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Uganda National Focal Point 2004-2008

Towards a National Plan of Action for Uganda

While the regional, continental and international agreements provide a vital political framework for action to curb the proliferation of small arms and light weapons, it is the national level that must be the main focus of implementation of practical action. Aware of the pressing need to begin the process of national implementation the Government of Uganda created and/or facilitated the Institutional Framework through which the development and implementation at the National level could effectively be carried out. Two principal institutions were created/ capacitated to undertake the development and implementation of the Uganda National Action Plan:

1. The Uganda National Focal Point on Small Arms and Light Weapons, and
2. Twelve Regional Task Forces for Arms Management (One per Region in Uganda)

In the establishment of institutional framework, particular care was taken to ensure that all key stakeholders were included. Consequently, all relevant governmental agencies, all regional and local authorities, and Ugandan civil society, are key elements of the national and regional institutions.

Once the governmental structures were established the next stage in developing the National Action Plan was to assess the small arms situation in Uganda. The National Focal Point, assisted by SaferAfrica, Saferworld and in collaboration with national civil society organisations, Centre for Conflict Resolution (CECORE), Oxfam GB, Uganda Joint Christian Council (UJCC) undertook the research and development process. Thus, commenced a comprehensive and inclusive governmental assessment of the real extent of the problem in Uganda.

The object of the exercise was to identify and understand the nature and extent of small arms proliferation in Uganda in terms of supply and demand factors; the existing capacity and resources available to address the issue; and the attitudes to and experiences of small arms proliferation of the Ugandan people. The information was obtained through interviews, workshops, observation, and impact surveys conducted in consultation and with the support of many different national civil society organisations and community-based organisations. Collaboration and consultation with all sectors of society, governmental and non-governmental, were key elements of the exercise.

2.1 Mapping Process

A Working Model as described below was developed and operationalised to guide both the intellectual and implementation process on national level, to assist in information gathering and analysis process, or Mapping Process, and with the comprehensive and sustainable implementation of the required steps and actions described in the international, regional and sub-regional programmes of action, declarations and protocols.


The Mapping Process for the Uganda National Action Plan was conducted in conjunction with the Government of Uganda, civil society and some international organisations and agencies. The Mapping Team completed 5000 household surveys (Attitude Mapping) in every region and district of Uganda, work-shopped with 276 law enforcement officials in 12 regions and national workshops, to understand the manifestation of the problem, learn how they perceive the solutions on local and regional level, and determine the needs in terms of capacity building, training, co-ordination mechanisms etc, necessary to implement a national strategy and action plan to deal with the problem on the three strategy levels as described below.

On completion of the Mapping the National Plan was developed by the mapping team, and is currently in Phase One of implementation. The process followed is:

2.1.1 Preparatory Phase

During this phase a series of planning meetings (two to three) took place between the responsible government agencies and the Mapping Team. The main objectives of these meetings were:


2.1.2 Mapping Phase (Information Gathering)

During this phase all information related to the three main areas of interest are collected. These areas consist out of:

1. Geo-Political Information: Information about the manifestation of the problem in Uganda and the region was collected through field work in close co-operation with the government agencies and through research projects by NGO partners.
   
   

   Geo-PoliticalMapping
   Conflict History	Flows
   Incidence	Groups and Individuals
   Population distribution	Infrastructure
   Regional factors	Supply Factors



2. Attitude Information: to assess the manifestation of the problem in, and its impact on civil society. This information was collected through population surveys that will be undertaken in all districts of Uganda.
   
   

   Attitude Mapping
   Law Enforcement Agency Survey	Population Survey
   Rural Areas	Urban Areas
   Border Areas	Demand Factors



3. Resource Information: to establish what resources are available at national, regional and local level to assist with the implementation of the National Plan of action. These resources can come from either governmental or non-governmental sources. Without having a thorough understanding of what is available for assisting with the implementation plan it will be impossible to ascertain the additional resources and skills needed for implementation.
   
