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REPUBLIC OF UGANDA Border and Migration

Management Assessment

The opinions expressed in the report are those of the authors and do not necessarily reflect the views of the International Organization for Migration (IOM). The designations employed and the presentation of material throughout the report do not imply the expression of any opinion whatsoever on the part of IOM concerning the legal status of any country, territory, city or area, or of its authorities, or concerning its frontiers or boundaries.

IOM is committed to the principle that humane and orderly migration benefits migrants and society. As an intergovernmental organization, IOM acts with its partners in the international community to: assist in meeting the operational challenges of migration; advance understanding of migration issues; encourage social and economic development through migration; and uphold the human dignity and well-being of migrants.

Publisher: International Organization for Migration 17 route des Morillons P.O. Box 17 1211 Geneva 19 Switzerland Tel.: +41 22 717 9111 Fax: +41 22 798 6150 E-mail: [email protected] Website: www.iom.int

© 2016 International Organization for Migration (IOM)

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.

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REPUBLIC OF UGANDA Border and Migration

Management Assessment

REPUBLIC OF UGANDA Border and Migration Management Assessment 3

TABLE OF CONTENTS

List of abbreviations ..........................................................................................................................5

Background .......................................................................................................................................6

Chapter 1. Environment and assessment background ...................................................................... 11

Chapter summary .................................................................................................................. 12

1.1.Countryenvironment(economicdevelopment,geography,migrationand bordermanagement,irregularmigration,transnationalcrime) ....................................13

1.2.Countryimmigrationandbordercontrolpriorities ........................................................15

1.3.International/Regionalmigrationpriorities ....................................................................16

1.4.Assessmentobjectivesandrationale .............................................................................17

1.5. Assessment workplan ..................................................................................................... 17

Chapter 2. Assessment methodology ............................................................................................... 19

Chapter summary .................................................................................................................. 20

2.1. Assessment scope, framework and plan ........................................................................20

Chapter 3. Administration ............................................................................................................... 22

Chapter summary .................................................................................................................. 23

3.1.BorderManagementAgency–Administrationresponsibilityoverview ........................24

3.2.DirectorforCitizenshipandImmigrationControlmanagementstructure .....................25

3.3. Finance, budget and resource management ..................................................................26

3.4.Recruitment,organizationalculture,operationalandmanagementskillstraining ........26

3.5.Workconditionsincludingsalary,performanceexpectationsand standards management ................................................................................................. 28

3.6. Values and conduct ........................................................................................................ 29

Chapter 4. Migration regulatory environment .................................................................................. 31

Chapter summary .................................................................................................................. 32

4.1. Overview of current general regulatory framework .......................................................32

4.2.Legislationandprocedures(pre-arrival,entry,stay,departure,residence, compliance,detention,peoplesmuggling,peopletrafficking,abuseofpower penalties) ....................................................................................................................... 34

4.3.Internationalobligationsandagreements(humanitarian,transnationalcrime, ICAOStandards) ............................................................................................................. 36

4.4.Inter-agencyandregionalcooperation ..........................................................................37

Table of contents4

Chapter 5. Border operations and policies ....................................................................................... 40

Chapter summary .................................................................................................................. 41

5.1.Borderoperationsoverview ...........................................................................................41

5.2.Cross-conferralofpowers ............................................................................................... 44

5.3. Intelligence ..................................................................................................................... 45

5.4.Detention ........................................................................................................................ 45

5.5.Counter-trafficking.......................................................................................................... 46

5.6. The passport system ....................................................................................................... 46

5.7. The work permit system .................................................................................................47

5.8.BCPandregionalofficehumanresourcemanagement .................................................48

5.9. Ministry of Health ........................................................................................................... 48

Chapter 6. Information technology management ............................................................................. 50

Chaptersummary(developedinlinewithobjectivesinChapter1:Environmentand assessmentbackground) ....................................................................................................... 51

6.1.ICTenvironment:Currentmigrationandpopulationmanagementprojects .................52

6.2. Overview of IT environment to support the border management business processes .56

6.3.Architecturaloverviewincludinghardwareandsoftwareatheadofficeand border checkpoints ........................................................................................................ 61

6.4.ITsecurityenvironment(Applicationaccess,datacapture,storage,archiving,backup andotherfeatures) ........................................................................................................ 62

6.5.ManagementandadministrationoftheITenvironment(includingplatform,licensing, technicalsupport,databaseadministrationandsystemperformance) .........................62

Chapter 7. Summary of key findings and recommendations ............................................................. 65

Thelistofrecommendationsthatfollowsissortedbypriorityandresponsibleagency for pursuing the changes. ...................................................................................................... 66

Additionalrecommendations/post-completionoftheassessment ....................................74

Annexes .......................................................................................................................................... 77

Annex1.Maps....................................................................................................................... 78

Annex2.Fulllistofconsultations ..........................................................................................80

Annex3.Attendancelistoftheassessmentdevelopmentworkshop (20and21May2014) ............................................................................................81

Annex4. Reportonthefieldvisitsundertakenduringtheassessment ...............................82

Annex5.DCICorganizationalchart .......................................................................................95

Annex6.Fulllistofrelevantinternationaltreatiesandconventionssigned/ratified by Uganda .............................................................................................................. 96


