REPORT ON UNDP CONSULTANCY TO BUILD CONSENSUS ON THE STRATEGY FOR MAINSTREAMING ETHICS AND INTEGRITY IN ALL SECTORS AND ALL INSTITUTIONS IN LOCAL GOVERNANCE IN UGANDA By: Martin Oiko Consultant
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REPORT
ON
UNDP CONSULTANCY
TO
BUILD CONSENSUS ON THE STRATEGY FOR
MAINSTREAMING ETHICS AND INTEGRITY IN ALL SECTORS AND ALL INSTITUTIONS
IN LOCAL GOVERNANCE IN UGANDA
By:
Martin Oiko Consultant
i
Table of Contents Item page no. Table of Contents................................................................................................................. i
List of Acronyms ................................................................................................................ ii
1.0 Background ............................................................................................................. 1
1.1 Terms of Reference for the Consultancy ............................................................ 1
1.2 Expected Outputs ................................................................................................ 1
1.3 Planning and Modalities ..................................................................................... 2
1.4 Participants.......................................................................................................... 3
1.5 Facilitators........................................................................................................... 3
1.6 Workshop Methodology ..................................................................................... 3
2.0 Observations and Recommendations...................................................................... 4
Annex 1: Participants Input to Strategy.......................................................................... 7
Annex 2: Third National Anti-corruption Coalition workshop. ................................... 19
Annex 3: Summary of the Strategy .............................................................................. 25
Annex 4: Workshop Time Table .................................................................................. 34
Annex 5: Attendance .................................................................................................... 35
Annex 6: Schedule of Regional Workshops................................................................. 42
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List of Acronyms
ACAO Assistant Chief Administrative Officer
ALD Aid Liaison Department
CAO Chief Administrative Officer
CBO Community Based Organisation
CFO Chief Financial Officer
CG Consultative Group (Government & Donors)
DEI Director of Ethics and Integrity
LC III Local Council Three
LC V Local Council Five
LG Local Government
NGO None Government Organisation
UNDESA United Nations Department of Economic and
Social Affairs
UNDP United Nations Development Programme
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1.0 Background
As part of the implementation of the Program of Good Governance for Poverty
Reduction, the Directorate of Ethics and Integrity is developing a strategy for integrating
ethics and integrity in all sectors and in all institutions in local governance. A UNDP
consultant from the Department of Economic and Social Affairs was contracted earlier to
draft the strategy. The first Draft of the strategy was written but required subjecting to
further consultations with stakeholders for more input, discussions and validation. A
national consultant was engaged to facilitate the consultations with local governments in
collaboration with the adviser from the United Nations Department of Economic and
Social Affairs. This report provides views and inputs contributed by the local
government leaders who participated in the exercise.
1.1 Terms of Reference for the Consultancy
The terms of reference for the assignment were to:
i. identify and contact stakeholders in local governments with whom to consult on
the draft strategy document.
ii. design and organize consultation events (meetings, seminars workshops etc).
iii. capture responses from the consultative workshops and produce reports of the
events to be submitted to the Directorate for Ethics for on ward transmission to
the consultant in New York (by E-mail as an attachment in Microsoft word) to be
used to revise the draft document.
1.2 Expected Outputs
The assignment generated the following outputs:
i. A report of responses made by participants (see annex 1).
ii. List of stakeholders invited for consultations and provision of input to the strategy
(see Annex 5).
iii. A schedule of regional workshops covering all local governments in the country
(see Annex 6).
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1.3 Planning and Modalities
In order to appreciate the requirements of the assignment, the consultant held meetings
with the UNDP Project Officer in charge of the program and the Director of Ethics and
Integrity, Office of the President. The districts were organized into five regional groups
for logistical convenience as follows:
Table 1
Regional Centre Districts
1. Kampala
Venue: Hotel Africana
Hoima, Bundibugyo, Kibale, Kiboga, Masindi, Kyenjojo,
Luwero, Nakasongola, Mpigi, Wakiso, Kayunga,
Mukono, Masaka, Masaka Municipality, Kalangala,
Kampala City council.
2. Mbarara
Venue: Lake View Hotel
Mbarara, Mbarara Municipality, Kisoro, Kabale, Kabale
Municipality, Rukungiri, Kanungu, Bundibugyo,
Ntungamo, Bushenyi, Kasese, Kamwenge, Rakai,
Sembabule, Kabarole and Fort Portal Municipality,
Kyenjojo.
3. Soroti
Venue: Eneku Village
Soroti, Soroti Municipality, Gulu, Gulu Municipality,
Kaberamaido, Katakwi, Kapchorwa, Kitgum, Kotido,
Lira, Lira Municipality, Apac, Moroto, Moroto
Municipality, Pader, Nakapiripirit and Kumi.
4. Jinja
Venue: Hotel Triangle
Bugiri, Busia, Iganga, Kamuli, Mbale, Mbale
Municipality, Sironko, Tororo, Tororo Municipality,
Pallisa and Mayuge.
5. Arua
Venue: Catholic Centre
Arua, Arua Municipality, Adjumani, Moyo, Yumbe Nebi.
Stakeholders were identified and contacted in writing and follow-ups made by telephone
and radio announcements. This was to ensure maximum participation by invited persons
or their representatives.
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1.4 Participants
Key officials of the district leadership: District Chairpersons, Resident District
Commissioners of host districts, Chief Administrative Officers, Mayors and leaders of
Divisions of host Municipalities participated in the workshops.
1.5 Facilitators
The Director, Ethics and Integrity Mr. Ashaba-Aheebwa, and the Consultant Mr. Martin
Oiko facilitated the workshops. The latter also recorded proceedings of the workshops.
An Assistant to the Director of Ethics and Integrity, Ms Bonnie Kiconco, provided
administrative and logistical support to all workshops.
1.6 Workshop Methodology
Prior to the conduct of workshops, essential parts of the draft strategy document were
summarised and bound for distribution to each participant. During the workshop
sessions, participatory methods were used to give each participant the opportunity to
make a contribution. Every participant was availed a copy of the strategy extract for
study within the group using guidelines provided below:
Review of the draft strategy to identify gaps in content.
General comments
Causes of corruption and unethical behaviour
Challenges
Recommendations
The group leaders facilitated discussions and contributions from members. Group
presentations were discussed in a plenary during which consensus was reached on what
would form input to the strategy. Each group was represented by all categories of
participants that included political leaders, administrative leaders and heads of
department.
