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Between Militarism and Technocratic Governance State Formation in Contemporary Uganda

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Between Militarism and Technocratic Governance State Formation in Contemporary Uganda Between Militarism and Technocratic Governance State Formation in Contemporary Uganda Anders Sjögren FOUNTAIN PUBLISHERS www.fountainpublishers.co.ug THE NORDIC AFRICA INSTITUTE www.nai.uu.se Fountain Publishers P.O. Box 488 Kampala E-mail: [email protected] [email protected] Website: www.fountainpublishers.co.ug In cooperation with Th e Nordic Africa Institute P.O. Box 1703 SE-75147, Uppsala, Sweden Website: www.nai.uu.se Distributed in Europe and Commonwealth countries outside Africa by: African Books Collective Ltd, P.O. Box 721, Oxford OX1 9EN, UK. Tel/Fax: +44(0) 1869 349110 E-mail: [email protected] Website: www.africanbookscollective.com © Anders Sjögren 2013 First published 2013 All rights reserved. No part of this publication may be reproduced, stored in a retrieval system or transmitted in any form or by any means electronic, mechanical, photocopying, recording or otherwise without the prior written permission of the publisher. ISBN: 978-9970-25-150-6 Contents Acknowledgements ................................................................... viii 1. Introduction ............................................................................1 2. State and Society: Theoretical Arguments and Empirical Context .................................................................14 3. Formation of State and Society 1900-1986: The Roots of Destabilisation and Authoritarianism ...........56 4. The Transformations of State, Society and Health Regimes, 1986-1992: Regulating Instability .........100 5. State and Civil Society since the Early 1990s: Consolidating the “Governance State” .............................141 6. The Decentralised State:Regulating the Politics of Local Development ............................................179 7. Conclusions: Militarism and “Governance” in Uganda ............................................................................232 References ............................................................................... 273 Index ....................................................................................... 294 iii Abbreviations AGOA African Growth Opportunity Act BUCADEF Buganda Cultural and Development Foundation BUFA Bulando United Farmer’s Association CA Constituent Assembly CBO Community Based Organisation CCM Chama Cha Mapinduzi COFTU Confederation of Free Trade Unions in Uganda CP Conservative Party DA District Administrator DFID Department for International Development DP Democratic Party DRC Democratic Republic of Congo ERP Economic Recovery Programme FDC Forum for Democratic Change FEDEMU Federalist Democratic Movement of Uganda FOBA Force Obote Back Again HIPC Highly Indebted Poor Countries HSM Holy Spirit Movement HSMF Holy Spirit Mobile Forces IBEAC Imperial British East African Company ICC International Criminal Court ICFTU International Confederation of Free Trade Unions IFI International Financial Institutions IMF International Monetary Fund KANU Kenya Africa National Union KY Kabaka Yekka LC Local Council LRA Lord’s Resistance Army MADDO Masaka Diocese Development Organisation iv Abbreviations v MoFPED Ministry of Finance, Planning and Economic Development MoH Ministry of Health MoPS Ministry of Public Service NEC National Executive Committee NGO Non-Governmental Organisation NOM Ninth October Movement NOTU National Organisation of Trade Unions NRA National Resistance Army NRC National Resistance Council NRM National Resistance Movement PAPSCA Programme to Alleviate Poverty and the Social Costs of Adjustment PEAP Poverty Eradication Action Plan PHC Public Health Care PMB Produce Marketing Board PNDC People’s National Defence Council PRA Participatory Rural Appraisal PRA People’s Redemption Army PRA Popular Resistance Army PRS Poverty Reduction Strategy RC Resistance Council SAP Structural Adjustment Programme SPLA Sudan People’s Liberation Army SWAp Sector Wide Approach UCC Uganda Constitutional Commission UCMB Uganda Catholic Medical Bureau UDC Uganda Development Corporation UFL Uganda Federation of Labour UFM Uganda Freedom Movement UMA Uganda Medical Association UMWU Uganda Medical Workers Union UNC Uganda National Congress UNICEF United Nations Children’s Fund vi Between Militarism and Technocratic Governance UNLA Uganda National Liberation Army UNRF Uganda National Rescue Front UPA Uganda People’s Army UPC Uganda People’s Congress UPM Uganda People’s Movement UPMB Uganda Protestant Medical Bureau UPDA Uganda People’s Democratic Army UPDF Uganda People’s Defence Forces UPE Universal Primary Education USAID United States Agency for International Development UWESO Uganda Women’s Effort to Support Orphans WNBF West Nile