LIST OF ABBREVIATIONS

ASYCUDA AutomaticSystemofCustomsData

BCP Border crossing point

COMESA CommonMarketforEasternandSouthernAfrica

DCIC DirectorateofCitizenshipandImmigrationControl

EAC EastAfricanCommunity

ECTS ElectronicCargoTrackingSystem

HGV Heavy goods vehicle

IBM Integrated Border Management

ICAO InternationalCivilAviationOrganization

ICT Informationandcommunicationstechnology

IGAD Intergovernmental Authority on Development

INTERPOL InternationalCriminalPoliceOrganization

IOM InternationalOrganizationforMigration

ISO InternalSecurityOrganization

LAN Local area network

MIDAS MigrationInformationandDataAnalysisSystem

MOFA MinistryofForeignAffairs

MOU Memorandum of understanding

NCIB NationalCitizenshipandImmigrationBoard

OSBP One-stopborderpost

PST Personal Safety Training

PISCES PersonalIdentificationSecureComparisonandEvaluationSystem

SOPs Standardoperatingprocedures

TIP TerroristInterdictionProgram

UPDF Uganda People’s Defence Forces

UPF Uganda Police Force

URA UgandaRevenueAuthority

VPN Virtual private network

WASP Wanted and Suspect Persons

Background6

BACKGROUND

The Government of the Republic of Uganda requested external assistance from the InternationalOrganizationforMigration(IOM)toundertakeafullreviewofUganda’smigrationandbordercontrolcapacity. It was with the generous assistance of the Government of Japan that IOM was able to produce the assessment in 2014. Building capacity involves increasing the knowledge and enhancing the skills of agenciesandofficialschargedwithUganda’smigrationmanagement.Capacity-buildingcantaketheformofsubstantivedirectprojectdesignandimplementationinpartnershipwiththeGovernmentofUganda,which includes training and policy advice. The aim of such capacity development is to build towards generally acceptable benchmarks ofmanagement practices. Consequently, a comprehensive BorderandMigrationManagementAssessment(BMMA)wasconductedtoidentifyexistinggapsandprovidea platform for the formulation of evidence-based policies for the effective control andmanagementof Uganda’s borders. The BMMAwas effected through a series of consultations, engaging relevantstakeholders.Itusedquantitativeandqualitativemethodsforgatheringrelevantdata.Theapplicationofbestpractices–ameanstofurthertheapplicationofexistingnormsandprinciples–wasconsideredsotheymightbetranslated intooperationaldirectivesandprocedures. Throughouttheassessment,thereareexamplesof innovationsandcreativesolutionstoensureapositive impactonnationalandregionalsecuritywhilerespectingprinciplesofhumanmobilityandupholdingmigrants’rights.

TheassessmentteamwasimpressedwiththeoperationsoftheDirectorateofCitizenshipandImmigrationControl (DCIC),whichdisplaysahigh levelofprofessionalismanddeliversgoodresults indemandingconditionswithminimalresources.DCICoperatesonlimitedfundingwhich,whencomparedtofellowborder control agencies that are well resourced, means that its ability to perform the formidable mandate to “facilitate the legal and orderly movement of persons to and from Uganda, verify and process Uganda citizenshipandenforceimmigrationlawsforthesecurityanddevelopmentofUganda”iscompromised.DCIChastomaintainessentialfunctionstoensurethesecurityofUganda,especiallyasterrorismandthreatassessmentiscurrentlyakeyconcernforUgandafollowingthe2010Al-Shababattacks.Asaresult,anoverridingpriorityforUganda’sbordermanagementagencies,inparticularDCIC,istocontributetomaintaininglawandordertobolsternationalsecurity.Furthermore,Ugandahasadutytoprosecuteorextraditeindividualsresponsibleforthecommissionofinternationalcrimes.ConsistentwiththissecuritypriorityandUganda’sdevelopmentgoalsasexpressedinitsNationalDevelopmentPlan2010/11–2014/15and longer-termbordercontrolobjectives,thisassessment identifiesandmakesrecommendations inanumberofareasof focusto improveUganda’sbordersecuritythrough jointcooperation(includingsharingofassets)andenhancedinfrastructurearrangements.

Bordermanagement is a complex task as it involves the facilitation of authorized flows of persons,including business people, labour migrants, tourists, migrants and refugees across a border and the detectionandpreventionofirregularentryofnon-nationalsintoUganda.Measurestomanagebordersincludetheimpositionofvisarequirements,carriersanctionsagainsttransportationcompaniesbringingirregularmigrants to Uganda and interdictions by border patrols. International standards require abalancebetweenfacilitatingtheentryoflegitimatetravellersandpreventingthatoftravellersenteringforinappropriatereasonsorwithinvaliddocumentation.Atthesametime,DCICrecognizestheimportanceof linking border management to human development, human rights, human mobility and human security.Ugandaoperatesintheglobalmarket.Accordingly,itiscommittedtoreducingimpedimentsto the movement of goods and people across its borders to help the country in taking advantage of the benefitsandopportunitiesthisfacilitationaffords.Facilitatedmigrationfostersandencouragesregularmigrationbymaking traveleasierandmoreconvenient. Thismay take the formof streamlinedvisaapplicationprocessesorefficientandwell-staffedtravellerinspectionprocedures.Consequently,DCICisakeypartner,withitscloseassociateatbordercrossingpoints(BCPs),Customs,inthedevelopmentoftheEastAfricanCommunity-approvedone-stopborderpostconcept.


Theassessmentconsistedofseveralactivities,suchasconductingaconsultativeworkshopwhereinputswerereceived, ideasdebatedandsuggestionstakenintoconsideration. Bilateralmeetingswereheldbetweentheassessmentteamandkeyagencies.Atfieldvisitstothefrontlineandtoheadquarterunits,theteamobservedDCICoperationsandworkingconditions. Avalidationmeetingconfirmedthekeyfindingsoftheassessment.

The assessment and workshop found that there was a good basis on a number of improvements suggested throughthisreport.Somekeyissuesforfurtherconsiderationareasfollows:

• TheDepartmentof Immigrationshouldbuildon itsbaseofwell-educatedstaff,byestablishingits own training facility and using the availability of the IOM African Capacity Building Centre at Moshitoidentifyandprioritizetrainingneeds,anddevelopanddeliverthepracticaltrainingneedsvoicedbymanyDCICofficers.

• Toaddressstaffingshortages,thecross-conferralofbordercontrolpowerswouldenableofficerstoperformotheragencies’functionsattheborder,withtheaimofreducingmultipleborderofficerpresenceattheprimarylineandenablingofficerstoberedeployedtoborderpatrolsandotherenforcementfunctions.

• The effectiveness of computer systemsoperatedby theDCIC is limited by lack of integration/connectionandlimitedcommunications/poorInternetaccess.Stepsshouldbetakentodeveloplinkages, createnationaldatabases,and thusprovideagenciesandseniorofficerswithcurrentinformationneededatthetimeofdecision-making.

• The current watch list arrangements are not effective in preventing the entry into Uganda ofpersons of concern. The watch list process needs to be re-established, links to InternationalCriminalPoliceOrganization(INTERPOL)databasesneedtobeincorporated,andreal-timelinkstoborder management systems need to be established.

• Inefficient and ineffective paper-based processing systems should be reviewed and changesimplemented. In the case of passport issuance, much could be achieved with limited changes totheexistingcomputerizedsystem.Forpermitprocessing, implementationofacomputerizedsystem is recommended as is envisaged in the new eVisa and eWorkpermits systems.

Theassessmentteam’sreviewofDCICoperationsandmethodologyindicatedsomeroomforpositivechangesinenhancingitscurrentcapacitytopursueitsmandateofprotectingthecountry’sborders,andinthedeliveryofitspassport,visaandpermitsresponsibilities.

However,thedepartmentiswellservedbycapableleadersandprofessionalstaffandwellpositionedtotakeadvantageoftherecommendationsinthisreport.

Determining Uganda’s borders

Uganda’sborders‒with anumberof its neighbours‒ remain the subjectof dispute in someareas.CompoundingthisisUganda’sadherencetopost-colonialbordersthatcutacrosstraditionaltribalandcommunitycatchmentareasandhaveneverbeenofficiallydemarcated.

Whiletheseissuesarelong-standingandcomplex,theirresolutionmustbeapriorityforUgandatobeable to manage and monitor the movement of people and goods in and out of its territory.