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2.0 Observations and Recommendations
The consultant started work on 15th October instead of 1st October, 2002. This was
necessary to allow UNDP and the Directorate of Ethics and Integrity to put resources in
place for the activity.
2.1 Preparations
The Consultant worked closely with the Directorate of Ethics and Integrity (DEI) to plan
and implement the activities of the assignment. He was introduced to the Minister of
State for Ethics and Integrity, the Permanent Secretary and essential contact officials
within the Directorate. The briefing by the DEI and the UNDP officer in charge of the
programme was helpful for planning purposes and timeliness of activities. Preparations
included studying the draft strategy document and other information in the Directorate to
determine the best approach to the assignment.
2.3 Implementation
In general, the consultative process was implemented successfully; the six workshops
were held according to schedule, participant representation was above 75% in all
workshops (see Annex 5). All participants who attended the workshops had the
opportunity to make contributions. The Directorate was able to relay input to New York
in time for the lead consultant incorporate it into the draft strategy by the end of
November, 2002.
2.4 Outputs of the Assignment:
The three outputs of the assignment (indicated in Section 1.2) were successfully delivered
to the Directorate.
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2.5 Observations: The consultant observed the following:
The Local governments’ considered the issue of developing a strategy for ethics and
integrity as important and timely. The consultant noted the commitment with which
the participants engaged in discussions and the high expectations that their input will
be incorporated in the strategy.
Some causes of corruption and unethical behaviour identified by the local
governments raise a need to look more critically at the strategic objectives, activities,
outputs and indicators to effect the necessary changes.
Consultations at local government level and later discussions held at the National
Anti-corruption Coalition Workshop seemed to agree on one important aspect: the
involvement of civil society organisations and other actors in all efforts to fight
corruption. Throughout the consultative process, the consultant was inspired by the
need to have, at the onset, civil society organisations working at district, sub-county
and community level brought into the strategy.
Local government contributions to the strategy were found to be wide and varied;
this has tended to affect the outlook and logical flow of the document.
2.6 Recommendations:
In order to come up with a final document, the following should be done:
i. Review of the draft document to assess the relationship of participants’ causes of
corruption and unethical behaviour, their recommendations etc. to link them to
appropriate strategic objectives.
ii. Review of strategic objectives, outputs, activities, and indicators for streamlining
with new strategies/recommendations raised by local governments.
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iii. Review the strategy to include involvement of civil society organisations.
iv. Link the strategy to relevant institutional efforts at the central government to
ensure it does not appear to address issues at local governments in isolation.
v. When the final strategy document is circulated to the districts, stakeholders could
be introduced to it through a formal activity like one day meeting. It is important
that persons who represented the districts during the consultative process be used
to facilitate the introduction of the strategy with the assistance of a person from
the Directorate of Ethics and Integrity.
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Annex 1: Participants Input to Strategy
1.1 Identified Gaps
In group sessions, participants studied and discussed copies of extracts of the strategy and advised as follows, section by section. (Note: For Goals, Objectives, Activities, Outputs and Indicators, required action(s) from the consultant were showed in italics; where required actions are more than one in some cases- the lead consultant was advised to choose the most appropriate. Goal Rewrite as: A rebuilt and enhanced integrity, ethical behaviour and conduct in local governance systems including civil society, private sector organizations and local communities. Strategic Objectives Add: To eliminate corruption and abuse of power in the management of public and private affairs. Simplify the word synergy (proposed togetherness though not the best). Support Objectives: Objective 1: Bullet 7 add: and translate into local languages. Include in the objectives: enhance awareness of Policy makers. Support Objective 2: add – to ensure positive monitoring system. Support Objective 5: include: To have political leaders who are accountable to the people. Outputs: Output 2: add: non school programs (adults, households, churches etc.) or formal and informal education. Qualify outputs as accomplished e.g.: Systematic integration of national ethics and integrity values in the school system in place. Output 3: Local Government leadership code of conduct in place.
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Support Objective 3: Take out Local Governments. Output 4: Professional discipline instilled among professionals in central and local governments. Support Objective 4: To promote professional discipline in the Public Service as a way of discouraging unethical and add unprincipled behavior. Output 5: Professional and disciplined accountants and Auditors in the Public Service in place. Output 5: include – auditors and administrators in the public service. Support objective 6: Rewrite as: To keep the public informed and guided about the type and modalities of services they expect to receive from the public sector. Support Objective 6: (too long) To keep the public informed and guided about the Local Government plans and implementation strategies. Output 6: Rewrite as: Published client’s charters in every public service at central and local government levels. Objective 6: Rewrite: To keep the public informed and guided about the services they receive from the public sector and their obligation to local governments. Objective 2: Additional Activity: Develop relevant ethics and integrity educational materials. Indicator: Number of materials produced. Objective 3: Add: – Joint Secretariat of Uganda Local Authorities Association. Objective 4: Take stock and maintain records of professional bodies in the country and collect all their codes of ethics. Objective 5: Rewrite: Training needs assessment conducted and a comprehensive report submitted to Ministry of Finance and other relevant ministries. Indicator: Number of accounts personnel trained, examined and awarded professional certificates. Output 7: Additional Indicator: Number of integrity officers trained and sustained. Output 7: Ethics and integrity officers in each Ministry, Local Governments and other government agencies in place.
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Activities: Qualify activities as follows: identifying, selecting, recruiting, reviewing, conducting, writing etc. Consider including these activities: Involve district community leaders in conducting a study on ethics and values they
cherish. A report should provide values required at national and local service. Support Uganda Local Authorities Association and ULAAU? to integrate ethics and
integrity values in the local Governments’ leadership code in English and local languages.
Introduce a reward system to public officers thus creating champions of ethics and
integrity at national and local levels of governance. Outputs: Output (2): Does not sound like an output – sounds like a process not a product. Corrected to read: “Informal and formal education system introduced” Output 3 – to include Town Councils Output 3: corrected to “National” instead of “Local” Government Leadership Code. Output 7: Rewrite: Ethics and Integrity officers in Ministry, Local Government and Private Sector Organizations.
1.2 General comments
The following comments were made:
One strategy should be developed for central government, local government, the
Private Sector and the general community.
