BRIEFING NO 4 JULY 2008 BRIEFINGG NR 2 APRIL 2008

Fast Tracking East African Political A View from

Korwa G. Adar

The decision by the summit in 2004 to institute studies on fast tracking East African Political Federation (EAPF) has rekindled debate on the project integration in the region, an issue which has eluded the people of East Africa since the 1960s. The trajectory of integration in East Africa is clouded with underlying socio- cultural, econo-political and religio-linguistic differentiations that have to be addressed to ensure the dura- bility and consolidation of the project. The purpose of the policy brief is twofold. Firstly, it puts into proper perspective, the views of Ugandans on the question of fast tracking political federation envisaged by the summit. Secondly, it identifi es and analyses the main concerns raised by Ugandans on political integration and provides what they consider to be viable recommendations relevant for the project.

Introduction The Wako Committee recommended, among other things, the establishment of similar studies In August 2004, the summit of the heads of state to be conducted at the EAC partner states level. of the (EAC) appointed a The aim is to give the people of East Africa more committee of six experts, two from each partner opportunities to debate and register their views state, to conduct a study on the possibilities of on the project in a holistic manner. Consequently, fast tracking EAPF. The summit invoked Article the National Consultative Committees (NCCs) 123, paragraph 6, which empowers the heads of were established and thereafter launched simul- The aim is state “to initiate the process towards the estab- taneously by the partnering heads of state on lishment of a political federation … by directing 13 October 2006, in , , and to give the the Council to undertake the process.” Article .2 The Ugandan NCC was comprised of people of East 123, paragraph 7, on the other hand, provides nineteen experts drawn from the civil society as Africa more that the summit may order a study to be fi rst well as from the private and public sectors. It be- undertaken by the council.1 ’s Attorney gan its work on 31 October 2006 after receiving its opportunities General, Amos Wako was appointed chairman of terms of reference from Rt Hon. Eriya Kategaya, to debate and the committee. The committee submitted its re- First Deputy Prime Minister and Minister of East port in November 2004, after conducting a three African Community Affairs. This policy brief puts register their month study. into proper perspective the views of Ugandans on views on the project in a

Professor Korwa G. Adar, is the Research Director in Area studies at Africa Institute of , Pretoria, South Africa holistic manner

© Africa Institute of South Africa AISA POLICYbrief Number 4 – July 2008 1 Table 1 Statistical Comparison of Uganda and Other EAC Member States

Population Partner states’ Area Population Total number of represented in EALA Country contributions to (000 sq. km) (Million) EALA members (Average per EAC budget representative)

Burundi 28 8 9 890 000 4 296 532

Kenya 580 36 9 4 000 000 4 296 532

Rwanda 26 10 9 1 100 000 4 296 532

Tanzania 945 37 9 4 000 000 4 296 532

Uganda 241 29 9 3 000 000 4 296 532

Total 1 820 120 45 12 990 000 21 482 660

Sources: EAC, 2007. 16th Extraordinary Meeting of the Council of Ministers, Report of the Council. Ref EAC/CM/EX 16/CM/2007. : EAC Secretariat, pp. 24-27, World Bank, 2002. World Development Indicators, 2000. Washington, DC. World Bank.

