Community Service and Recidivism: a Study of the Legal And
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COMMUNITY SERVICE AND RECIDIVISM: A STUDY OF THE LEGAL AND INSTITUTIONAL FRAMEWORK IN KAMPALA DISTRICT BY ANDREW SSEBUGGWAWO SUBMITTED IN PARTIAL FULFILLMENT OF THE REQUIREMENTS FOR THE AWARD OF THE DEGREE OF MASTER OF LAWS OF MAKERERE UNIVERSITY SEPTEMBER, 2010 DECLARATION I ANDREW SSEBUGGWAWO declare to the best of my knowledge and belief that this Dissertation has never been presented or submitted anywhere as a piece of work and that it is purely an original and novel work of my own. …………………………………………. Date…………………………………… ANDREW SSEBUGGWAWO CANDIDATE This thesis has been submitted with our consent: ………………………………………… Date…………………………………… MR. EMMANUEL KASIMBAZI SUPERVISOR ………………………………………… Date…………………………………… PROFESSOR FREDERICK JJUUKO SUPERVISOR i DEDICATION This work is dedicated to my grand mother, the late Noela Nakiganda Mukasa of Buwaali-Kisubi, Katabi, Busiro, Wakiso District. ii TABLE OF CONTENTS Declaration…………………………………………………………………………………i Dedication…………………………………………………………………………………ii Table of Contents…………………………………………………………………………iii Acknowledgements………………………………………………………………….……vi Appendices…………………………………………………………………………....…vii List of Acronyms……………………………………………………………………..…viii List of Legislations……………………………………………………………………….ix List of International and Regional Instruments………………………….…………….….x List of Cases………………………………………………………………………………xi Definition of Concepts………………………………………………….………….….....xii Abstract……………………………………………………………………………….…xiv CHAPTER ONE…………………………………………………………………………1 BACKGROUND AND OVERVIEW OF COMMUNITY SERVICE IN UGANDA………………………………….…………...1 1.1 Background to the Study……………...……………………………………….1 1.2 Statement of the Problem……………………………………………………...7 1.3 Objectives of the Study………………………………………………………..8 1.3.1 General Objective of the Study…………...…………………….…8 1.3.2 Specific Objectives of the Study…………………………...….…..8 1.4 Research Questions………………………………..……………………….….8 1.5 Scope of the Research…………………………..………………………….….9 1.6 Significance of the Study……………………………………………...………9 1.7 Chapterisation………………………………………………………………..10 1.8 Literature Review………………………………………………...………..…11 1.8.1 Introduction…………………………………………………...….11 1.8.3 Causes of Recidivism...…………………………………………..12 1.8.2 Institutional framework for Community Service………….......…16 1.8.4 Legal framework for Community Service.………………………20 1.8.5 Conclusion……………………………………………………….21 iii 1.9 Conceptual Framework………………………………………………………22 1.10 Methodology…………………………………………………………………24 1.11 Problems Encountered and Study Limitations……………………………….27 1.12 Data Quality Control…………………………………………………………28 1.13 Conclusion………………………………………………………...…………29 CHAPTER TWO……………………………………………………………………….30 OVERVIEW OF THE DOMESTIC INSTITUTIONAL AND LEGAL FRAMEWORK FOR COMMUNITY SERVICE……………………………..……..30 2.1 Introduction…………………………………………………………………..30 2.2 Institutional Framework…………………………………………………...…30 2.2.1 The National Community Service Committee…………………...30 2.2.2 The National Community Service Secretariat………………..….31 2.2.3 The District Community Service Committee………………...….33 2.2.4 The Probation and Social Welfare Office……………….……….33 2.2.5 The Judiciary……………………………………….…….………36 2.2.5 The Supervisor………………………………………….………..36 2.2.7 The Police & Prisons..…….………………….………………….40 2.2.8 The Placement Institution…………………………………….….42 2.2.9 The Community………………………………………….………45 2.2.10 The Government…………………..……………….…………….45 2.3. Legal Framework……………………………….……………………………46 2.3.1 Constitutional Basis of the Scheme...……………………………46 2.3.2 The Community Service Act & Regulations…………………….50 2.3.3 The Penal Code Act…………………………………………...…62 2.3.3 The Magistrates‟ Court Act………………………...……………62 2.4 Conclusion………………………...…………………………………………63 CHAPTER THREE……………………………………………………….……………64 COMMUNITY SERVICE AND RECIDIVISM IN KAMPALA DISTRICT…………………………………………………………...……………….…64 iv 3.1 Introduction……………………………………………………………….….64 3.2 Recidivism in Kampala District……………………………………….…..…64 3.3 The National and District Community Service Committees………………...65 3.4 The National Community Service Secretariat……………………………….67 3.5 The Probation and Social Welfare Office……………………………………67 3.6 The Supervisor……………………………………………………………….70 3.7 The Police & DPP…………………………………………………………....73 3.8 The Judiciary……………………………………………………...………….76 3.9 The Prisons……………………………………………………………...……78 3.10 The Placement Institution……………………………………………..…..…79 3.11 The Community…………………………………………………………..….81 3.12 The Government………………………………………………….………….83 3.12 Conclusion………………………………………………………………...…85 CHAPTER FOUR……………………………………………………………………...86 IMPACT OF THE LEGAL AND INSTITUTIONAL FRAMEWORK FOR COMMUNITY SERVICE ON RECIDIVISM………..….....86 4.1 Introduction………………………………………………………….…….…86 4.2 Overview of Findings…………………………………………………..……87 4.3 Conclusions...