The community at all levels has changed its attitude towards work. Children are not
taught/allowed to work or do house chores like house cleaning. When children leave
school, they do not need to work to survive; they do unethical things like cheating
their employers or receiving handouts to survive. Children should be taught to work
hard so that they can survive by honest means when they become adults.
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The problems of unemployment (lack of gainful work) for the majority of the people
puts pressure on the few employed person to raise income to cater for needy relatives
and families – most times through unethical means.
People in employment positions who get rich quickly due to corrupt tendencies have
forced poorly paid employees to try and catch up by doing unethical things. This
tendency is self-propelling because authorities do not take any punitive measures to
punish corrupt behaviour. More and more employees are taking on corrupt means
than those who survive through honest deeds.
There is a tendency by the centre to misuse public resources in ways known to the
general public and not get punished for it while putting pressure on the unethical
ways of local governments. This is counterproductive because the fight against
corruption will be delayed by either side pointing at each other as the epidemic gets
worse and more entrenched into all sectors of the society.
Corruption is one of the many aspects of increasing moral decadency which must be
stopped if poverty is to be fought.
1.3 Causes of Corruption
Participants said that causes of corruption do not originate from local governments alone.
Corruption and unethical behaviour are caused by some members of the community, the
private sector, the centre and the local governments. The strategy should therefore
identify all possible causes of corruption in order to address them in a holistic way.
The following causes were identified:
Poor upbringing of children: One of the major causes of unethical behaviour and
later corruption is that children are not beaten or punished at school (and at home) for
doing wrong or socially unacceptable things. Cultural values in the upbringing of
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children should be emphasised at all stages of child growth to recover lost ethical
values.
Attitude: One of the basic causes of corruption in Uganda is change of attitude.
Examples include: attitude towards paying tax has changed due to political influence;
attitude towards the nation: people are no longer nationalistic; this has been
reinforced by the poor example shown by leaders in the allocation of resources and
other benefits like jobs. There is also popular public attitude of praising people who
have amassed wealth quickly by calling them hard working and successful and
undermining those who are either honest in their work or have no access to public or
other resources.
Nepotism: Appointments to public offices in key organisations or Ministries e.g.
Uganda Revenue Authority and Ministry of Finance are done to cater for relatives or
political supporters. Such persons have run public offices in openly corrupt ways and
go unpunished.
Double Standards: There are better conditions for some civil servants and poor
conditions of service for the rest. For example, “Project Permanent Secretaries”
discouraged the process of reviewing civil servants’ conditions of service because
they depend on “project salaries” in addition to their civil service incomes and
privileges.
Scarcity of resources: We cannot have ethics and integrity when resources are scarce.
Low Incomes: People who live on salary income cannot support their basic family
needs. It is not therefore possible to maintain high levels of integrity.
High Taxes: Employees and business persons are subjected to high taxation which
leads to low net incomes. Corrupt tendencies are employed to evade or reduce taxes
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in order to minimise the income and expenditure gap.
Politics:
Why is it that problems of ethics and integrity were not there before i.e. in the
sixties and seventies? The underlying causes of corruption seem to be associated
with the politics and economic trends of the current period.
Some people get promoted in government and the army after they have been
known to have stolen public funds. This has tended to strengthen or legalise
corruption and unethical behaviour in more and more people.
The elections have become monetized: i.e. individuals spend their own money for
campaign expenses and to influence voters. It seems proper that the individual
has to recover his/her money if he/she wins. This is not possible where there are
no reasonable salaries to pay various committee members at district and sub-
county level hence a tendency to embrace corrupt means to recover their
“investment”.
Political education “chaka-mchaka” is being emphasized in areas where the
electorate numbers are higher, areas where the electorate is low, like Kotido, have
been left to kill themselves. Such districts have become poorer and poorer due to
continuous fighting for limited resources. Corruption therefore thrives in those
districts unchecked.
There is no clear vision of where the country is going during the forthcoming
general elections of 2006. People tend to swindle public resources because they
do not know what will happen to the country and their jobs in the year 2006.
Manipulation of committees for people to get votes: This and other forms of
manipulation have allowed political and civil leaders to mismanage public funds.
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Too many ministries: Resources that could have been used for improving the
conditions of service for fewer government workers are thinly distributed. This has
led to an increase in corruption and other forms of unethical behaviour.
Decentralisation:
Decentralisation has created tribalism not nationalism. Before decentralization,
children used go to all schools in Uganda; today tribes go to their own schools.
Getting jobs is similar, those who get jobs in other districts are made to feel
insecure so they tend to swindle due to constant fear of being sacked.
Ministries are coming up with ways to recentralize activities of the Local
Governments. For example, the Ministry of Finance has introduced regulatory
measures to control district borrowing. This will keep resources low in the
districts which leads to continuous scramble for the limited funds and corrupt
tendencies.
Lack of trust by the centre of the local governments to manage resources:
districts have educated manpower to manage resources but the Centre tends
impose a lot of restrictions on the meagre resources. The restrictions have
curtailed both freedom of decision making and free use of control mechanisms to
minimise misappropriation of resources.
Double allegiance: Ministry of Finance gives funds to local governments (the
CAOs) and asks for accountability. The local authorities appoint the CAOs and direct
the use of funds. The CAOs work to please the appointing authority which may not
necessarily lead to proper use of funds.
Ignorance: Local people are not aware of their rights; they do not question the
source of riches of their leaders, children, relatives and their elected leaders.
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Corruption therefore thrives when the corrupt do not get isolated or punished by the
community.
Poor Leadership: Top leaders don’t lead by example as far as corruption is
concerned. The lower leaders and other persons who have access to public and
private resources do as their leaders do. Top leaders have therefore no ethical
authority to punish persons under their supervision as they carry out corrupt actions
themselves or simply condone it among their supervisees.
Lack of Commitment to Fight Corruption: Lack of commitment and seriousness to
follow-up findings of Commissions of Inquiry into cases of corruption. Most reports
of corruption have not been made public deliberately and this has tended to protect
known corrupt persons and to motivate others who are in positions of responsibility to
steal public funds or behave unethically.
Diseases and Poor Health Facilities: Diseases that lead to poor health and high
costs of treatment such as HIV/AIDS, high cost of educating orphaned children has
forced persons with access to public resources to practice unethical behaviour to fill
the health cost gap.