   

   Resource Mapping
   Security Forces	National Government
   Local Government	Civil Society
   International Programmes

2.1.3 Analysis Phase

During this phase the collected information was analysed in conjunction with the objectives to determine the possible courses of action for the national plan of action. It is imperative that this analysis is done together with the implementing agencies, since the possible courses of action and the resource allocation will depend on current realities. During the analysis phase the following conclusions must be reached:

1. Demand and Supply factor dynamics within Uganda and the region
2. Source and functional factors
3. Resources and current legislation and regulations to deal with the manifestation of the problem
4. Possible courses of action and options for the national action plan to control, resolve and prevent the manifestation of the problem
5. Additional structures, resources, capacity and legislation and regulations that needs to be activated to lead to resolution of the manifestation of the problem

2.2 Summary of the Results from Mapping Process

The quality of the input and participation by the participants in the Mapping Exercise was of a very high standard, and especially so for the participants from the Uganda Police. There is a clear understanding of the dynamics of the small arms problem in Uganda, as far as the function of law enforcement and security is concerned, and the recommended action to deal with the problem was straight to the point. Although regions have their own unique challenges and specific problems, the main recommendations throughout the country were remarkably similar. In summary the recommendations are:

2.2.1 Policy on small arms and light weapons

A clear and comprehensive national policy on small arms, light weapons, ammunition and explosives was identified as a priority requirement to govern the National Action Plan and provide the guidelines to prevent, control and manage the proliferation, illicit possession and abuse of SALW. The policy should address the full spectrum of issues related to SALW and provide the basis for the review of national legislation, regulations and administrative procedure governing SALW.

2.2.2 Firearms Act

The existing Firearms Act is regarded as obsolete and not in step with current realities and law enforcement requirements. The Act should be rewritten to incorporate the National Policy, current realities prevalent in Uganda and sub-regional and internationally agreed measures to deal with the SALW problem in a comprehensive and co-ordinated manner.

2.2.3 Central Firearms Database

A central electronic database for national recordkeeping, control of the national stockpile and to assist with investigation, national information needs and sub-regional co-operation is a priority concern. Participants felt that they will only be able to deal with illicit SALW once they are able to establish what is licit. Currently national records are insufficient and cannot provide for the needs of law enforcement, control and investigation.

2.2.4 Stockpile Management:

Participants agree that serious attention should be given to stockpile management issues in the creation of the national policy. Clear and comprehensive policy guidelines should be given to issues such as security of stock, proper storage, issue of firearms and ammunition from armouries, management of captured and seized stock, levels of stock kept at national armouries and depots, surplus and obsolete stock, disposal and destruction, national recordkeeping, licensing criteria and procedure, etc. A clear and present concern was expressed on the arming of security apparatus such as the Local Defence Units (LDU), special constables, vigilantes, etc without any clear control regime or command structures to take responsibility for the management and control of the SALW issued to them.

2.2.5 Capacity Building and Training

A wide range of added capacity and skills were recommended during the feedback session. In summary those relate to:

1. Training and Capacity needs
   
   1. Arms Management and disarmament skills for middle and senior management personnel.
   2. Specialised investigation skills on national level such as ballistic experts, forensic investigation, recordkeeping and stockpile management.
   3. Basic investigation skills such as firearm identification, management of a crime scene, firearm crime related investigation, etc.
   4. Specific skills such as computer literacy, technical skills, etc.


2. Resources
   Various recommendations were made on resource needs to enable sufficient performance and effective enforcement and response. These needs should be dealt with in part between the National Action Plan and the National Budget.

2.2.6 National Co-ordination Mechanisms

It became clear during the discussion sessions that the National Focal Point will need assistance to co-ordinate and implement the national action plan down to district level. For this purpose participants recommended the formation of Regional Task Forces, structured in the same manner as the National Focal Point. The Regional Task Force will be responsible for the co-ordination and implementation of the National Action Plan as directed by the National Focal Point and it will also function as the co-ordination mechanism between the National Focal Point and districts. The specific recommendations were analysed and work-shopped in detail during the Analysis Phase to ensure compatibility with the Uganda National Focal Point and existing security committees.

2.2.7 Involvement of Civil Society

The crucial role that civil society organisations must play during the Mapping Phase and the implementation of the National Action Plan was recognised by participants throughout the country. A variety of organisations and institutions were recommended by participants, in both regional and district context, for participation in, as well as forming the nucleus of civil society participation and involvement in the National Action Plan. These recommendations were consolidated and handed over to the civil society representatives on the National Focal Point to obtain the contact detail for invitations and co-ordination of participation.

2.2.8 Development and Alternatives to Firearms

Participants highlighted the need for attention to focus on the links between poor economic development and the proliferation of firearms. Investigating how alternative sources of livelihood can be developed and how more general economic development can be encouraged in those regions most severely affected by firearm misuse must be considered during the creation of the National Action Plan.

2.2.9 Public Awareness and Education

Most participants stressed the need for a massive public awareness and education programme early in the National Action Plan. The civil society workshops should also be utilised as a public awareness tool. Accompanying press coverage and radio broadcasting sessions should be used to inform the general public of the intentions and objectives with the National Action Plan.

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