A Reflection on ’s Foreign Policy and Role at the UN Security Council

Synthesis Report of the Proceedings of the 5th State of the Nation Platform

February 5, 2010, Kampala – Uganda Bernard Tabaire Jackie Okao

 ACODESynthesis Public Report of the Proceedings Dialogue of the 5th State Series of the Nation No.Platform 9, 2010

Table of Contents

List of Acronyms… ii Introduction 1 National Stability 2 Southern Sudan Referendum and ICC indictment of Bashir 3 UPDF Peacekeeping operation in Somalia 4 Uganda on the UN Security Council 5 The East African Community 7 The rise of China and India 7 The Anti-Homosexuality Bill 2009 8 Annex: List of Participants 10

 Synthesis Report of the Proceedings of the 5th State of the Nation Platform List of Acronyms

ACOD Advocates Coalition for Development and Environment DRC Democratic Republic of Congo EAC East Africa Community ICC International Criminal Court MFA Ministry of Foreign Affairs MP Member of Parliament NRM National Resistance Movement STON State of the Nation TFG Transitional Federal Government UNSC Security Council UPDF Uganda People’s Defense Forces US United States TTI Thin Tank Initiative OAU Organization for African Union

ii Synthesis Report of the Proceedings of the 5th State of the Nation Platform Introduction When the NRM came to power in 1986, the new government enthusi- Uganda is a landlocked country astically supported international and that depends on foreign imports especially African co-operation but for most of its consumer goods and conditioned it on an ideological evalu- energy requirements. Thus, even ation of whether other regimes were before independence, maintaining racist, dictatorial, corrupt, or violators an open trade route to the Indian of human rights. In a new assertive- Ocean was a primary foreign policy ness, Uganda actively supported the objective. Indeed, in the first decade overthrow of governments in Rwanda of independence, policymakers and D.R. Congo (then Zaire) because emphasised co-operation with they were dictatorial, corrupt, and Uganda’s neighbours. At continental abused human rights. An early ex- level, it assumed a pan-Africanist change of fire at the border with Ken- stance, being a founding member ya and active support of the southern of the Organisation of African Unity Sudanese in their fight for self-deter- (now African Union) and a strong mination, a policy act carried over supporter of liberation movements from the Obote and Amin regimes, especially in southern Africa. On the had Uganda being viewed with hostile global stage, the country maintained eyes all around the eastern African re- a posture of non-alignment although gion. Much of that has since changed, it sometimes sided more with the with the country now making interna- communist/socialist bloc led by the tional news not for war mongering but then-Soviet Union and China. All the for plans by some members of Parlia- while, however, the country acted in ment to hang homosexuals under a such a way as to protect and expand law now working its way through the its foreign trade and to continue legislature. getting foreign assistance. But Uganda may yet find itself The country’s foreign policy would being compelled to get belligerent. generally change with the emergence Events in the Sudan may force the of Idi Amin in 1971.Amin’s aggressive country’s hand. If South Sudan votes ways – claiming a part of Kenyan in a referendum (provided for in the territory in contravention of the Comprehensive Peace Agreement OAU treaty and the later invasion of of 2005) next year to secede, thus Tanzania, just to name two immediate splitting the Sudan into two, a civil war examples – damaged the country’s may once again erupt. That will likely international standing and eventually force Uganda to intervene on the cost him his job when the Tanzanians side of the South, hence setting led a war that ousted him in 1979. up a military confrontation with oil-rich Khartoum.