Background8

Ugandahasbeguninvestinginefforts,bothbilaterallyandthroughtheAfricanUnionBorderProgramme,tobetterdelineateitsborderswithneighbouringcountries.1 In this regard, it is well accepted that a border isalineseparatingthelandterritoryoftwoStates.Accordingly,afteranagreedsurvey,aboundarycanbemarkedphysicallyfromGPScoordinatepointswithrobustmarkers,suchasmetalpostswithofficialinscriptions.Thiswillrequirestrongpoliticalsupportandnegotiationsatministeriallevelwithborderingcountries.

Determining the composition of Uganda’s citizenry

Afundamentalresponsibilityofallgovernmentsistoreliablyidentifyitscitizensandresidents.AnationalofUganda isapersonwho,eitherbybirthornaturalization (cf.UgandaCitizenshipAct,1962),owesallegiancetothecommunityandthusentitledtoenjoyall itscivilandpoliticalrightsandprotection,isamemberoftheStateandassuchentitledtoallitsprivileges.ThereisevidencetosuggestalargenumberofundocumentedcitizensandmigrantscontinuetocompromisetheintegrityofgovernmentadministrationinUganda.Irregularmigrantsarenon-nationalswhoenterorstayinUgandawithouttheappropriatedocumentation.Thisincludesthefollowingpersons:(a)havenolegaldocumentationtoenterUgandabutmanagetoenterclandestinely;(b)thosewhoenterorstayusingfraudulentdocumentation;or(c)afterenteringusinglegaldocumentation,staybeyondthetimeauthorizedorotherwiseviolatethetermsofentryandremainwithoutauthorization.GiventheporousnatureofUganda’sborders,therearenumerousunauthorizedentries–actsof crossingborderswithout complyingwith thenecessaryrequirements for legal entry intoUganda. At the sametime,unresolvedborderdisputesmean thatin these transborder areas citizenship andproperty rights remainunresolved.Adopting theNationalMigrationPolicy,NationalDiasporaPolicy,NationalActionPlanAgainstTraffickinginPersons,NationalPolicyon InternallyDisplacedPersonsandfinalizing theNational IdentityCardprojectare importantinitiatives, but theywill not solve all border and identitymanagement issues (including the overuseof easily forged temporary passes) so theywill need to be coordinated. That is why the team hasrecommendedaNationalIntegratedBorderManagementStrategy.

Adoption of a coordinated national identity security focus

In linewith the above, this assessment recommends that DCIC take a lead in developing a nationalidentitysecuritystrategythatcoordinatesalldomesticidentityinitiativeswiththoseappliedatbordercontrol.Attentiontoinformationandcommunicationstechnology(ICT)issueswillassisttocoordinateandultimatelyintegrateidentitymanagementsystems.IfICTsystemsareupgradedandusedforissuanceofpassportsandother traveldocuments,visas, residence/workpermits, IDcards, licencesandotherinformationdatabankssuchas ID registers (that is,births,deathsandmarriages)are linked throughappropriateprotocolsandsoftware,Ugandawouldbeabletoenhanceitsoverallidentitysecurityregime.Akeytothisistheuseofbiometrics,soallsystemsareaccessiblethroughanindividual’sfingerprints,whichverifyone’sidentity.

A professional immigration service

Bordercontrol,identityandmigrationmanagementaretechnologyintensive.Identityandbordersecurityissues are, as a result, inherently technically complex.Under current administrativearrangements, it

1 InAugust2014,ameetingwasheldbetweenUgandanandSouthSudanesedelegations, representedby theofficialscoming fromtheMinistryofLand,HousingandUrbanDevelopment,todiscusstheborderdisputes.ItwasrecommendedtoformaJointBorderVerificationandDemarcationCommitteeandsignamemorandumofunderstandingonJointVerificationandDemarcation(www.mofa.go.ug/data/dnews/80/Uganda-and-South-Sudan-move-towards-resolving-border-conflict.html).Similarly,ademarcationprojectbetweenUgandaandRwandaundertheAfricanUnionBorderProgrammeisunderway.

(www.mofa.go.ug/data/dnews/80/Uganda-and-South-Sudan-move-towards-resolving-border-conflict.html). Similarly, a demarcation project between Uganda and Rwanda under the African Union Border Programme is underway.


isnotpossibleforDCICstafftodeveloptheknowledge,skillsandexperiencetheyrequiretobecomeexpertsinICT-basedsolutionsissues,andtobeabletosharetheresultsgeneratedfromsuchexpertisewiththeirlawenforcement,securityandcivilregistrationcounterparts.

ThisassessmentrecommendsthatUgandaneedstocreateaprofessionalimmigrationservicethroughacarefullydevelopedpolicyonselection,placement,transferandspecialisttrainingofitshumanresources.

Training and development

Asignificant investment in trainingand skills development forDCIC is required (but this trainingwillonlybeeffectiveifDCICstaffcanobtaindeepandbroadrelevantexperiencebyworkingcontinuouslyinimmigrationroles).

ApermanenttrainingunitunderDCICforBorderandMigrationManagementproposedinthisreportwithcomputerequipment,curriculumdevelopmentanddeliveryoftrainingisrecommended.

Specialized DCIC units

With the consolidation of a professional immigration service and when the training unit becomesoperational,DCICwillbe inabetterpositiontoestablish thespecializedunits itneedstosupport itsoperations.Thesespecializedunitswillneedtoinclude,interalia:(a)anearlywarning,riskassessmentand identity-focused intelligence unit; (b) enhanced and capacitated investigations unit to improvecompliance;(c)in-houseICTexpertsection,forensicdocumentexaminationunitsatEntebbeandattheKampalaheadquarter;and(d)ensuringappropriatelyconfiguredandstaffeddetentionfacilitiesoperateatEntebbeandKampala.

Reviewing Uganda’s migration regulatory framework

TheassessmentteamnotedtheconsiderablelegislativereviewbeingundertakeninthewakeofUganda’sEastAfricanCommunity(EAC)integrationcommitments.ManyoftheimportantlegislationgoverningtheoperationsandproceduresoftheDCICarealsointheprocessofamendmentandupdate.AnumberofinternationalconventionsrequiremirrordomesticlegislationtogivethemeffectinUganda’sjurisdiction.ThesedevelopmentsareoutlinedinChapter4,togetherwithrecommendations.

