroappearingon‘OntheSpot’programmeofNationTelevision,25thSeptember2008.
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aBOut tHe autHOr
daniel ronald ruhweza isanAssistantLecturerwiththeDepartmentof LawandJurisprudence,Facultyof Law,MakerereUniversityandiscurrentlytheCoordinatorof theLLMinHumanRightsandDemocratisation,aprogramrunjointlywiththeUniversitiesof Pretoria,WesternCape,Ghana,Cairo,andCameroon. He isalsoaparttimelecturerininternationallawfortheMasterof ArtsinInternationalrelationsanddiplomaticstudiesprogramof theFacultyof SocialSciences,MakerereUniversity.HerepresentstheFacultyof LawontheUgandaLawSocietyCommitteeonTrainingandProfessionalDevelopment.RuhwezahasundertakentrainingandresearchontheDeathPenalty,GoodGovernance,Constitutionalism,andpeaceandSecuritystudies.HeholdsaMasterof LawsDegreefromtheUniversityof Cambridge,aBachelorof LawsDegreefromMakerereUniversity,andaPostgraduateDiplomainLegalPracticefromtheLawDevelopmentCentre,UgandaaswellasaDiplomafromtheDepartmentof PeaceandConflictResearch,UppsalaUniversity,Sweden.HeisalsoanAdvocateof theCourtsof JudicatureinUgandaandamemberof theUgandaandEastAfricanlawSocieties.
Frustrated Or Frustrating
HURIPEC WORKING PAPER SERIES
1. Ronald Naluwairo,TheTrialsandTribulationsofRtd.Col.Dr.KizzaBesigye&22Others:ACriticalEvaluationoftheRoleoftheGeneralCourtMartialintheAdministrationofJusticeinUganda[October, 2006].
2. Isaac Bakayana,FromProtectiontoViolation?AnalyzingtheRighttoaSpeedyTrialattheUgandaHumanRightsCommission[November, 2006].
3. J. Oloka-Onyango,TheProblematiqueofEconomic,SocialandCulturalRightsinGlobalisedUganda: AConceptualReview[March, 2007].
4. John-Jean Barya, Freedom ofAssociation and Uganda’s New Labour Laws:A CriticalAnalysis ofWorkers’OrganizationalRights[April, 2007].
5. Ben Twinomugisha,ProtectionoftheRighttoHealthCareofWomenLivingwithHIV/AIDS(WLA)inUganda:TheCaseofMbararaHospital[April, 2007].
6. Henry Onoria,GuaranteeingtheRighttoAdequateHousingandShelterinUganda:TheCaseofWomenandPeoplewithDisabilities(PWDs)[May, 2007].
7. Sam B. Tindifa,LandRightsandPeace-BuildinginGuluDistrict,NorthernUganda:TowardsAnHolisticApproach[May, 2007].
8. F.W. Jjuuko & Constance Kabonesa,UniversalPrimaryEducation(U.P.E)inContemporaryUganda: RightorPrivilege?[May, 2007].
9. Godber Tumushabe,Food,NutritionandSustenanceRights:ACaseStudyofTesoSub-Region[June, 2007].
10. Phiona Muhwezi Mpanga,PlentyofWater,butScarcityStillPersists:SurveyingtheStatusoftheRighttoWaterinUganda [June, 2007].
11. Kabann Kabananukye & Dorothy Kwagala,Culture,MinoritiesandLinguisticRightsinUganda:TheCaseofTheBatwaandTheIk[June, 2007].
12. J. Oloka-Onyango,DecentralisationWithoutHumanRights?LocalGovernanceandAccesstoJusticeinPost-MovementUganda[June, 2007].
13. Laura Nyirikindi,EconomicandSocialRights,ServiceDeliveryandLocalGovernmentinUganda [July, 2007].
14. Benson Tusasirwe,EnforcingCivilandPoliticalRightsinaDecentralisedSystemofGovernance[July, 2007].
15. Rose Nakayi, DecentralisationandtheSituationofSelectedEthnicandRacialMinorities:AHumanRightsAudit[July, 2007].
16. Monica Twesiime Kirya,DecentralisationandHumanRightsinUganda:BestPracticesForLocalCouncils[July, 2007].
17. Ronald Naluwairo & Isaac Bakayana,Buganda’sQuestforFederoandTheRighttoSelf-Determination:AReassessment[August, 2007].
18. Henry Odimbe Ojambo, Reflections on Freedom of Expression in Uganda’s Fledgling Democracy: Sedition,“Pornography”andHateSpeech.[February, 2008].
19. Christopher Mbazira, DemocracyandGoodGovernance:AnAssessmentoftheFindingsofUganda’sCountrySelf-AssessmentReportundertheAfricanPeerReviewMechanism [October, 2008].
20. Daniel Ronald Ruhweza, FrustratedorFrustrating?TheInspectorGeneralofGovernmentandtheQuestionofPoliticalCorruptioninUganda [November, 2008].