 Synthesis Report of the Proceedings of the 5th State of the Nation Platform That would be a confrontation with Other than Sudan and the proposed serious implications for East Africa, anti-homosexuality law, other issues especially Uganda and Kenya. Also, discussed and presented in this brief the refusal by the Sudan and Egypt to include the impact on foreign policy of sign a framework agreement setting Uganda’s discovery of oil, the UPDF’s up a River Nile basin commission in peacekeeping operations in Somalia, the wake of disagreements with seven regional integration, and the rise of other members (including Uganda) China and India. regarding water rights may bring about consequences Uganda will have National Stability to deal with. A country’s internal strength is crucial To have a serious foreign policy, in shaping the role it plays on the however, a country must be stable. international scene. More democratic, One would say Uganda is stable, which more developed and more stable is why it is now sitting on the UN countries tend to advance their Security Council as a non-permanent national interest – out of which emerge member for the years 2009 and 2010. foreign policy positions – better. Indeed, that was the starting point of Generally, the Executive arm of the Dr Ruhakana Rugunda’s discussion of state defines the national interest – the foreign policy at the 5th State of the country’s goals and ambitions. Because Nation platforms. the national interest, and therefore foreign policy, is rooted in a country’s domestic policy, one assumes that the people do have some say in defining the national interest as they elect the government of the day partly based on its domestic agenda. Dr Rugunda said Ugandans want stability and economic development – to boost their education, their environment – irrespective of political affiliation. Beyond those broad Guest Speaker: Ambassador Ruhakana Rugunda aspirations, he said, there may be (left) delivering a key note address during the 5th session of the State of the Nation platform variations in what constitutes aspects at Protea Hotel in Kampala on February 5, 2010. of the national interest. Taking notes is Godber Tumushabe, the Executive Director of ACODE Uganda, being one of only 44 landlocked countries in the world, cannot develop fast enough without co-operating with other countries, especially neighboring countries. Co-

 Synthesis Report of the Proceedings of the 5th State of the Nation Platform operation with other African countries [Uganda] because we are beneficiar- is, indeed, Point Number 9 on the ies. We need to support Sudanese to ruling NRM’s Ten-Point Programme solve their problems – to have peace- developed during the Bush War of ful elections and referendum.” South- 1981-1986. Despite ups and downs, ern Sudan is proving a lucrative busi- Dr Rugunda said, relations with DR ness destination for Ugandan busi- Congo and Sudan are on the mend. nesses. Close to $260 million (about With Kenya, Tanzania and Rwanda, Sh508 billion) worth of goods was relations are good. traded between Uganda and South- ern Sudan in 2009 compared to $60 Our [foreign policy] vision is Africa- million in 2006. This trade is almost centric, declared Dr Rugunda, who entirely in favour of Uganda. Any re- as president of the National Union of sumption of armed conflict between Students of Uganda in 1970 helped the North and the South of Sudan in organize student protests against the the likely event of secession will jeop- resumption of arms sales by Britain ardize this favourable economic ac- to apartheid South Africa. “Uganda tivity. Uganda, and possibly Kenya as has had many governments but they well, will throw its weight behind the have generally associated themselves South for historical reasons and also with pan-Africanism,” he said. because an independent “Republic of The best example of Dr Rugunda’s Southern Sudan” would be a boom for point is Sudan. It is the one country Ugandan and Kenyan businesses for a about which successive Ugandan long time to come. governments since independence have been consistent. They have all The situation just described may get given material and moral support worse, or not, depending on Uganda’s to the people of Southern Sudan as stance regarding the International they have fought back against real Criminal Court’s indictment of Sudan’s and perceived over-lordship from President Hassan al-Bashir for war the Arab North. crimes (2 counts) and crimes against humanity (5 counts) stemming from Southern Sudan Referendum his government’s actions and inactions and the ICC Indictment of in the Darfur region. The UN Security President Bashir Council referred the Bashir case to the ICC. “Uganda’s view is that the case Should the people of Southern Sudan should be deferred so that political vote in a scheduled referendum next means can be used to help sort out year to secede from the Sudan, as we the problems in the Sudan,” Dr know it today, Kampala’s relations Rugunda said. “Hurrying to with Khartoum may sour. Dr Rugunda indict Bashir, instead of seemed to acknowledge as much in being a solution, saying: “This is of great concern to