Border systems and ICT

Uganda has two existing border management systems: Personal Identification Secure Comparisonand Evaluation System (PISCES) andMigration Information andDataAnalysis System (MIDAS). DCICoperates the MIDAS Border Management Information System in order to collect, process, storeand disseminate travellers’ informationwhen entering and exiting border points for the purpose ofidentification, authentication, data collection and analysis. It has been designed to enhance DCIC’smigrationmanagement,particularlyatbusyBCPs.Itcontributestobettermonitorbordermanagementandshapereactivemigrationandbordermanagementpolicies.Overall,MIDASenablesimprovedborderfacilitationandbordermovementcontrol.Itsupportsbetterevaluationofcross-borderflowsandhelpsdetermineoptimumdeploymentofhumanandfinancialresourcesatborders.MIDASisavitaltoolformigrationintelligence.ThePISCESsystemdoesnotcapturemigrationdatathatcanbeaccessedatwill.ItisatravellerdatacapturesysteminstalledbytheGovernmentoftheUnitedStatesaspartofitsextendedborderprogrammetogatherdataonpotentialcriminalsandterroristswhomightbeathreattocountriesthatuseorhaveaccesstothesystem.Problemsexistwiththesesystems’connectivityandmaintenance.Consequently,theyarenotusedatalltimesbyImmigrationstaffmainlyatfieldlocations.Thereasons

Background10

forthisneedtobeunderstoodandmanagedtochangeexistinganomalies.Thisassessment(Chapter6)should inform the further development of ICT management to improve its usability and add new and essentialfunctionsthatwillbekeptsecureandproperlymaintained.

This assessment makes more than 38 recommendations, including 21 key recommendations, theirpriorityimmediate,whoseimplementationisregardedascriticaltoaddresstheareasoffocusdiscussedinthisexecutivesummary.

Support forthe implementationofanumberofrecommendationswillbecanvassedby IOMandtheGovernmentofUgandafromdonorcountriesactiveincapacity-buildingforbordercontrolandmigrationmanagement.ItistheprerogativeoftheGovernmentofUgandatodeterminewhetherandforwhichrecommendationsdonorsupportmightbesought.

CHAPTER 1

ENVIRONMENT AND ASSESSMENTBACKGROUND

Chapter 1. Environment and assessment background12

Chapter summary

TheRepublicofUgandaisalandlockedcountrythatshareslongandcomplexborderswithfiveothercountries:SouthSudanonthenorth,theDemocraticRepublicoftheCongoonthewest,Kenyaontheeast,Rwandaon the south-westand theUnitedRepublicofTanzania to the south. LakebordersaresharedwiththeDemocraticRepublicoftheCongo(LakeAlbert,LakeEdward)andKenyaandtheUnitedRepublicofTanzania(LakeVictoria).Ugandaadherestopost-colonialbordersthatcutacrosstraditionaltribalandcommunitycatchmentareasandhaveneverbeenofficiallydemarcated.

Thecountryisdividedinto111districtsand4administrativeregions.Thereareatotalof41gazettedborderposts,35ofwhichareactiveandoperational.Mostofthebordercrossingsarepoorlyresourcedintermsofinfrastructureandequipment.Additionally,therearehundredsofunofficialcrossingpoints,makingUganda’sborderextremelyporous.Thenatureofmigrationflowsandothercross-bordermovementinUganda is heavily impacted by the unstable environment of Uganda’s neighbouring countries. It is also affectedbynaturaldisasterslinkedtoenvironmental/climatechangewhichmotivateincreasedirregularborder crossings.

Environmentalchange,inadequateborderinfrastructureandporositymakeUganda’sbordersvulnerableto all kinds of irregular and illegal cross-border activities. They include the smuggling of goods andmigrants, trafficking inpersons, illicitdrug trade,wildlifeandfirearmstraffickingand in recentyears,terrorism.

TheGovernmentofUgandalackscomprehensivepoliciestodetermineappropriatepriorities,objectivesand actions for all agencies involved in bordermanagement. Nor does it have adequate budgetarymeasures in place to support itsmigrationmanagement regime. There are various influences upontheGovernmentofUgandamigrationpolicyframeworkandassociatedprocesses.MembershipoftheEAChasmadeintegrationapriorityfortheregionasitcallsforfacilitatedmovementofpeople,goods,services and labour across borders. Uganda’s National Development Plan 2010/11–2014/15 calls forstrengthening joint border security coordination and enhanced inter-agency cooperation to ensureroutinebordersurveillanceandpreparationofregularreportsforaction.2TheMigrationPolicydocumentisbeingconsideredandwhenitisadopted,willsetoutclearmigrationmanagementaimsandobjectivesin theDirectorate forCitizenship and ImmigrationControl (DCIC),which is responsible for regulatingUganda’sentryandexitprovisionsandoutlinesthefollowingkeyprioritiesforbordermanagement:

• Bettermanagebordercontrolsbystandardizingandimplementinginter-agencycooperationandjointactions.

• Reduceborderporositybyenhancingpatrolsalongborders.

• Ensurecontinuousprofessionaldevelopmentandcapacity-building throughthecreationof theBorderandMigrationManagementTrainingCentre;developharmonizedandstandardizedtrainingcurriculaandorganizeandharmonizetrainingproceduresandprogrammes.

• Enhance the border infrastructure and information technology (IT) system enablinginterconnectivity among all gazetted border posts and create a centralized database,and implement automated procedures for border movements and migration control.

2 NationalDevelopmentPlanofUganda2010/11–2014/15,p.307.

Enhance the border infrastructure and information technology (IT) system enabling interconnectivity among all gazetted border posts and create a centralized database, and implement automated procedures for border movements and migration control.


1.1. Country environment (economic development, geography, migration and border man-agement, irregular migration, transnational crime)

Uganda has a territory of 241,550.7 km3. The country’s last census took place in 2002 and reported a populationof24.2millionpeople.The2013projectionisforapopulationof35.4million(UgandaBureauofStatistics(UBOS),2013a).Populationgrowthaveragesat3.2percentperannum.Currently,78percentofthepopulationisbelow30yearsofage,and52percentisbelow15yearsofage(ibid.).

Ugandaisa low-incomedevelopingcountry,anditseconomicgrowthis5.8percentperannumwithgrossdomesticproductestimatedatUSD21.48billion.4 It is mainly an agricultural country. This sector employs 80 per cent of Uganda’s workforce. The main industrial activities are linked to agriculture(tobacco, coffee, cotton) and the rest to steel andmines. Since2007, theAlbertine regionhasbeenprospectedforoil,whichhasthepotentialtogeneratesignificanteconomicgrowthforthisregion.Theenhancementofsecurityandpeaceinthecountryoffersthepotentialfortourismtobecomeagrowthsector in the economy.5

ThetotallengthofUganda’sbordersis2,698km.UgandasharesitslongestborderwithKenya(933km),followedbytheDemocraticRepublicoftheCongo(765km),SouthSudan(435km),theUnitedRepublicofTanzania(396km)andRwanda(169km).6Mostofitsbordersarelandborders;however,therearesignificantblue/lakeborderswiththeDemocraticRepublicoftheCongo(LakeAlbertandLakeEdward)andwiththeUnitedRepublicofTanzaniaandKenya(LakeVictoria).