Lack of Procurement Standards: Absence of standard regulations and guidelines in
Local Government procurement procedures has left a lot of gaps to be exploited by
corrupt local leaders.
1.5 Challenges
The following challenges were identified by participants:
Instilling professional and political discipline in the public services.
Keeping the public informed about the services it expects from service providers.
Payment of a living wage.
Sustainability of the fight against corruption and unethical behaviour.
Taming monetized politics.
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Fighting poverty: the causes and effects of corruption.
Making corruption a risky option.
A bid to recentralize the provision of resources e.g. huge sums of funds are tendered
centrally.
Lack of resources to fight corruption and unethical behaviour.
System of Governance e.g. the individual merit brings in monetized politics leading
to deliberate effort by leaders to recover their money through unethical ways.
Sustaining ethics and integrity system.
1.6 Recommendations
Effort should be made to identify all causes of corruption in order to come up with
strategies that address most of the problems. The tendency to localise causes of
corruption to only one area will leave important forces that cause or interfere with the
fight against corruption intact.
Initiate and strengthen existing institutions/persons who influence the behaviour of
public servants and include them in the strategy e.g. religious organizations,
supervisors etc.
More effort on civic education should be put to sensitise the civil society, especially
the electorate to understand their rights and obligations. This should empower them
to elect leaders who are responsible and trustworthy to manage public affairs and
resources.
Good governance should start in households, in primary, secondary and tertiary
schools. Ensure the strategy works to recover lost moral values through those
institutions.
Put in place a culture or work methods that mandates frequent interaction between
politicians, administrators and society at all district levels and the centre to update one
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another on the programmes and operations of all sectors. This would bring about
gradual and longer term changes due to opportunity for the public and those in charge
to demand for accountability.
Involve all stakeholders in strengthening ethics and integrity e.g. NGOs, Religious
Leaders, Private Sector, CBOs etc.
Issues of ethics and integrity should not be left to supervisors or ethics officers alone;
empower all persons to work as ethics and integrity officers/champions.
Include ethics and integrity in the regular and annual personnel performance appraisal
in all sectors.
Include Uganda Local Authorities Association and Uganda Urban Authorities
Association in the strategy to fight corruption.
Clearly indicate sanctions for the corrupt and introduce a reward system to persons
who carry out their work diligently and ethically.
Graduates should undergo internship to develop their character and acceptable values
to be good citizens. Incorporate aspects of ethics and Integrity in internship.
Make public appointments contractual to give an employee a short period to perform
efficiently and effectively with little room to behave unethically.
Improve the capacity of Central Government Institutions to supervise and monitor the
Local Government organs as well as vet the appointment of the members to statutory
bodies.
Recruit qualified staff to fill critical gaps in the approved structures e.g. Auditors,
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Chief Financial Officers, Personnel, and Legal Advisors.
Strict enforcement of Laws such as the Leadership Code.
Pay salaries and terminal benefits of LGs staff and full time executive committee
members.
Reward people with proven integrity in the service (for recognition of their good
deeds).
Manage grants in a flexible manner to suit the individual needs of Local
Governments.
Improve the terms and conditions of service to cater for:
• enhanced remuneration (including hardship allowances);
• physical working environment;
• modern management cultures and practices;
• exit policy package;
• job security.
Work to bring about the spirit of nationalism within the society by addressing issues
in decentralisation and other areas that have brought about divisions in the society
along ethical and other lines.
Re-examine the assignment of taxes between the Centre and Local Governments with
a view to increasing both the revenue and autonomy of Local Governments.
Harmonise the Central Government legislating especially the Finance Act, the Local
Government Financial and Accounts Regulations on accountability and reporting
requirements.
Ensure administrative or legal follow-up, as appropriate, to the findings and
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recommendations of the accountability and audit reports.
Put up administrative and legal structures that will operate in professional manner
independent of political leadership.
Involve persons who participated in providing input to the strategy to review the final
strategy document to ensure that it will be functional and effective.
Implement the strategy as soon as possible.
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Annex 2: Third National Anti-corruption Coalition workshop. Participants Group Outputs Group 1 Challenges facing Procurement in Local Government The procurement process and structure in Local Government.
Acquisition initiated by end user – prepared by Head of Department – approved by
Council in the Budget. LTB acts on requirements approved by Council. Appointment of Personnel of high integrity – criteria are subjective.
The modality of appointment who should appoint to minimise the political
manoeuvres by leaders. Roles of the Tender Board, Evaluation Committee etc need to be clearly defined.
The operational aspects of the procurement process have not been clearly assigned to
a particular office in the system. Tender Boards responsibility stops at awarding. They have no role in the
implementation and monitoring. What standards to be followed has been a dilemma in LGT procedures?
How to deal with the culprits in the Local Government Procurement process.
Contrasting Regulations and guidelines from Donors and other financiers.
Inadequate mechanisms of dealing with grievances.
Causes of Corruption: Current poor guidelines on selection of members of LGTBs.
Absence of standard regulations and guidelines in Local Government procedures.
Inadequate control mechanism by authorities.
Lack of clear separation of responsibilities in the procurement process.
Absence of skilled competent manpower to manage the process.
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Inadequate training and sensitisation of key procurement stakeholders.
Poor or total lack of induction courses for members of LGTBs.
Strategies
Establishment of LGTB Regulations; harmonise P.P. and A.A.
Ensuring continuous training and sensitisation of key stakeholders in the procurement
process.
Appointment of LGTB members is done by neutral body.
Put up a structure that will operate in professional manner independent of political
leadership.
Equipping the personnel with operational skills in procurement.
Recognise the separation of responsibility in the procurement process.
Public sensitisation on procurement process in Local government and their rights.
Use of third party Agencies to:
monitor contracts awarded;
audit the process and players.
Outright outsourcing of some procurement jobs.
Increased use of professionals in the procurement process i.e. Procurement
Specialists, Certified Engineers, etc.
Group 2
Challenges of Financial Management in Local Governments.
Inadequate local revenues.
Inefficiencies in the system for transferring funds.
Inadequate and sometimes late submission of accounts and financial statements
(accountability) by local governments.
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Causes of Corruption and Unethical behaviour
Local Governments were assigned (relegated) the collection of minor taxes and
revenue sources leading to narrow tax base.
Interference by politicians from at levels in revenue collection, especially during
elections.
Interference by local politicians in revenue collection, public procurement and human
resource management.