 Synthesis Report of the Proceedings of the 5th State of the Nation Platform Members of the platform listening attentively to Ambassador Ruhakana Rugunda delivering a speech on Uganda’s Foreign Policy on February 5, 2010 could end up being a problem. We indicate that number has since think the Mbeki report proposals doubled) peacekeepers in that country are a more realistic way forward.” A since March 2007. Apart from treating central proposal of the Mbeki panel, the sick, the Ugandans, and the established by the African Union in Burundians who joined them later, are the wake of the ICC indictment, is essentially backing up the Transitional a hybrid criminal court made up of Federal Government (TFG) in the hope Sudanese and foreign judges to try that it can establish national authority people accused of committing serious for meaningful political dialogue to crimes in Darfur. Uganda’s position so take place. “We are in Somalia not far favours Bashir. for pecuniary reasons but to stand side by side to help Somalis rebuild UPDF Peacekeeping Operations their country given the turmoil of 20 in Somalia years,” Dr. Rugunda said. “We went there because we are implementing Beyond Sudan, Uganda’s Africa-centric an African Union decision that is vision is being lived out in Somalia. consistent with our pan-Africanism.” The Uganda Peoples Defences Forces have maintained a Pan-Africanism or not the following contingent of about concerns need addressing: 1,600 (some reports

 Synthesis Report of the Proceedings of the 5th State of the Nation Platform Edmond Owor and Dr. Peter Mwesige listening in while Bernard Tabaire (Right) taking notes of the proceedings

• Countries such as Ghana and Given the above concerns, what is Nigeria that promised troops Uganda’s withdrawal plan? To this have not sent them three years point, Dr Rugunda once again invoked on without clear explanation. the Ugandan leadership’s pan- This absence has stretched Africanism that has also seen Ugandan the Ugandans and Burundians, soldiers, and police and prisons sometimes exposing them to officers serve in Liberia and Southern deadly attacks by militants. Sudan over the years. “That is why we • Despite the presence of the are training Somalis here in the police peacekeepers, militants, especially and the military,” he said. That was the al-Qaeda-affiliated al-Shabaab, another way of saying Uganda has no are increasing attacks on various withdrawal plan. It should, and must, targets and gaining ground in the develop one. Uganda cannot be a process. permanent peacekeeper in Somalia. • Despite the presence of the peacekeepers, again, the TFG has Uganda on the UN Security not imposed national authority Council and a political solution to the conflict is nowhere near. A significant moment for Uganda so far as a non-permanent member • With al-Shabaab threatening to of the UN Security Council has attack Kampala, did Uganda make had to do with Somalia. a mistake in sending troops to Somalia? A resolution it

 Synthesis Report of the Proceedings of the 5th State of the Nation Platform sponsored against Eritrea for its role allies. It is worth noting that Eritrea in Somalia and Djibouti was supported and Ethiopia, who have gone to war by 13 of the 15 members of the UN once before in a border dispute, Security Council. Libya opposed it while are on opposite sides in Somalia. China, a permanent member with veto Which begs the question: What are power, abstained. The resolution was Uganda’s real calculations in the Horn a result of two concerns, Dr Rugunda beyond reiterating its do-good pan-

said. (A) There are credible reports Africanism? that some of the foreign fighters and arms in Somalia pass through Eritrea. This (January 2009-December 2010) (B) Part of Djibouti is occupied by is the third time Uganda is sitting on Eritrean troops. The Security Council the UN Security Council. The first was asked Eritrea to withdraw within six in the 1960s with Apollo Kironde as weeks but a year later, Eritrea had not permanent representative. The second complied. It was, therefore, important time was 1981-1982 when Mr. Olara for the international community to Otunnu, now the Uganda Peoples show disapproval on both points. Congress presidential candidate, was Consequently, Resolution 1907 (2009) the ambassador. According to Dr stipulating an arms embargo, travel Rugunda, the Security Council is an restrictions, asset freezes on Eritrea important forum where a member was carried on December 23, 2009. country, especially a miniscule power But the irony here cannot be missed. such as Uganda, enjoys some benefits. In supporting one African country Such a country: (Somalia), Uganda has alienated • Influences decisions directly, another African country (Eritrea). say, on appointments and Uganda and Eritrea, unlike Uganda deployments. and Somalia, were once very close