Uganda’sborders,likemostofthebordersintheAfricancontinent,arenotproperlydemarcated.ThebordersweredrawnduringthecolonialperiodinthecontextofrivalriesbetweenEuropeancountriesand their scramble for territories in Africa. The African Union has noted that since African countries havegainedindependence,thebordershavebeenarecurrentsourceofconflictsanddisputesonthecontinent.

Thelocationofstrategicnaturalresourcesincross-borderareasposesadditionaldifficultiestoresolvebilateralrelationsissues.TheAfricanUnionBorderProgramme(AUBP)initiatedin2007aimstoaddressthesechallengesby transcending thebordersasbarriersandpromoting themasbridges linkingoneStatetoanother. Africacanboosttheongoingeffortstointegratethecontinent,strengthenitsunityandpromotepeace,securityandstabilitythroughthestructuralpreventionofconflicts.7Uncertaintiesconcerningborderdemarcationposemanychallenges forbordercontroland theday-to-dayworkofagenciessuchastheDCIC.ThebordersveryoftencutacrosstribalcatchmentareasthatstraddletwoStates.Thisneeds tobe resolved through standardizationand thedeterminationofaworkable localborder regime that allows traditional movement of people based on good international practices.8 Anexamplewherethismightbetrialed is theBCPatKikagati,whereethnicallyrelatedUgandanandTanzanian nationals cross daily without travel documents for family reasons, such as weddings andfuneralsorjustcasualvisitstorelations.

Recognizingtheneedtoregulatebordersinawidercontext,theAfricanUnionhassetuptheAUBP,whichenvisions a united and integrated Africa with peaceful, open and prosperous borders.9ThereareexistinginitiativesonborderdemarcationunderAUBP,suchastheregimebetweenUgandaandRwanda.AUBP

3 UgandaBureauofStatistics(UBOS),2013 Statistical Abstract(UBOS,Kampala,Uganda,2013).4 WorldBank,CountryataGlance–Uganda.Availablefromwww.worldbank.org/en/country/uganda5 IOM, Migration in Uganda, A Rapid Country Profile 2013 (IOM, Kampala, Uganda, 2015). Available from https://publications.iom.int/

system/files/pdf/mp_uganda_25feb2015_web.pdf6 https://cia.gov/library/publications/the-world-factbook/geos/ug.html7 CommissionoftheAfricanUnion,DepartmentofPeaceandSecurity(AUBP),Delimitation and Demarcation of Boundaries in Africa: The

User’s Guide (AfricanUnionCommission, Addis Ababa, Ethiopia, 2013). Available fromwww.peaceau.org/uploads/au2013-en-delim-a-demar-of-bound-gen-iss-a-studies-elec2.pdf

8 Goodexamplesarethejetons,whicharebeingissuedtolocalresidentsintheDemocraticRepublicoftheCongo.Inaddition,theEuropeanUnionhasintroducedalocalbordertrafficregimethatprescribestheconditionsandregulatesthemovementofresidentsinlocalborderareas(upto50kminland).

9 www.peaceau.org/en/page/27-au-border-program-aubp

km2.3 The country’s last census took place in 2002 and reported a


received funding from the Government of Germany in November 2013 to undertake demarcationinitiatives.ThesamemightbedonefortherestofAfrica.

EastAfricacontinuestobevulnerabletoterroristattacks, illegalcross-borderactivities,aswellasmassmigrationcausedbyhumanitariancrises.Uganda,inparticular,isfacingnumerouschallengesatitsborderduetovolatilityinsomeneighbouringcountries,whichgreatlyaffectsbothregionalandnationalsecurity.

TerrorismremainsagreatsecuritychallengeforUganda.Themostseriousterroristaction inUgandaoccurredinJuly2010whenSomalia’sAl-ShababgroupsetoffexplosionsattworestaurantsinKampala,killing74people.Uganda’spresenceinSomaliacontinuestoattracttheunwantedattentionofAl-Shabab,andnumerousterroristalertsarebeingraisedespeciallyinviewofincreasedactivitiesinneighbouringKenya.Duringthefirstsixmonthsof2014alone,approximatelyfiveterroristattacksoccurredinKenya,withanAl-Shababattackon16Junethatkilled48people,andon6July,whichkilled22people.ThisspateofterroristactivityresultedinnumeroussecurityalertsbeingissuedbytheGovernmentofUganda.

Furthermore, migratory movements across the border, which are induced by several natural disasters, havealsobeenlinkedtotheeffectsofenvironmentalandclimatechange.

Thesedisastersincludefamineasaresultofdrought,earthquakes,pandemics,flooding,landslides,croppestinfestation,livestockandwildlifediseaseepidemicsamongothers.AccordingtoUganda’sdisasterpolicydocuments,forthelast20yearsonaverage,morethan200,000Ugandanswereaffectedeveryyearbydisasters(GovernmentofUganda,2010).10

The long stretch of Uganda’s border with Kenya in the north-eastern region of Karamoja is poorlymannedandpatrolled,andthismakesitpronetoillegalcross-borderactivitiesthatmayincludetheillicittraffickingofsmallarms.

ThenorthernborderwithSouthSudanhashistoricallybeenaffectedbytheconflictsthatoccurredduringthatcountry’spursuitofindependence.Eversince1989,Ugandahascontinuouslyhostedasylum-seekersandrefugeeswhofledtheprolongedconflictbetweentheGovernmentofSudanandtheSudanPeople’sLiberationArmy.Recently,sincetheDecember2013conflictinSouthSudan,over134,000refugeeshaveentered Uganda.11

ThewesternborderwiththeDemocraticRepublicoftheCongoisofspecialconcernsincetheterrainisdifficulttocontrolandthusposesseveralchallengesandthreatstoUganda’snationalsecurity.Inaddition,theminimalcross-bordercooperationwithbordermanagementagenciesontheDemocraticRepublicoftheCongoside,whichdoesnotfosterjointpatrollingasananswertogeographicalchallenges,exacerbatesbordersecurity.AnotherexampleissurveillanceoftheborderalongLakeAlbert,whichis161kmlongand32 km wide.12Uganda’sborderpatrollingcapacityisminimalasagencieslackthenecessaryequipment(suchaspatrolboatsandthermalvisioncameras)toundertaketheirsurveillanceandenforcementtasks.Asaresult,manymigrantsdrownwhileattemptingtocrossthelake.InMarch2014,200CongoleselosttheirlivestryingtocrossLakeAlbertintheireffortstoreturntotheircountry.Thishighlightedtheneedtoestablishsearch-and-rescueteamstobeabletoprovideassistanceinsuchsituations.

