A Thesis Submitted for the Degree of PhD at the University of Warwick Permanent WRAP URL: http://wrap.warwick.ac.uk/47800 Copyright and reuse: This thesis is made available online and is protected by original copyright. Please scroll down to view the document itself. Please refer to the repository record for this item for information to help you to cite it. Our policy information is available from the repository home page. For more information, please contact the WRAP Team at: [email protected] warwick.ac.uk/lib-publications Performing “good governance:” Commissions of Inquiry and the Fight against Corruption in Uganda by Monica Twesiime Kirya Thesis submitted in partial fulfillment of the requirements for a Doctor of Philosophy (PhD) Degree in Law University of Warwick School of Law Supervisor: Prof. Abdul Paliwala July 2011 Table of Contents Dedication ..................................................................................................................................... i Lists of Tables, Cases and Laws ............................................................................................. ii Acknowledgments ...................................................................................................................... v Declaration ................................................................................................................................ vii Abbreviations and Acronyms .................................................................................................viii Abstract ........................................................................................................................................ x Chapter 1 Introduction and Background 1.1 The fight against corruption ............................................................................................... 1 1.2 Context ............................................................................................................................... 6 1.3 Research Domain ............................................................................................................. 11 1.4 Justification for the research study ................................................................................... 14 1.5 Scope and objectives the study ......................................................................................... 18 1.6 Research Design and Methods ......................................................................................... 19 1.7 Definitions and key concepts of the study ........................................................................ 26 1.8 Analytical framework ....................................................................................................... 29 1.9 Thesis Outline ................................................................................................................... 32 Chapter 2 The Global Anti-corruption Framework: “Good Governance,” International Non- Governmental Organisations (INGOs) and International Law 2.1 Introduction ...................................................................................................................... 35 2.2 The ―good governance‖ discourse and anti-corruption .................................................... 36 2.3 The Role of Transnational NGOs – The Corruption Perceptions Index and the Moralisation of Good Governance Discourse ............................................................................. 72 2.4 International Anti-Corruption Law................................................................................... 77 2.5 Multi-National Enterprises: from bribe givers to moral entrepreneurs? .......................... 86 2.6 The emerging global anti-corruption norm ...................................................................... 89 2.7 Chapter Conclusion: An emerging consensus undermined by contradictions ................ 93 Chapter 3 The domestic framework for anti-corruption in Uganda: how to be a “good governor” without undermining your support base (part I) 3.1 Introduction ...................................................................................................................... 94 3.2 Uganda‘s ―near perfect‖ anti-corruption framework ........................................................ 98 3.3 The role of non-state actors in anti-corruption in Uganda ............................................. 128 3.4 Neo-patrimonialism and the ―lack of political will‖ to fight corruption ........................ 140 3.5 How the Uganda government subverts anti-corruption ................................................. 153 3.6 Chapter conclusion: Between accountability and impunity – commissions of inquiry as the solution to the dilemma of being a good governor and a powerful patron ......................... 182 Chapter 4 The role of Commissions of Inquiry in Governance: legitimation through truth- finding 4.1 Introduction ................................................................................................................... 184 4.2 Commissions of Inquiry – ubiquitous instruments of governance ................................. 185 4.3 Features of Commissions of Inquiry ............................................................................. 196 4.4 The Role of Commissions of Inquiry in Governance ..................................................... 210 4.5 Chapter Conclusion ........................................................................................................ 227 Chapter 5 Commissions of Inquiry into Corruption in Uganda (1999-Present) 5.1 Introduction .................................................................................................................... 230 5.2 The Legal and Administrative Framework for Commissions of Inquiry ....................... 231 5.3 Commissions of inquiry in Uganda (1986-1996) ........................................................... 236 5.4 Commissions of inquiry into corruption during the ―good governance‖ era (1996- present) ...................................................................................................................................... 238 5.4.1. The Police Inquiry 1999 ............................................................................................. 243 5.4.2 The Junk Helicopters Inquiry, 2000 ........................................................................... 255 5.4.3 The Uganda Revenue Authority (URA) Inquiry 2002 ............................................... 265 5.4.4. The Global Fund Inquiry 2005 ................................................................................... 279 Chapter 6 Analysing the role of commissions of inquiry in Uganda: how to be a good governor without undermining your support base (part II) 6.1 Introduction .................................................................................................................... 295 6.2 Deciphering the role of commissions of inquiry in Uganda .......................................... 296 6.3 Commissions of inquiry as conditionality compliance mechanisms .............................. 310 6.4 Commissions of inquiry as ―the play of good governance,‖ in Uganda ........................ 314 6.5 Commissions of inquiry and the preservation of the patronage system ......................... 327 6.6 Commissions of inquiry, accountability and resistance ................................................. 334 Chapter 7 Conclusion 7.1 Commissions of inquiry: multifaceted tools of governance ........................................... 339 7.2 ―Going out of style‖ – the end of the commissions of inquiry era? ............................... 344 Bibliography ............................................................................................... 350 Appendix Commissions of Inquiry in Uganda (1962- present) ............................... 382 Dedication For Mark, Immanuel and Sifi; and for Mummy and Daddy. And to the memory of Miss Jean Sumner, for her kind intervention at a crucial time in my education. i Lists of Tables, Cases and Laws Tables Table 1 Uganda Corruption Perception Index Rankings 1999 to 2010 Page 96 Table 2 Uganda Global Integrity Scorecard 2006-2009 Page 98 Table 3 Commissions of Inquiry into Corruption in Uganda 1999 - Page 244 Present Cases Andrew Mwenda and Another v. The Attorney Constitutional Petition No. 6 of General of Uganda 2006 Annebrit Aslund v. The Attorney General of Uganda Miscellaneous Cause No. 60 of 2004 Attorney General of Commonwealth Australia v. 1914 A.C. 237 Colonial Sugar Refinery Company Charles Onyango Obbo and Others v. The Attorney Constitutional Appeal No. 2 of General of Uganda 2002 Charles Mwanguhya Mpagi and Angelo Izama v. the Miscellaneous Cause No. 71 of Attorney General 2009 Fox Odoi & Another v. The Attorney General of Constitutional Petition No. 8 of Uganda 2003 Jim Muhwezi and Others v. the IGG and the Attorney Constitutional Petition No. 10 of General 2007 Kakooza Mutale v. The Attorney General of Uganda High Court Civil Suit No. 40 of 2003 Kizza Besigye versus YK Museveni and the Electoral Presidential Election Petition No. 1 Commission of Uganda of 2001; No. 1 of 2006. McGuiness v. Attorney General of Victoria (1940) 63 C.L.R. 73 Sebutinde v. The Attorney General and Uganda Constitutional Reference No. 5 of Revenue Authority 2005 Uganda v. Anna-Liza Mondon and Elizabeth High Court Criminal Session case ii Ngororano No. 30 of 2009 Ssemogerere & Others V. The Attorney General Constitutional Petition No. 3 of 2000 Uganda