A section of the platform members during the 5th session of the State of the Nation platform dialogue on 5/2/2010

 Synthesis Report of the Proceedings of the 5th State of the Nation Platform • Enhances its stature in bilateral deposits? If the EAC fails again, what relations. is Uganda’s Plan B? • Gets courted by big powers, On the question of member states not especially in search of votes for resolutions, and also courts them ceding powers to the EAC secretariat back to advance its interests. in Arusha, Dr Rugunda urged caution because the initial attempt collapsed • Plays a greater role generally than in 1977. “I would rather go a little slow non-members. Indeed, Uganda [because] once bitten, twice shy,” he used its seat to successfully push said in apparent contradiction to the anti-Eritrea resolution. President Museveni’s position of fast- The East African Community tracked integration. The Rise of China and India In discussing the East African Community, the opportunity was China and India are the talk of the world. missed to focus on Uganda’s place in Both countries, China especially, want the regional body. Polls have generally resources to power their expanding showed Ugandans to be supportive economies and feed their huge and of the Community and President prospering populations. After officials Museveni wants an East African of the China National Offshore Oil Corp Federation as quickly as possible. But met President Museveni in January, it it would still have been useful to know is almost a given that they will partner whether the people present at the with Tullow Oil, but with a focus on discussion shared that enthusiasm and downstream development of the what they thought the pitfalls, if any, oil: refining, exporting. China’s long were. When the question of Uganda’s courting of Uganda – providing grants discovery of oil came up, Dr Rugunda to build office blocks for ministries, said, without elaboration: “Oil will among other things, for example add a new dimension to the regional – may be on the verge of paying off. situation.” Could it mean that a wealthy With even bigger projects in other Uganda will go slow on deeper regional African countries, China is steadily integration or could it mean that it will spreading its presence, and possibly use its newfound wealth to bully other influence, across the continent. members into faster integration and on other matters as well? After all, In Dr Rugunda’s view, the best way even without oil money and power, for small countries such as Uganda to Uganda was mightily punching above deal with China and India is to do so its weight regionally. How about as blocs, for instance as the East relations with oil-exporting Sudan, and African Community. “The rise with DR Congo, a turbulent neighbour of blocs,” he said, “will with whom Uganda shares some oil give rise to more

 Synthesis Report of the Proceedings of the 5th State of the Nation Platform meaningful foreign policy because agriculture, fixing potholes.” we will have more in material and human resources. We need closer co- The exhortation did not settle the operation to also be able to protect issue as it cropped up again prompting our resources.” But the two Asian Dr Rugunda’s sharpest response of the powers also offer useful examples as morning. “We have to be ruthlessly well. “Fifty years ago, these countries candid,” he said. “There is no need to were laughed at,” the ambassador be reckless and put the country in more said. “Not any more. India was problems instead of helping it. Even unable to feed itself until the Green powerful countries take into account Revolution. Let’s take lessons.” other countries’ interests. It is insular to ignore other countries’ views. This The Anti-Homosexuality Bill, Bill has united two international lobbies 2009 against Uganda. There are those that do not accept the death penalty. So While addressing the national in raising [the death penalty in the executive committee of his party Bill], irrespective of the issues, you in January, President Museveni have mobilized the whole of Europe advised MPs to go slow on the Anti- against yourself [because the death Homosexuality Bill. The President said penalty is banned in all European it was a “foreign policy issue”. Union countries]. Then there is the gay Ambassador Rugunda picked up from lobby. It is crucial to not ignore these there. He said the Bill was not the two lobbies. Uganda does so at its own most important thing Uganda should peril. We shall encounter resistance. be discussing now. That it was crucial Our closest friends [in the United to take into account concerns of local States Congress] are embarrassed. people and international conventions Our development agenda should not on respect for human rights. However, be hijacked over this [Bill]. We should he did not say how this balance could not fight phantom wars.” be achieved. “My own advice and Just hours before Ambassador Rugunda view is: Uganda should correctly spoke, US President Barrack Obama choose its priorities and should not had described the Bill as “odious” at be allowed to be diverted into issues a prayer breakfast in Washington DC which may not have direct impact attended by politicians and religious on the ordinary person. Let leaders. He said it was “unconscionable us talk about improving