TheconflictandadversesecuritysituationinDemocraticRepublicoftheCongoresultedinthebuild-upofa largepopulationofCongoleserefugeesthatstillconstitutes twothirdsof theoverall refugeepopulation inUganda.13 Uganda isalsobracing itself fortherepercussionsoftheoffensivebytheUNandCongolesearmyagainsttheUgandanterroristgroup,theAlliedDemocraticForces(ADF).WithitsstatedobjectiveoftheoverthrowofthegovernmentinKampala,andwithahistoryofterroristattacksonUganda’soilinterests,theUgandanauthoritiesareparticularlyconcernedabouttheflowofarmsand

10 MigrationProfileofUganda2013.11 UnitedNationsHighCommissioner forRefugees (UNCHR)UGANDA‒UNHCROperationalUpdate for theSouthSudaneseEmergency,

18–24 November 2014. Available from http://data.unhcr.org/SouthSudan/download.php?id=155212 www.eoearth.org/view/article/154117/13 172,650refugeesasreportedbyUNHCRintheirJanuary2014report(www.unhcr.org/528a0a268.pdf).

http://data.unhcr.org/SouthSudan/download.php?id=1552

http://www.unhcr.org/528a0a268.pdf


ADFfightersintoitsterritoryfromtheDemocraticRepublicoftheCongo.

ThesouthernborderwithRwandawasespeciallyaffectedduringthe1994genocideinRwanda,whichledtothousandsofrefugeesfleeingtheirhomes.Consequently,alargecommunityofRwandanshassettledinUganda.

Theborderwith theUnitedRepublicofTanzania is currentlynotunder significant threat in termsofnationalsecurity.However,accordingtoaUNUgandaFlashAppeal,14 a recent humanitarian crisis occurred followingtheeventsinAugust2013whentheGovernmentoftheUnitedRepublicofTanzaniathrough“OperationKimbunga”expelledapproximately35,000people‒mainlycitizensofUganda,BurundiandRwanda‒claimingtheywere“illegalmigrants”residingwithoutpermissionintheUnitedRepublicofTanzania.This led toasignificanthumanitariancrisis,asapproximately4,500peoplearrivedat shortnoticeinUgandaandneededtobesettledbytheGovernmentofUgandasincemostofthepopulationhadspentthelast30yearslivingintheUnitedRepublicofTanzania,retainingveryfewconnectionswithUganda.

Finally,Ugandaisundermountingpressuretohaltillegalcross-borderactivity,suchasthetraffickinginpersonsandsmugglingofcommodities,suchasdrugs,oil,preciousmineralsandivory.InJune2014,ajointreportwaspublishedbytheUNEnvironmentalProgramandINTERPOL,indicatingthattheproceedsof illegal trade inwildlife,timberandcharcoal throughoutEast,Southern,CentralandWestAfrica isusedforfundingarmedconflictandorganizedcrime,includingterrorism.Accordingtothisreport,oneterroristgroupoperating inEastAfrica isestimatedtoearnbetweenUSD38andUSD56millionperannum from the illegal trade in charcoal.15

1.2. Country immigration and border control priorities

Ugandadoesnothaveacomprehensiveborderandmigrationpolicyinplacethatdetailsthecountry’spriorities. There is clearly a need for a comprehensive policy to address all the challenges posedbysignificantirregularandillegalcross-bordermovementsandencourageacoordinatedresponsefromallagenciesthroughenhancedinter-agencycooperation.

That said, there are several national policydocuments that form thebasis fordefining theprioritiesalbeitinanisolatedandfragmentedmanner.TheNationalDevelopmentPlan2010/11–2014/15statestheimprovementofbordersecuritythroughjointcooperationandenhancedinfrastructureasoneofitsstrategicobjectives.

A draft National Migration Policy has been prepared but remains under consideration. The generalobjectivesofthepolicyincludethefollowing:

• Provide an enabling, predictable and secure environment for the legal and orderly movement of personsfrom,toandwithinUganda;

• Maximizethebenefitsofmigrationfornationaltransformation/development;

• Defineand implementabalancedand integratedapproach tomigrationmanagement throughfacilitationandcontrolinterventions;

• Enhance inter-agency cooperation at national, bilateral, regional and international levels andencouragedialoguewhenmanagingmigration;and

• Addressmigration-relatedissueswithoutachievingthegoalsofonesegmentattheexpenseofneglectingthegoalsofanother.

14 UNCountryTeaminUganda(2013),Ugandaflashappeal:AssistancetomigrantsexpelledfromtheUnitedRepublicofTanzania.Availablefrom www.reliefweb.int/report/uganda/uganda-flash-appeal-assistance-migrants-expelled-tanzania

15 www.unep.org/unea/docs/rracrimecrisis.pdf

joint report was published by the UN Environment Programme and INTERPOL, indicating that the proceeds

http://www.reliefweb.int/report/uganda/uganda-flash-appeal-assistance-migrants-expelled-tanzania


1.3. International/Regional migration priorities

There are several international/continental and regional initiatives/legislation that provide for theformulationofprioritiesinthisarea.

At international/continental levelmigrationpolicyprioritiesaresetoutunderAfricanUnionauspices,specifically through its Migration Policy Framework (MPF) of 2007. TheMPF provides a frameworkfor comprehensive and integrated policy guidelines on the following thematic issues/sub-themes: (a) labour migration; (b) border management; (c) irregular migration; (d) forced displacement; (e)humanrightsofmigrants;(f)internalmigration;(g)migrationdata;(h)migrationanddevelopment;and (i)inter-Statecooperationandpartnerships.Italsohighlightsattendantsocialramificationsofmigrationincludingmigrationandhealth,theenvironment,genderandconflict.16Inaddition,theongoingAUBPproclaimsstrategicobjectivesfortheAfricanUnion,specificallytargetingdelineationanddemarcationofborders,aswellasaddressingcross-bordercriminalactivitiesthroughpragmaticbordermanagementand facilitating the development of cross-border integrationdynamics. The envisaged cooperation isfurtherstrengthenedthroughtherecentsigningoftheCross-BorderCooperationConvention,orNiameyConvention,asaninnovativedocumenttomapthewayforwardforthepromotionandinstitutionalizationofcross-borderinitiatives.ItwasadoptedbytheAfricanMinistersofJusticeinMay2014.17

Attheregionallevel,UgandaisamemberofboththeEAC18andtheCommonMarketforEasternandSouthernAfrica(COMESA),bothofwhichcallforfreemovementofgoods,services,personsandlabour.ThecommonagendaandprioritiesinthisareaaredeterminedonthebasisoftheEACProtocolonFreeMovement of People, Goods, Services and Labour, which was signed in 2009 by Member States, and entered into force in July 2010. In regard to the movement of persons, the Protocol calls for several actions.Someofthemhavealreadybeenimplemented,suchastheabolitionofvisaregimesbetweenEACPartner States and the introductionof anEACpassport. However, there is still room for furtherimprovement,whichwouldallowforthefullimplementationoftheProtocol19 that is the free movement ofpersonsacrosstheborderwhileatthesametimeensuringthatbordersecurityisnotjeopardized.