Bank Front Glossary Busulu Ground tax Chaka mchaka pro-NRM political training courses Envujjo Portions of the harvest that the tenant would give to the landlord in order to keep in his favour. Kabaka King of Buganda Lukiiko Parliament of Buganda kingdom Mafutamingi A stratum of state created proprietors Magendo Underground (economy) Munno mukabi “a friend in need”, Community Based Organisation (CBO) Shamba Plot for cultivation Uganda n’Eddagala Lyayo Uganda Herbalist Association vii Acknowledgements This book grew out of my doctoral thesis, written over a long period. Consequently, my gratitude extends to a great number of individuals whose invaluable support, over the years, has enabled me to finish it. Two persons have been particularly important to me when working on this book. Professor Björn Beckman has been my supervisor ever since my undergraduate days and I cannot really express how thankful I am to have benefited from his wisdom, sharp intellect and generosity as a mentor, colleague and friend over the years. It has been a wonderful learning experience in the best sense. Haruna Bukenya in Masaka, Uganda, has become much more than a research assistant, as the term goes. He is a colleague and a friend, with whom I have shared all the practical and intellectual ups and downs of fieldwork as well as wonderful meals in his home. Many people have commented on this work at various stages of its development. In the Department of Political Science, Stockholm University; special thanks go to Henrik Berglund, Drude Dahlerup, Eva Hansson and Magnus Lembke. During the final stages, I received very valuable comments from Henrik Angerbrandt, Maud Eduards, Lasse Lindström and Rune Premfors. Other people whose comments and criticisms have strengthened the arguments in this book immensely are: Emmanuel Akwetey, Gunilla Andræ, Yusuf Bangura, Helena Bjuremalm, Jeremy Gould, Ben Jones, Raufu Mustapha, Cyril viii Acknowledgements ix Obi, Lars Rudebeck, K. Sivaramakrishnan, Olle Törnquist, and the late Mariken Vaa. Also in the department, Lena Helldner and Claes Linde offered invaluable support. Merrick Tabor skilfully copyedited the manuscript into readable English. Peter Mungai provided formatting expertise towards the very end. The research was generously supported by Sida/Sarec, for which I am most grateful. An early travel grant from the Nordic Africa Institute in Uppsala was also very valuable. In Kampala, the Centre for Basic Research (CBR) became a second home. Thanks to everyone at CBR for the assistance and friendship. During my first visits, the then executive director, the late Nyangabyaki Bazaara, with typical generosity supported me with practical assistance, intellectual discussions and enjoyable music. May you rest in peace. For comments on various drafts at CBR seminars, I wish to thank Godfrey Asiimwe, John-Jean Barya, Nyangabyaki Bazaara, Nicholas de Torrenté, Frederick Golooba-Mutebi, David Kibikyo, Mwambutsya Ndebesa, Joe Oloka-Onyango, Samson Opolot and Edward Rubanga. Simon Rutabajuuka read and commented upon the entire manuscript. Sallie Simba Kayunga, Richard Ssewakiryanga, David Ouma Balikowa, Anders Jeppsson, and Sam Okuonzi were all very helpful at different stages. Other friends in Kampala and Nairobi who have always given me of their precious time and immense knowledge are Andrew Mwenda, Ibrahim Ssemujju Nganda, Charles Onyango-Obbo and Sylvia Tamale. In the past, I was repeatedly treated to hospitality and friendship in Nairobi by Per and Lilian Karlsson. I am happy to be able to pay back that particular debt now! Ros-Mari Bålöw, Mia Haglund-Heelas and Paul Heelas, and Pernilla Trägårdh and Fredrik Malmberg at various times opened their homes for me in Kampala. Thank you all. x Between Militarism and Technocratic Governance In Masaka, I would particularly like to thank Michael Ssali, Eddie Ssejjoba, Vincent Basajja, John Kinsman, Sabina Bergsten and Nils Fagerberg, who all did their very best to make me feel at home. There are also innumerable other people in Masaka who assisted me in different ways, many without knowing it. And above all: to everyone in Bulando who took their time and shared their experiences with me – mwebale nnyo! A special thank you extends to Per Karlsson and Sverker Finnström for our ongoing informal seminar on Ugandan politics and society. It has been great – long may it continue! My parents, Eva and Ragnar Sjögren have always supported me to the full in every way possible. I am immensely thankful to you. Finally, my deepest and most heartfelt gratitude goes to Helena and our children Mikael and Rebecka, whose love, support, endurance and shared interest in Ugandan politics have exceeded all I could ever hope for. Anders Sjögren Stockholm October 2012 Map of Uganda xi Map of Uganda Chapter 11 Introduction In the wake of the socio-economic crisis of the 1980s,
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