 Synthesis Report of the Proceedings of the 5th State of the Nation Platform to target gays and lesbians for who of the gains the country has made they are”. Homosexuality is actually in turning itself around. The Anti- illegal in Uganda and a guilty person Homosexuality Bill, 2009, brought by can serve up to 14 years in jail. Ndorwa West MP David Bahati as a private member’s Bill, does nothing to According to Dr Rugunda, who also has help that image. In any case, it is now served as minister for internal affairs clear what President Museveni meant and for foreign affairs, Uganda’s name when he said the proposed law was a is respected internationally because foreign policy issue.

 Synthesis Report of the Proceedings of the 5th State of the Nation Platform Annex: List of Participants

NO NAME CONTACTS & E-MAIL ADDRESS

M/SKashilling, Rugaba & Associates Plot 14 Nakasero Road Hussein R. Kashilling P.O. Box 22226, Kampala Law Society 1. 0717-771177 0712 090060 [email protected]

Parliament of Uganda P.O Box 7178 Hon. Beatrice Byenkya Kampala 2. Woman Representative Hoima +256 772 664 694 District +256 712 664 694 [email protected]

Makerere University P.O Box 7062, Bruce Balaba Kabaasa Kampala, Uganda 3 Convocation chairman +256 414 532631/4 0392-548929 [email protected]

Headmaster Nyakayojo Secondary School P.O Box 462 Tel: +256 48528060, National Vice Chairman 4 James Tweheyo Uganda National Teachers Union Plot 28-30 Bombo Road P.O box 377 0772-524-244 +256 41346917 [email protected]

10 Synthesis Report of the Proceedings of the 5th State of the Nation Platform Communication Department Dr. Peter Mwesige Kampala 5 ACME P.O. Box 7062 +256 772-313067 [email protected]

Uganda National Chamber of Commerce Policy Research & Advocacy Plot 27, Nakasero Road Morrison Rwakakamba P.O Box 6213, Resident Consultant 6 Kampala (U) +256 414340249 0712070181/0777 164660 [email protected]

RDC, Tororo P.O Box 1 Tororo or Samuel Mpimbaza Hashaka 7 P.O Box 352 +256 772507182 [email protected]

Private Consultant C/O ACODE Jacqueline Asiimwe Mwesige 8 +256 772 311713 [email protected]

Fred Bamwine RDC Nakawa Division Deputy Resident District +256 772 423658 9 Commissioner Nakawa [email protected]

Makerere University Senate Building, Thomas Tayebwa Convocation Office 10 MUK Convocation 0772 755622/0702200400 [email protected]

11 Synthesis Report of the Proceedings of the 5th State of the Nation Platform Mubende Town Council Network of Peace Living With HIV/AIDS Kamugisha Leonard Main Street next to the Town Council 11 Coordinator P.O Box 7 Mubende +256 774259446 (0772671192) [email protected]

[email protected] 12 Edmond Owor 0772502803

Uganda Police Force Hassan Kasingye Hotline +256 77 2 589457 13 Political Commissar +256 714 667710 +246 782 948464

Victoria Advocates Dewinton Road Kampala / Gerald Karuhanga Makerere University 14 NYTT Convocation Office Room 124 0772357375/0392 966387 [email protected]

Jaguar Group P.O Box 4799 Mr. Oramire Stuart Kampala 15 Business Development Manager +256 772 860363 [email protected]

State House Nakasero P.O Box 25497, Kampala Sunday Bushema Emmanuel +256-41-231900 16 Office of the Vice President +256 712 973094 [email protected]/ [email protected]

Kiwanuka & Karugire Advocates P.O Box 6061 Francis Nshekanabo 17 Acacia Avenue, Kololo 0774-685421

12 Synthesis Report of the Proceedings of the 5th State of the Nation Platform Johns Hopkins University Bloomberg Mr. Zikusooka Amos School of Public Health Coordinator, Communications 18 0712 425004/0712423004 Programme [email protected]