…………………………………………………...……………92 4.4 Recommendations……………………………………………………………94 4.4.1 Community Service Institutions………….…………………...…94 4.4.2 Logistics and Funding……………………………………………96 4.4.3 Education and Sensitization……………………………………...97 4.4.4 Economic Transformation and Empowerment……………….….97 4.4.5 Legal Framework………………………………………...………98 4.4.6 Political Goodwill………………………………………………..98 4.5 Issues for Further Study………………………………………………..…….99 4.6 Conclusion……………………...…………………………………..………..99 BIBLIOGRAPHY……………………………………………. …………………....…100 v ACKNOWLEDGEMENT I would like to extend my sincere thanks to the following people who have contributed towards the accomplishment of this work. Sincere thanks go to my supervisors, Mr. Emmanuel Kasimbazi and Professor Frederick Jjuuko for their dedication and guidance. Appreciation goes to Elizabeth Kabanda a Chief Magistrate, Peter Magela and Samalie Sekidde, who rendered great support to this work. I would also like to thank Jalia Tusiime for her moral and financial support rendered towards the accomplishment of this work. Sincere thanks go to my dear parents David Tomusange and Ruth Mukasa for the gift of knowledge that led to this work. vi APPENDICES Approved Community Service Management Structure………………………………...105 List of Offenders Sentenced to Community Service and The Offences they committed in Kampala District between 2004-2008……………………………………...…………………………………....….106 Number of Placement Institutions in Kampala District against Offenders who have served there between 2004-2008……..……………………….….108 Interview Guide for Key Informants…………………………………………….….…..111 Interview Guide for other Informants…………………………………………….….…112 Focus Group Discussion Guide……………………………………….…………....…..113 vii LIST OF ACRONYMS ACHPR African Commission on Human and People‟s Rights DANIDA Danish International Development Agency DPP Director of Public Prosecutions DPC District Police Commander DPsC District Prisons Commander FGD Focus Group Discussion IGP Inspector General of Police L.C(s) Local Councils NGO(s) Non Governmental Organizations P&SWO Probation and Social Welfare Office UN United Nations ULRC Uganda Law Reform Commission RDC Residence District Commissioner RSA Resident State Attorney viii LIST OF LEGISLATIONS Constitution of the Republic of Uganda, 1995 Community Service Act, Cap. 115 Community Service Regulations, 2001 No. 55 Penal Code Act, Cap. 71 Magistrates Court Act, Cap. 16 ix LIST OF INTERNATIONAL AND REGIONAL INSTRUMENTS African Charter on Human and People‟s Rights, 1981 Arusha Declaration on Prison Conditions in Africa, 1999 International Covenant on Civil and Political Rights, 1966 International Covenant on Economic, Social & Cultural Rights, 1966 Kadoma Declaration on Community Service Orders in Africa, 1997 Kampala Declaration on Prison Conditions in Africa, 1996 Ouagadougou Declaration, 2002 United Nation‟s Standard Minimum Rules for Non-custodial Measures (Tokyo Rules), 1990 United Nations Standard Minimum Rules for the Administration of Juvenile Justice (Beijing Rules) x LIST OF CASES Kato Abasi vs. Uganda, C.A No. 63 of 2000 (Court of Appeal) Livingstone Mukasa & 5 Others, vs. Uganda [1976] HCB 117 Sudhir Ruparelia vs. Uganda [1992-1993] HCB 52 Twinamatsiko vs. Uganda, C.A No. 2 of 1997 (Court of Appeal) Uganda vs. Corporal Lennox Omera [1992-93] HCB 77 Uganda vs. Nabakoza Jacqueline & 9 Others, Criminal Revision No. 8 of 2004 Uganda vs. Yang [1994] HCB 25 xi DEFINITION OF CONCEPTS Act: Community Service Act. Community Service: A Scheme or programme under which persons who have committed minor offences are given a sentence requiring them to perform work within the community. District Committee: A Community Service Committee under any subsisting District community service structure in Uganda. Minister: Minister Responsible for Internal Affairs. Minor offence: An offence for which the court may pass a sentence of not more than two years imprisonment. Offender: A person who has been ordered to undergo community service. Order: Community service order. Place of Abode: Where the offender stays for more than three months or so, either as the place of his work or which he/she has rented or his urban or rural home. Placement Institution: A place or organization where the offender is sent to perform a community service order. Pre-sentence Report: Report in the form of an assessment made to the court about the suitability of the offender to be ordered to perform community service. xii Recidivism: The re-offending cycle or tendency among ex- offenders of relapsing into criminal behavior despite being punished by community service. Regulations: The Community Service Regulations, No. 55, 2001. Supervising Court: The Court where the offender reports after being ordered to perform community service. Supervising Officer: A person appointed by the court to supervise