ThemostsuccessfulareaintermsofEACintegrationisthefreemovementofgoodsthroughtheCustomsUnion.StemmingfromtheEACCommonMarketProtocol,aOneStopBorderPostActhasbeenadoptedinUganda,introducingtheharmonizedinteroperabilityofbordermanagementagenciesofneighbouringcountriesoftheEACregion.20Currently,therearefourOne-stopborderpost(OSBP)BCPsidentifiedinUgandabeingconstructedundertheTradeMarkEastAfricaproject.21 At this stage, the OSBP focuses primarilyon trade-relatedcooperation,omittingborder securityaspects,whicharekey to integratedbordermanagement(IBM).

UgandaisalsoamemberoftheIntergovernmentalAuthorityonDevelopment(IGAD),whichisaneight-countrytradeblocinEasternAfricaestablishedin1986.ItincludesgovernmentsfromtheHornofAfrica,NileValleyandtheAfricanGreatLakes.IGADadoptedaRegionalMigrationPolicyFramework(RMPF)in2012.RMPFistheguidingandreferencepolicyframeworkonmigrationdrawnfromtheMigrationPolicyFrameworkforAfricaadoptedinBanjulin2006whilerespondingtotheuniquechallengesandopportunitiesoftheIGADregion. UndertheIGADframework,aConflictEarlyWarningandResponseMechanism (CEWARN)hasbeenestablished, recognizing that theway toaddress the longhistoryof

16 AfricanUnion,TheMigrationPolicyFramework forAfrica,EX.CL/276 (IX),ExecutiveCouncil,NinthOrdinarySession,25–29June2006,Banjul, The Gambia. Available from www.unhcr.org/4d5259049.pdf

17 www.peaceau.org/en/article/the-african-union-celebrates-the-4th-african-border-day-newly-adopted-convention-on-cross-border-cooperation-introduced

18 EACcomprisesoffivePartnerStatesofBurundi,Kenya,Rwanda,theUnitedRepublicofTanzaniaandUganda.Theintegrationagendaisguidedbythetreaty,whichelaboratestheintegrationprocessthroughphasesofaCustomsUnion,CommonMarket,MonetaryUnion,andfinallyaPoliticalFederation.

19 Signedin2009byfiveEACMemberStates:Burundi,Kenya,Rwanda,theUnitedRepublicofTanzaniaandUganda.20 OneStopBorderPost(OSBP)involvesplacingofficialsoftwocountriesineachother’sborderofficessothatoutwardandinwardclearance

iscarriedoutatoneplacesequentially.AtmajorBCPs,thiswillbedoneinajointlysharedbuildingdesignedspecificallyforsharedbordercontrolfunctions.SomeOSBPsarescheduledtobeoperationalin2015.

21 Busia(Kenya),Mutukula(theUnitedRepublicofTanzania),MiramaHills(Rwanda)andElegu(SouthSudan).


1.3. International/Regional migration priorities

There are several international/continental and regional initiatives/legislation that provide for theformulationofprioritiesinthisarea.

At international/continental levelmigrationpolicyprioritiesaresetoutunderAfricanUnionauspices,specifically through its Migration Policy Framework (MPF) of 2007. TheMPF provides a frameworkfor comprehensive and integrated policy guidelines on the following thematic issues/sub-themes: (a) labour migration; (b) border management; (c) irregular migration; (d) forced displacement; (e)humanrightsofmigrants;(f)internalmigration;(g)migrationdata;(h)migrationanddevelopment;and (i)inter-Statecooperationandpartnerships.Italsohighlightsattendantsocialramificationsofmigrationincludingmigrationandhealth,theenvironment,genderandconflict.16Inaddition,theongoingAUBPproclaimsstrategicobjectivesfortheAfricanUnion,specificallytargetingdelineationanddemarcationofborders,aswellasaddressingcross-bordercriminalactivitiesthroughpragmaticbordermanagementand facilitating the development of cross-border integrationdynamics. The envisaged cooperation isfurtherstrengthenedthroughtherecentsigningoftheCross-BorderCooperationConvention,orNiameyConvention,asaninnovativedocumenttomapthewayforwardforthepromotionandinstitutionalizationofcross-borderinitiatives.ItwasadoptedbytheAfricanMinistersofJusticeinMay2014.17

Attheregionallevel,UgandaisamemberofboththeEAC18andtheCommonMarketforEasternandSouthernAfrica(COMESA),bothofwhichcallforfreemovementofgoods,services,personsandlabour.ThecommonagendaandprioritiesinthisareaaredeterminedonthebasisoftheEACProtocolonFreeMovement of People, Goods, Services and Labour, which was signed in 2009 by Member States, and entered into force in July 2010. In regard to the movement of persons, the Protocol calls for several actions.Someofthemhavealreadybeenimplemented,suchastheabolitionofvisaregimesbetweenEACPartner States and the introductionof anEACpassport. However, there is still room for furtherimprovement,whichwouldallowforthefullimplementationoftheProtocol19 that is the free movement ofpersonsacrosstheborderwhileatthesametimeensuringthatbordersecurityisnotjeopardized.

ThemostsuccessfulareaintermsofEACintegrationisthefreemovementofgoodsthroughtheCustomsUnion.StemmingfromtheEACCommonMarketProtocol,aOneStopBorderPostActhasbeenadoptedinUganda,introducingtheharmonizedinteroperabilityofbordermanagementagenciesofneighbouringcountriesoftheEACregion.20Currently,therearefourOne-stopborderpost(OSBP)BCPsidentifiedinUgandabeingconstructedundertheTradeMarkEastAfricaproject.21 At this stage, the OSBP focuses primarilyon trade-relatedcooperation,omittingborder securityaspects,whicharekey to integratedbordermanagement(IBM).

UgandaisalsoamemberoftheIntergovernmentalAuthorityonDevelopment(IGAD),whichisaneight-countrytradeblocinEasternAfricaestablishedin1986.ItincludesgovernmentsfromtheHornofAfrica,NileValleyandtheAfricanGreatLakes.IGADadoptedaRegionalMigrationPolicyFramework(RMPF)in2012.RMPFistheguidingandreferencepolicyframeworkonmigrationdrawnfromtheMigrationPolicyFrameworkforAfricaadoptedinBanjulin2006whilerespondingtotheuniquechallengesandopportunitiesoftheIGADregion. UndertheIGADframework,aConflictEarlyWarningandResponseMechanism (CEWARN)hasbeenestablished, recognizing that theway toaddress the longhistoryof

16 AfricanUnion,TheMigrationPolicyFramework forAfrica,EX.CL/276 (IX),ExecutiveCouncil,NinthOrdinarySession,25–29June2006,Banjul, The Gambia. Available from www.unhcr.org/4d5259049.pdf

17 www.peaceau.org/en/article/the-african-union-celebrates-the-4th-african-border-day-newly-adopted-convention-on-cross-border-cooperation-introduced

18 EACcomprisesoffivePartnerStatesofBurundi,Kenya,Rwanda,theUnitedRepublicofTanzaniaandUganda.Theintegrationagendaisguidedbythetreaty,whichelaboratestheintegrationprocessthroughphasesofaCustomsUnion,CommonMarket,MonetaryUnion,andfinallyaPoliticalFederation.