fast tracking the EAC political federation project. ● Coordinating the national consultations on fast It is necessary, fi rst of all, to provide a synopsis tracking EAPF in conjunction with the Cabinet of Uganda’s economic standing vis-à-vis the other and Ministry of East African Community member states. Affairs Table 1 illustrates that Uganda is the third ● Using existing EAC instruments that may be largest and most populous country in the East useful in the project in the areas of sensitisa- African region. It has a total population of 29 mil- tion, information dissemination and collection lion. However, each country contributes equally of views from Ugandans towards the operations and functions of the EAC. ● Disseminating information to the public about Uganda’s total trade with the EAC countries has in- EAC in general and the rationale for fast track- creased overtime to 20 per cent between 2004 and ing the EAPF, in particular through television, 2005. For example, Uganda’s share of intra-EAC radio, print and electronic media trade increased from US$388 million, US$452 mil- ● Enlightening the general populace on regional lion, US$504 million, and US$639 million in 2002, integration through educating people on the It is necessary 2003, 2004 and 2005 respectively. The total volume benefi ts, challenges and addressing any fears of trade within the EAC region registered US$1 125 of integration for Ugandans billion, US$1 291 billion, US$1 518 billion and US$1 ● Explaining the proposed structures of the fed- to be exposed 839 billion in the same period. Uganda’s percent- eration, functions and responsibilities within age share of total trade in 2002, 2003, 2004 and the federation and the road map for establish- to the issues 2005 reached 34 per cent, 35 per cent, 33 per cent ing the political federation through rallies, within the region, and 35 per cent respectively. Kenya has the largest meetings and seminars/workshops share of total trade, which reached 53 per cent, 49 ● Consulting with and collecting views and com- especially to per cent, 48 per cent and 48 per cent in 2002, 2003, ments of all key stakeholders on the political issues of political 2004 and 2005 respectively.3 Therefore, it is nec- federation process of the EAC integration essary for Ugandans to be exposed to the issues ● Compiling and analyzing the views and opin- within the region, especially to issues of political ions collected during the consultative process integration. Thus Uganda is set to benefi t from the ● Preparing a national report on the fi ndings for federation whenever it materialises. presentation to cabinet and parliament before being forwarded to the council of ministers for submission to the summit in July 2007. The National Consultative Process in Uganda Objectives The terms of reference that were handed over to the NCC of Uganda covered a wide range of issues. The involvement of the people of Uganda and East These were designed to capture the attitudes, per- Africa as a whole is critical for the short-term ceptions and views of the people of Uganda on fast and long-term survival and durability of the EAC. tracking the EAPF project initiated by the summit. Understanding the extent to which Ugandans The terms of reference for the NCC were guided by are aware of the aims and objectives of the EAC the following:4 and the potential benefi ts to be derived from its

2 AISA POLICYbrief Number 4 – July 2008 © Africa Institute of South Africa formation is of paramount importance. The study Table 2 Level of Awareness and Support for the EAC Integration Process was guided by four main objectives:5 Support Support ● To establish the level of awareness among Level of Level of for EAC for Fast different constituencies on key issues of the Awareness Awareness Integration Tracking EAPF Category about EAC on EAPF Process EACPF of Support (%) (%) (%) (%) ● To establish people’s attitudes on important is- sues of the EAPF Yes 65 55 87 75 ● To obtain people’s opinions on pertinent issues of the EAPF No 34 43 10 19 ● To seek views on fast tracking the EAPF.

During its consultations with individuals and Not sure1236 groups, the NCC focused on issues that cut Source: Uganda, 2007. Report of the National Consultative Committee on Fast Tracking across socio-cultural, econo-political, legal, East African Political Federation. Kampala: Government Printer, pp 21–53 ethno-religious and environmental perspectives. The success of the EAC and particularly of fast not participants in the market; the potential mar- tracking the political federation requires the ginalization of Uganda by Kenya (the dominant direct involvement of the people of the region. economy in the region); a clear formula that is This is critical because at some stage, the people designed to guide the region on how to share re- of EAC will be called upon to transform the re- sources; and the issue of corruption and how to gional organization into a functioning political eliminate its vices in the society. federation through the ballot box. The political concerns included the fear of job losses and its inherent marginalization po- tential. Some of the participants felt that there Fast Tracking Political Federation: was a need to transform Uganda into a federal Uganda in Perspectives state to accommodate, among others, and Bunyoro kingdoms before the EAC political Although Ugandans had varying opinions on some federation. It should be noted that in the 1950s issues pertaining to the study, the NCC found that Kabaka Mutesa of Buganda Kingdom resisted the The success of there existed a general support across the societal plans of the British colonial government to inte- the EAC and divide on fast tracking political federation and grate the Uganda colony with the other British other questions associated with the EAC integra- colonies in East Africa. Ironically, his opposition particularly of tion. For example, Table 2 indicates that 65 per to the federation of the colonies led to his exile fast tracking cent and 55 per cent of Ugandans are aware of the in England. EAC and EAPF respectively. Furthermore, 87 per Legal and constitutional concerns included the political cent and 75 per cent support the EAC integration case of the EAC which collapsed in 1977, and that federation process and fast tracking East African political the current EAC treaty took a top-bottom approach requires federation respectively. because it was concluded without the involvement of Ugandans and the East Africans in general. the direct Other issues of concern were the relationship be- involvement tween the state and federal constitutions, par- The Main Concerns Regarding of the people Political Federation ticularly in relation to the devolution of powers; national versus federal state interests; access to of the region The Ugandans who participated in the project federal leadership irrespective of size of state; and raised a number of concerns:6 The loss of land was gender equity and affi rmative action. a major concern for most of the participants. Land The socio-cultural concerns included the pos- is the main source of wealth for the majority of sibility of upsurge of crime across the borders; and ordinary people. Any potential loss of land due to lack of enthusiasm about Swahili as a spoken and political integration is perceived with anxiety and written language in the country, which will give reservation. advantage to Kenya and . Economic concerns included the impact of glo- Environmental concerns included the issue balization on the ordinary people; the domination that its management is elitist. The rural communi- of the economy in the country by a few Ugandans; ties and the urban poor are largely excluded. They a people-centered and market-driven economy are the main victims of the environmental prob- prescriptions in the treaty that does not refl ect lems. The participants felt that it would worsen at the reality on the ground because Ugandans are the EAC federal level.