Inadequate public awareness at all levels.
Late release of funds from the Centre to Local Governments that creates pressure to
spend hastily and without due care and attention.
Inadequate external and internal audits.
Inadequate supervisory capacity.
Inadequate management structure and lack of a career path for the Chief
Administrative Officers (CAOs)
Multiple, uncoordinated accountability procedures.
Capacity Gaps
Management skills
Financial management
Bookkeeping
Auditing (at both the Centre and Local Government levels)
Strategies/Solutions
Re-examine the assignment of taxes between the Centre and Local Governments with
a view to increasing both the revenue and autonomy of Local Governments.
Politicians should reduce the difficulties their public statements have caused with
respect to the collection of Graduated Tax.
Tax Education for the public.
Strengthen the civil society
Regular training of both Local Government managers and civil society.
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Harmonise the Central Government legislating especially the Finance Act, the Local
Government Financial and Accounts Regulations on accountability and reporting
requirements.
Ensure administrative or legal follow-up, as appropriate, to the findings and
recommendations of the accountability and audit reports.
GROUP THREE
Challenges Facing HRM in Local Governments Today:
1. Lack of requisite capacity in terms of numbers and technical knowledge, attitudes and
skills – (KAS)
E.g. most critical posts are either vacant, in acting appointments and/or held by
incompetent personnel.
Few audit staff
Quality of Secretaries to Local Government Tender Boards
Quality of members of statutory bodies (DSC, LGTB and Evaluation
Committees…)
Ignorance of one’s rights and obligations
Effects of labour turn over due for to HIV/AIDS.
2. Poor Terms and Conditions of Service in terms of :
Remuneration.
Working environment.
Tools and Equipment.
Management culture and style.
Scheme of service (career growth and development).
3. Political Interference, manipulation and influence peddling in the work of District Service
Councils which have had a direct effect on:.
the recruitment process.
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promotions.
discipline
tenure.
4. Poor Relationships Between Political Leaders and Technical Officers
Major Causes of Corruption and Unethical Behaviour:
1. Budgetary Constraints which has led to poor:
remuneration.
day-to-day operations/facilitation.
training of Staff.
2. Moral decadency
Get rich-quick attitude.
Insensitivity
Irresponsiveness, laxity etc.
3. Flouting of laid-down rules, regulations and procedures.
4. Inconsistencies in implementation of government policies such as:
sale of pool houses
car co-ownership
5. Low Revenue Base
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Strategic HRM Policies and Practices:
Training and retooling (capacity building).
Sensitization of Political Leaders, civil servants and the general public.
Improving the capacity of Central Government Institutions to supervisee and
monitor the Local Government organs as well as vet the appointment of the
members to statutory bodies.
Recruitment of staff to fill critical gaps in the approved structures e.g. Auditors,
Chief Financial Officers, Personnel, and Legal Advisors.
Information, Communication and Technology Strategy – quick information
processing and sharing.
Strict enforcement of Laws: Leadership Code, Code of Conduct, discipline.
Central government of pay salaries and terminal benefits of LGs staff and full
time executive committee members.
Rewarding people with proven integrity in the service (for recognition of their
good deeds).
Flexibility in the management of grants to suit the needs of Local Governments
Improving the terms and conditions of services through:
enhanced remuneration (including hardship allowances)
improved physical working environment
introduction of modern management cultures and practices
provision of exit policy (package)
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Annex 3: Summary of the Strategy
Elements of the Strategy
Goal To build and enhance Integrity and Ethical behaviour and conduct in local
governance systems including civil society and private sector organizations as well
as local communities in general with a view to eliminating corruption and abuse of
power in the management of public and private affairs.
Strategic Objectives
To mobilize and build national consensus on the ethics and integrity values that should guide all Ugandans in improving governance in the country and that can be called National.
To strengthen the capacity of local governments to be transparent, accountable
and responsive to their constituents in the management of Public affairs. To strengthen the capacity of local governance actors (communities, civil society
and private sector organizations including professional bodies) and enable them to hold public officials and political leaders accountable for their conduct and behaviour.
To enhance the awareness of local communities of the dangers of corruption and
unethical behaviour of public and private leaders and of their obligation and right to hold their leaders accountable.
To enhance coordination and synergy of all local, national, regional and
international actors’ strategies, programs, activities, and resources in the process of promoting integrity and ethics in local governance.
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Components of the Strategy
SCHOOL AND EDUCATION FOR
CIVIC COMPETENCE
PROFESSIONAL
AND LEADERSHIP CODES FOR DISCIPLINE
NATIONAL INTEGRITY
VALUES AND ETHICS
SYSTEMS (NIVES)
CLIENTS’ CHARTERS
FOR PUBLIC INFORMATION
ETHICS AND INTEGRITY
CHAMPIONS AND LEADERSHIP
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Strategic Analysis
FOCUS POINT
STRATEGIC ACTIONS ACTIVITIES
Knowledge Enhancement Attitude change Motivation Team-building Networking Staffing Championing
Institution building
System Design and development
Organizational structuring
Job design Networking
institutions Procedures,
processes, and regulations
Political will Support policies Legal framework Overall Governance Practices
Facilitation
Individual &Teams
Institutions
Environment
Facilities and Logistics
Recruitment Training Coaching Tours and visits Awareness
campaigns
Design & operating accountability systems
Designing structures
Accountable job descriptions
Designing Structures
Policy design Legislation Governance
improvement
Provision of: Materials Equipment Facilities Logistics Infrastructure Finances
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Outputs and Support Objectives in the Strategy
Output 1 National ethics and integrity value system.
Support Objective 1 To put in place a harmonized, nationally agreed understanding of ethics and integrity and a value system in the public service that meets both positive expectations of the society and the requirements of a modern Public Service. Output 2: Systematic integration of national ethics and integrity values in the school education system. Support Objective 2 To ensure integration of national ethics and integrity values in the school and education system.
Output 3 Local Government Leadership Code of Conduct.
Support Objective 3 To harmonize the National ethics and integrity values as the National Leadership code with the rights, obligations and conduct of leaders in local governments and local authorities.
Output 4 Professionals in Central and Local Governments.
Support Objective 4 To promote professional discipline in the Public Services as a way of discouraging unethical behaviour.
Output 5 Professional Accountants and Auditors in the Public Service.