Executive Partner RR Relations Plot No. 16, Martyrs Way Ntinda 19 Richard T. Baguma Kampala +256 752383900 +225 752 628998 [email protected]

African Leadership Institute (AFLI) Plot No. 7, Phoenix Engineering Naguru Summit View Rd David Pulkol B P.O Box 23277, Kampala (U) 20 Director +256 41 578739, +256 31 2277124 0777-592477 [email protected] [email protected]

State House Richard Todwong P.O Box 25497, Kampala 21 Presidential Advisor Tel: 256-41-231900 Northern Uganda +256 772 424271 [email protected]

Uganda Cooperative Alliance Ltd Tayebwa Benson Plot 47/49, Nkrumah Road President of the Uganda P.O. Box 2215Kampala-Uganda Cooperative Alliance (UCA) 22 Tel; 256-414-258898/4,8 Fax: 256-414-258556 [email protected]

Parliament of Uganda P.O Box 7178 Hon. Lydia Wanyoto Kampala EAC Legislative Assembly 23 256414377180 +256 772 588 429 [email protected]

13 Synthesis Report of the Proceedings of the 5th State of the Nation Platform Ministry of Finance, Planning and Economic Development Keith Muhakanizi P.O Box 8147 24 Deputy Secretary to the Treasury Kampala +256 414 707 105/7/3 [email protected]

Bugamba Sub-county Mbarara District Vincent Mujuni Kyamadiidi 25 0782617415 [email protected]

P.O Box 34911 Kampala. Bernard Tabaire 61 [email protected] 0772575140

14 Synthesis Report of the Proceedings of the 5th State of the Nation Platform About State of the Nation Platform Annex:The State List of the of Nation Participants platform is a national policy forum to promote upward and downward policy conversation on contemporary public policy and governance issues in Uganda. The platform brings together individual leaders and professionals in the public sector, the private sector, civil society, the media and other interest groups into a policy discourse on contemporary policy and governance issues in the country. As an innovation in policy outreach and communication, the platform is a hybrid of ACODE’s breakfast dialogue format, interactive panel discussions and outreach through media. This policy outreach initiative has been conceived and is made possible with core funding support to ACODE provided under a grant from the Think Tank Initiative (TTI). The State of the Nation platform as a policy dialogue fora is defined by five core features: A core group of persons selected based on their professional backgrounds and achievement, public roles, active leadership in their social groups and interest in public policy and governance issues. Because of the individual influence and positions of its individual members, this core group acts as the brain trust of the State of the National platform and provide a policy feedback loop between citizens and policy makers. Local Level Segment is an innovative elements of the State of the Nation platform as a strategy for downward and upward policy engagement. The district fora aims at localizing national policy debates and putting them into the local context. Students Segment are organised to nurture and encourage a new generation of young leaders in the country, special segments of the State of the Nation Platform are from time to time organized targeting students and student leaders. Like the District segment of the platform, the students’ segment are organized in the different parts of the country and attendance is by invitation. All proceedings of the various State of the Nation platform are fully recorded. ACODE has entered into partnership with a number of media houses (TV and Radio) to ensure that the proceedings are broadcasted to a wider audience. In addition, the proceedings are also produced in the form of video and audio podcasts and loaded on the internet so that they can be accessed through ACODE and other partner websites. The participants in the State of the Nation platform have been built into a citizens network linked through electronic media, in particular, e-mail, cell phone and shot message texts. Building on the lessons from previous policy campaigns, the participants are mobilized into a network of citizens exchanging views and ideas on contemporary public policy and governance issues, helping members leverage key policy and decision making centers to increase the impact of their work, and generating consensus on issues of national importance.

Advocates Coalition for Development and Environment Plot 96, Kanjokya Street, Kamwokya. P.O.Box 29836, Kampala-UGANDA Telephone: +256-417-712150 Fax: +256-414-534056 Email: [email protected] , [email protected] ©2010 ACODE All Rights Reserved