© Africa Institute of South Africa AISA POLICYbrief Number 4 – July 2008 3 Recommendations ● The educational systems in the region should be harmonised. The Ugandan NCC included a number of recom- mendations, which in its view conform to the gen- eral spirit of the directives of the summit as well Conclusion as Wako Committee report:7 ● With regard to fast tracking EAC federation The support for the EAC political federation project in general, the NCC recommends overlapping by Ugandans has provided the Museveni presi- of the four stages of integration provided for dency with an opportunity to push integration of in Article 5(2) of the treaty namely, a Customs the region within the framework of the summit. Union, a Common Market, a Monetary Union However, the 27 December 2007 Kenyan electoral and a Political Federation. This would enable debacle and the support President Museveni gave parallel activities to take root and be achieved adequately overtime Mwai Kibaki during the crisis has negatively im- pacted on the project, particularly Museveni’s in- In order to ● The NCC as well as the participants recom- mended that fast tracking political federation tentions in the region. Uganda was the only EAC ensure direct should follow the three stages articulated in member state that immediately recognized the accountability the 2004 Wako report: a preparatory phase outcome of the elections in Kenya. to the East (2004-2005), a transitional phase to a federa- The support for integration of the EAC, par- tion (2005-2009), and a consolidation phase ticularly econo-political issues, is an added ad- Africans, the (2010-2013). The envisaged stages in the vantage for the leadership of Uganda. Uganda’s NCC recommends Wako report are already behind schedule. For President Yoweri Kaguta Museveni is known to be instance, commissions and task forces recom- an ardent advocate of fast tracking the EAC politi- the members of mended by the Wako committee to manage the cal federation project within the summit.8 the EAC federal issues pertaining to the preparatory phase are parliament and yet to be established ● People’s involvement in constitutional making the federal is critical for the survival and proper function- Notes and References ing of any country, let alone at the federal president should 1 East African Community, 2002, ‘The Treaty for the level. The NCC recommends the establishment be elected by Establishment of the East African Community,’ Arusha: EAC of a constitutional committee to draft the fed- Secretariat, Articles 123 (6) and (7). eral constitution for approval in a referendum universal adult 2 For more details on the report submitted by the Wako by the East Africans Committee, see East African Community, 2004 ‘Report of the suffrage ● The NCC recommends the idea of popularis- Committee on Fast Tracking East African Federation’ Arusha: ing Swahili in Uganda to enable the country EAC Secretariat.

to communicate with Kenya and Tanzania on 3 East African Community, 2005, ‘The East African Community equal terms Trade Report 2005,’ Arusha: EAC Secretariat, p 6. ● To NCC recommends the establishment of 4 Uganda, 2007, ‘The National Consultative Committee on what it calls an East African Peer Review Fast-Tracking the East African Political Federation-Uganda.’ Mechanism (EAPRM) akin to the African Kampala: Government Printer, p 8. Peer Review Mechanism (APRM) responsible 5 Uganda 2007, p 7.

for assessing democratization trends in the 6 Uganda 2007, pp xii-xvi and pp 54-100. region 7 Uganda 2007, pp 101-106. ● In order to ensure direct accountability to the 8 Kasaija, P Apuuli, 2007. ‘The Adoption of the East African East Africans, the NCC recommends the mem- Federation Agenda: Impact on Uganda Politics.’ Paper bers of the EAC federal parliament and the fed- Prepared for Presentation at the 10th Workshop on eral president should be elected by universal Democratic Transition in East Africa, Paradise Holiday Resort, adult suffrage Bagamoyo, Tanzania, 6-7 September.

4 AISA POLICYbrief Number 4 – July 2008 © Africa Institute of South Africa

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