Support Objective 5 To have professionally qualified accountants in the Public Service who are also disciplined by their code of ethics so as to minimize financial indiscipline in the Public Service both at Central and Local government levels.
Output 6 Clients Charters in every Public Service at central and local government levels.
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Support Objective 6 To keep the public informed and guided about the services they receive from the public sector and the manner, time limits in which they are expected to receive it at a fee or not so as to dissuade public officials from taking advantage of clients’ ignorance to demand tips or abuse their authority in some other ways.
Output 7 Ethics and Integrity Officers in each Ministry, Local Government, and other government agencies.
Support Objective 7 To develop champions of ethics and integrity values in each Government body at every level to coordinate activities aimed at promoting ethics and integrity in the Public Service.
Outputs. Objectives, Activities and Indicators
Output 1 National ethics and integrity value system.
Objective 1 To put in place a harmonized, nationally agreed understanding of ethics and integrity
and a value system in the public service.
Activities Identify, select and recruit consultants to facilitate the study and write a report on the
national ethics and integrity system. Review the preliminary work on NIVES done by the department of ethics and
integrity. Conduct a study of the various cultures and traditions of Uganda in terms of ethics
and integrity values they cherish. Conduct a study of the ethics and integrity values cherished by the Public service
including the various commissions and professional bodies. Write a report containing the ethics and integrity values determined by the study as
they compare with the values required by the Public Service. Organize events to discuss and validate the national ethics and integrity values.
Print, publish and disseminate the national ethics and integrity values.
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Success Indicators Report of the study written and submitted.
National ethics and integrity value system written, debated by the relevant
stakeholders and adopted widely publicized.
Output 2 Systematic integration of national ethics and integrity values in civic education
Objective 2 To ensure that the entire education system of the country nurtures citizens who
cherish national ethics and integrity.
Activities Work with the National Curriculum Development Center and the Ministry of
Education to ensure that syllabi at all levels are reviewed to include national ethics and integrity values.
Work with various institutions to integrate ethics and integrity values in their training
programs.
Indicators All syllabi in the school and education system incorporating national ethics and
integrity values reviewed. Number of local government officials and other Public servants trained in ethics and
integrity.
Output 3 Local Government Leadership Code of Conduct
Objective 3 To harmonize the National Ethics and Integrity values as well as the National
Leadership code with the leadership rights, obligations and conduct of leaders in local governments.
Activities Conduct consultations with the Uganda Local Authorities Association to assess the
progress of the design of the local governments’ leadership code of conduct. Support the Uganda Local Authorities Associating to integrate the national ethics and
integrity values into the Local Governments’ Leadership code. Support the Local authorities Association to publicize the Local governments’
leadership code of conduct in all Local Governments.
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Indicators A Local Governments Leadership code of conduct harmonized with national ethics
and integrity values and publicized in Local Governments.
Output 4 Professionals in Central and Local Governments.
Objective 4 To promote professional discipline in the Public Service and discourage unethical
behaviour.
Activities Take stock of the professional bodies in the country and collect all their codes of
ethics. Conduct consultations with professional bodies and Public servants to discuss with
them the modalities of encouraging Public servants to belong to them. Work out with the Professional bodies, the Ministry of Public Service and local
governments for the professionalisation of the Public service.
Indicators Data on the professional bodies in Uganda and their codes of ethics collected,
analyzed, interpreted and disseminated. Number of Public servants belonging to their respective professional bodies.
Output 5 Professional Accountants and Auditors in the Public Service.
Objective 5 To have professionally qualified accountants in the Public Service who are
disciplined by their code of ethics to minimize financial indiscipline.
Activities Conduct consultations to review the training programs in accounts and financial
management. Conduct training needs assessment for all accounts personnel in local governments.
Train all accounts personnel in local governments to become members of the
professional body. Support accounts personnel to help them members of their institute.
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Indicators Training needs assessment conducted and a comprehensive report submitted to
Ministry of Finance. Number of accounts personnel trained and sitting for the professional examination.
Number of local government personnel admitted into the professional body of
chartered accounts. Output 6 Clients Charters in every Public Service at central and local levels.
Objective 6 To keep the public informed and guided about the services they receive from the
public sector.
Activities Work with the Ministry of Public Service to review the Public Service Reform
program to include a component on national ethics and integrity values. Support all Ministries, Departments, and local governments to write and publicize
clients’ charters. Design and mount a public campaign on the use of clients’ charters and sensitize the
public on utilizing the charters to demand for effective and timely service.
Indicators Public Service Reform program incorporating national ethics and integrity values.
Number of organizations with client’s charters.
Number of radio programs on the Client Charter aired.
Public awareness of the use of Clients’ Charters.
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Output 7 Ethics and integrity officers in each Ministry, Local governments, and other
government agencies.
Objective 7 To create champions of Ethics and Integrity values in each government body at every
level.
Activities Identify personnel capable of serving as ethics and integrity officers.
Design a training program incorporating national ethics and integrity values targeting
the identified ethics and integrity officers. Conduct the training for the ethics and integrity officers.
Indicators Number of integrity officers trained.
Challenges: Building consensus on what constitutes ethics and integrity. The national values that should guide he country in the fight against corruption.
Reliable and credible leaders to champion the process.
Instilling professional discipline in the Public service.
Keeping the Public informed about the services it expects from Public servants.
Building civic competence.
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Annex 4: Workshop Time Table
Time Activity
9.00 am Registration
9.10 a.m. Climate Setting
9.30 a.m. Objectives of the Workshop
10.00 a.m. Official Opening by Hon. Miria Matembe
10.30 a.m. Tea Break
10.45 a.m. Introduction to Elements of the Strategy.
11.00 a.m. Introduction to major Objectives and Outputs in the Strategy
11.30 a.m Group Session: Review Objectives and Outputs in the Strategy.
11.45 a.m. Plenary presentation
12.00 p.m. Lunch Break
2.30 p.m Group Session: Review Objectives and Outputs in the Strategy.
4.00 p.m Plenary presentation
4.30 p.m Summary of Participants input to the strategy.
5.00 p.m. Close
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Annex 5: Attendance Jinja Consultative Workshop: 14th November, 2002 Name Title District 1. Baligeya Steven For District Planner Mayuge 2. Kauta Keneth CAO Pallisa 3. Kibwika Lydia LC V Iganga 4. Kaziba Moses Planner Iganga 5. Mulengani M Planner Bugiri 6. Kirenda Nelson CAO Iganga 7. Ogolla Jack Mayor Tororo 8. Baligeya K Isabirye LC V Kamuli 9. Masai W For CAO Mbale 10. Naleba Jamila Deputy Mayor Mbale Municipality 11. Balisanyuka J CAO Sironko 12. Gakwandi CAO Jinja 13. Wanyala Joel D/CAO Busia 14. Egesa Anthony District Population Officer Busia 15. Kasede Michael Chairman LC III Jinja 16. Bwambale M P Chairman LC III Jinja 17. Kasadha J S For CAO Kamuli 18. Talugende M Vice Chairman Jinja 19. Nabbanja R Deputy RDC Pallisa 20. Bagole K Deputy Mayor Jinja Municipality 21. Waidhuuba Jofram For T C Jinja Municipality 22. Wasugirya I For Chairperson Pallisa 23. Tumwine Kameraho 24. Wankya T F Deputy Statistician Kamuli 25. Kyampa Sarah For Chairman LC V Jinja 26. Nabende J For Chairman Sironko 27. Magoba Henry For Chairman Mayuge 28. Bulamu F Vice Chairman Tororo 29. Mukose Abubaker RDC Jinja 30. Madoi James Planner Sironko 31. Masokoyi Waswa For Chairperson Mbale 32. Kyawalw S S For Chairperson Bugiri 33. Awor Teopista Assistant CAO Tororo 34. Mayende For CAO Busia 35. Kibweru Wilson Assistant CAO Bugiri 36. Oradi Patrick Vice Chairman Busia
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Kampala Consultative Workshop: 4th November, 2002 Name Title District 1. Mwanda Jamil Vice Chairperson Masaka 2. Lydia Bakaki Liaison Officer ACCU 3. Tukahirirwa For CAO Wakiso 4. Akora A Planner Masindi 5. Mondo S Town Clerk Luweero 6. Kabumba S Deputy Planner Wakiso 7. Kiwanuka E Deputy Town Clerk Masaka 8. Tumusiime E Vice Chairman Wakiso 9. Kizito M Secretary Genda Kampala 10. Majara J Deputy Chairman Masindi 11. Matovu J Mayor Masaka 12. Buye A Secretary for Health Kampala 13. Nakato S Chairperson (DiV) Kampala 14. Makumbi K H ACAO Mubende 15. Kumumanya B DCO MoLG 16. Nsubuga K Secretary for Finance Kampala Div. 17. Senkasi H District Planner Nakasongola 18. Wadada Z DCAO Nakasongola 19. Mubiru R For CAO Kayunga 20. Bagonza Chris District Chairperson Nakasongola 21. Gonzaga N District Planner Masaka 22. Musoke A Planner Mubende 23. Kakooza J Chairperson Mubende 24. Nyakaisiki Byenkya M.P Hoima 25. Mwebeza J Ass. Town Clerk Kampala 26. Wabomba J Planner Kayunga 27. Mugisha J ACAO Kibaale 28. Asiimwe J For Chairperson Hoima 29. Semujju S For CAO Kalangala 30. Jembe H - Nakasongola 31. Kafeero J Vice Chairperson Kalangala 32. Timbuhua G Vice Chairperson Kibaale 33. Byubukye B Vice Chairperson Hoima 34. Nasozi R ACAO Luweero
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Soroti Consultative Workshop: 6th November, 2003 Name Title District 1. Chelimo R P Vice Chairman Kapchorwa 2. Obot Opira A Mayor Gulu 3. Oloya Gilbert Town Clerk Gulu 4. Otengo R For Chairman Lira 5. Pulkol H Vice Chairperson Nakapiripirit 6. Asadi Mwanga For CAO Kapchorwa 7. Charichwa K C District Population Officer Kapchorw 8. Oumo G W Deputy RDC Soroti 9. Olwa D For Planner Lira 10. Odwedo D CAO Lira 11. Lorwor J Town Clerk Moroto 12. Lomilo Joseph Mayor Moroto 13. Lokwi C Chairman LC V Moroto 14. Ebitu James Planner Katakwi 15. Wabwire M M Planner Soroti 16. Ocole Robert Planner Kaberamaido 17. Ocelam B Vice Chairperson Gulu 18. Egunyu G M Mayor Soroti Municipality 19. Olila R CAO Apac 20. Pelo-Enon Planner Apac 21. Abong L CAO Nakapiripirit 22. Lonanyang J Secretary Education Moroto 23. Masiga E R D C Soroti 24. Oswan V Deputy CAO Kumi 25. Onya A Secretary Education Kumi 26. Olwa B Chairperson Lira 27. Okwi J B ACAO Kotido 28. Okoropot A CAO Kaberamaido 29. Erou-Ekinu Town Clerk Kaberamaido 30. Diko A R Planning Officer Kotido 31. Ogwal O P Town Clerk Lira Municipality 32. Adea N Deputy Mayor Lira Municipality 33. Okolimo John Deputy CAO Katakwi 34. Manga Lyadda Deputy Planner Nakapiripirit 35. Ochen A Assistant CAO Pader 36. Omuge G W CAO Soroti 37. Akomakech A Chairman LC V Pader 38. Bongomin R Deputy Planner Pader 39. Santa Odwar ACAO Gulu 40. Okello R Informatin Officer Soroti 41. Eceru M Vice Chairman LC V Katakwi 42. Ajiku R Planner Lira 43. Ocan V Deputy CAO Kitgum 44. Akol S Planner Gulu 45. Oding Richard Planner Kitgum 46. Achen R Vice Chairperson Kitgm 47. Abwong D For Chairperson Apac
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Mbarara Consultative Workshop: 11th November, 2002 Name Title District 1. Tibugeyenda Wilson Deputy CAO Rukungiri 2. Katehangwa S CAO Kabale 3. Twubaze A Statitician Kabale 4. Atuhairwe W Planner Kanungu 5. Kihika M Deputy Mayor Fort Portal 6. Mateke P Chairman LC V Kisoro 7. Byaruhanga J Kyenjojo Deputy CAO 8. Semanda I CBO Masaka 9. Ishonga L N Chairman Bushenyi 10. Kakiru E Chairman Kabale 11. Mutambuka Ben Facilitator Kampala 12. Baryantoma J M Chairman Kabale 13. Byarushaya T Chief Financial Officer/Plan Kabale Municipal Council 14. Kaija G CAO Bundibugyo 15. Ngene Aseri CAO Kasese 16. Nkayarwa J B For Chairman Bundibugyo 17. Mwesige B Charles For Planning Bundibugyo 18. Byamungu E CAO Kanungu 19. Boonah C District Planner Mbarara 20. Kanamugira P CFO Mbarara 21. Mugisa P C Planner Kasese 22. Kamanzi J Chairman LC III Mbarara 23. Mukasa R Chairman LC III Mbarara 24. Banambumura Town Clerk Mbarara 25. Mwesigye S K For Planner Bushenyi 26. Ndifuna M ACAO Bushenyi 27. Rubotsumbira Sam Div I/P Kanungu 28. Mushakale S Ass Town Clerk Mbarara Municipality 29. Kisembo G Information Officer Mbarara 30. Turinawe I Deputy Speaker Rukungiri 31. Kaija W Deputy Chairperson Kyenjojo 32. Muigisha Moses Planner Kamwenge 33. Dr Ruhumurane Mayor Kabale 34. Sebagabo B For CAO Kisoro 35. Beinenaama Francis Planner Kisoro 36. Muhimah f Vice Chairperson Kanungu 37. Bihande B Y Vice Chairperson Kasese 38. Nukati Hajati Deputy Mayor Mbarara 39. Ahimbisibwe I Ass. Town Clerk Mbarara 40. Mwesigwa M Financial Officer Mbarara 41. Kabasoomi R Vice Chairperson Kamwenge 42. Musana D Deputy Planner Rakai 43. Musisi E Vice Chairperson Rakai 44. Kiwanuka S ACAO Sembabule 45. Ssebliba T ACAO Rakai
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Arua Consultative Workshop: 19th November, 2001 Name Title District 1. Dalili R K M ACAO Yumbe 2. Iyiga R G Chairman LC V Yumber 3. Orya L Chairman LC V Moyo 4. Agwa L For ACAO Moyo 5. Bithum C Assistant Town Clerk Arua Municipal Council 6. Okuni P For Plannning Arua 7. Osumile J Chairman LC III Arua 8. Obidrabo O A Planning Arua Municipal Council 9. Bada F ATC/ROD Arua Municipality 10. Anguyo Musa Chairman LC III Arua Municipality 11. Afiibo M BI/ROD Arua Municipality 12. Oyo A C/AHD Arua Municipality 13. Candia L For Chairman Arua 14. Andua Drani ACAO Arua 15. Khalifan T Mayor Arua Municipal Council 16. Inziku P Deputy Town Clerk Arua 17. Drania S Planner Yumbe 18. Ahimbisibwe N Deputy CAO Nebbi 19. Bithum C For CAO Moyo 20. Uruni P For Planning Arua 21. Abidrabo O Planning Arua Municipality 22. Afiib o M BI/ROD Arua Municipality 23. Andua D ACAO Arua 24. Unzia M ACAO Adjumani 25. Owole N Chairman Adjumani 26. Olley Ben Planner Adjumani National Anti-Corruption Coalition workshop: 27-29 November, 2002
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Name Title District/Organisation 1. Buteera R Deputy Public Prosecutor DPP 2. Tamale George Coordinator, East Federation of Ug. employers 3. Muwange David Chairpeson Uganda National Teachers Assn. 4. Habukiriro James CID Officer Police 5. Mayanja A Director Audit 6. Wiswa David Chairman, District Service Commission Iganga 7. Martin Lagara Secretary Public Service 8. Lydia Bakaki Liaison Officer ACCU 9. Hon. Madada S.K. Member Parliamentary Committee on Public Service.
10. Oiko M Consultant UNDP 11. Matte T Director Ministry of Local Government 12. Wakudumira D Mayor Jinja Municipality 13. Tumwine A K RDC Jinja 14. Okuruja D For CAO Mukono 15. Hon Mirya Matembe Minister of State for E & I DEI 16. Tumwesigye J IGG Inspectorate of Government 17. Ashaba-Aheebwa Directorate of Ethics DEI 18. Sssevume M Secretary DEI 19. Kiconco B Assistant to DIE DEI 20. Ibanda S Assistant Res. Rep. UNDP 21. Dr Florence Nayendo Consultant UNDP 22. Karen Brandt UNDP 23. Souleynane Balde Consultant UNDP 24. Dr Kyarke Director Women Association 25. Kiyinki D Chairman CPS - Uganda 26. Rajana C Executive Director RCTB 27. Nkayarwa T N Ministry of Local Government 28. Magyezi R SG ULAA 29. Odwe Orago C Chairperson Lira 30. Bwambale M P Chairperson Uganda Urban Divisions. Assn. 31. Nyokatre P AC/PST Ministry of Public Service 32. Ewama T L P.A OAG 33. Mutambukah B Consultant DEI 34. Edroma E Head of Dept.Legal Uganda Human Rights Com. 35. Tumusiime L M Deputy Director, Legal DIE 36. Draville B ACI/TE MOES/ESA 37. Sabiiti O Chairperson Speaks Association (UDICOSA) 38. Akabwai S Dep. Comm. General Uganda Revenue Authority 39. Makumbi E For CFO Mukono
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National Anti-Corruption Coalition workshop cont. Name Title District/Organisation Muhweezi P Rural Development Advisor Embassy of Ireland 40. Kareebi L PFO IGG’s Office 41. Penywu J S.P.O. IGG’s Office 42. Bitarabeho J CAO Bushenyi 43. Dr. Myers L . 44. Tumusiime E Chairman F.I.D 45. Bageya W U.S Police 46. Grovesen Danish Embassy 47. Titsworth J Consultant DEI 48. Francesco I 1st Secretary Netherlands Embassy 49. Otekat E President Uganda Local Authorities Assn. 50. Mutabwire P Commissioner Ministry of Local Government 51. Wandera M Legal Assistant DEI 52. Mulondo R DAS DEI 53. Niyonzima A Secretary DEI 54. Dr Odur D Chairperson Local Govt. Finance Committee 55. Kigwana S Operations Director SWIPCO 56. Rein Kelstra Advisor for Local Governace Netherlands Embassy 57. Hon. Bidandi Sali Minister of Local Govt. Ministry of Local Government
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Annex 6: Schedule of Regional Workshops
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