19 Signedin2009byfiveEACMemberStates:Burundi,Kenya,Rwanda,theUnitedRepublicofTanzaniaandUganda.20 OneStopBorderPost(OSBP)involvesplacingofficialsoftwocountriesineachother’sborderofficessothatoutwardandinwardclearance

iscarriedoutatoneplacesequentially.AtmajorBCPs,thiswillbedoneinajointlysharedbuildingdesignedspecificallyforsharedbordercontrolfunctions.SomeOSBPsarescheduledtobeoperationalin2015.

21 Busia(Kenya),Mutukula(theUnitedRepublicofTanzania),MiramaHills(Rwanda)andElegu(SouthSudan).

http://www.unhcr.org/4d5259049.pdf

http://www.peaceau.org/en/article/the-african-union-celebrates-the-4th-african-border-day-newly-adopted-convention-on-cross-border-cooperation-introduced

http://www.peaceau.org/en/article/the-african-union-celebrates-the-4th-african-border-day-newly-adopted-convention-on-cross-border-cooperation-introduced


conflictsintheregionisbyorganizingajointresponsetotransboundarysecuritychallenges.AttheheartofthefunctionalityoftheCEWARNmechanismisdatacollection,dataanalysisandthedisseminationofinformationandknowledgetotherightpeopleandinstitutionsinatimelymanner.ThemainimpetusforCEWARNisthateffectiveearlywarningofanyimpendingconflictisbestdeliveredandactedonbybothgovernmentalandnon-governmentalactors.22

Recommendation 1:Bilateral,regionalandcontinentalcooperationatapoliticallevelshouldbeencouragedtoaddresspendingborderrelatesissues,suchasborderdemarcationalongsidetheregulationofthecross-bordermovements,specifically for local residentsstraddling theborderarea.Thebestpracticedevelopedunder thecurrentinitiativeforborderdemarcation,throughtheAUBP,oftheUganda–Rwandabordershouldbeadopted.Inregardstothelocalborderregime,goodpracticefromotherpartsofAfricamightbeconsidered,thatis,alocalbordertrafficregimethatprovidesforspecificcross-bordermovementbyintroducingspecialpermitsfor border residents.

Recommendation 2:TheGovernmentofUgandashouldconsideradoptingcomprehensiveborderandmigrationmanagementpoliciesthatwouldprovideforclearprioritiesandobjectives,aswellasactionplansforimplementation.This should address currentneedsof theGovernmentofUganda to effectivelymanage its border, suchas the following: (a) upgrade technical capacities forborder controls by improvingborder infrastructure(includingplacementofmarkerswherethereisnonaturalborderdelineation,suchaslakesorrivers)andequipment;(b)improveinter-agencyandbilateral/regionalcooperationtoenhancebordersecurity,thatis,jointpatrols,commandandcontrolsystems;and(c)continuouscapacitydevelopmentofborderpersonnelthrough trainings andprofessional development.Good international practice in developing theNationalIntegratedBorderManagementStrategiesandActionPlanshouldbeconsidered.

Recommendation 3:Regional and continental border andmigrationpriorities, such as the EACProtocol, COMESAandAUBP,should be further operationalized throughnational initiatives. An example of goodpractice is theOSBPproject,whichrepresentsanexcellentinitiativeandplatformforenhancinganinter-agencyapproachandfacilitatingtradeamongtheEACMemberStates.

1.4. Assessment objectives and rationale

Asmentioned in the background, the assessmentwas done after IOM received a request from theGovernmentofUganda,whichisaMemberStateoftheOrganization.

1.5. Assessment workplan

TheBorderandMigrationManagementAssessment(BMMA)wasconductedinaconsultativemannerbyengagingallrelevantstakeholdersandusedbothquantitativeandqualitativemethodsforgatheringrelevant data.

Theassessmentconsistedofseveralactivities:

a. Sendingoutpre-assessmentquestionnairestorelevantstakeholdersasabasistopreparetheirpresentationsfortheworkshop;

22 CEWARN,AboutCEWARNpage.Availablefromhttp://cewarn.org/index.php?option=com_content&view=article&id=51&Itemid=474&lang=en

http://cewarn.org/index.php?option=com_content&view=article&id=51&Itemid=474&lang=en

http://cewarn.org/index.php?option=com_content&view=article&id=51&Itemid=474&lang=en


b. Conducting a two-day workshop led by the IBM project team and international consultantswhereinputswerereceivedfromrelevantstakeholders. Itwasheld inKampalaon20‒21May2014.Participantsattheworkshopincludedrepresentativesofrelevantministries/departments/agenciesinvolvedinborderandmigrationmanagement;

c. Conducting bilateral meetings at headquarters level by international consultants and DCICrepresentatives;

d. Conductingfieldvisitsto13differentbordercrossingsand inlandmigrationstationsatborderswithDemocraticRepublicoftheCongo,KenyaandSouthSudanbytheJointAssessmentTeamcomposedofanIOMrepresentative,internationalconsultantsandImmigrationofficers;

e. Conductingavalidationworkshopon19Junetoconsidertheinitialdraftinputprovidedbytheconsultants;and

f. OrganizingsubsequentworkingmeetingsbetweenIBMProjectteamandDCICtofinalizethedraftBMMA.

CHAPTER 2

ASSESSMENT METHODOLOGY

Chapter 2. Assessment methodology20

Chapter summary

Astheleadingintergovernmentalorganizationinthefieldofmigration,IOMwascalleduponbyUgandatoassist in reviewing itscomplexbordermanagementchallenges.Anassessmentteam,consistingofa smallgroupof specialistswith technicalexpertiseandstrongbordermanagementexperience,wastaskedaccordingly.TheteamworkedinclosepartnershipwithDCICofficers,aswellasofficerscomingfromotherinstitutions/agenciesinvolvedinbordermanagement.

It used IOM’s comprehensive BMMA framework.

ThisframeworkisdesignedtoensurethatIOMgainsacompleteoverviewofthemigrationmanagementstructureofUgandaandallowedtheteamtoproperlyidentifygenuineneedsandrequirementstohelpdevelop DCIC and enhance its capacity.

The assessment used this framework to consider Uganda’s immigration circumstances under fourgroupings:

• Administration;

• Migrationregulatoryenvironment;

• Operations;and

• IT management.

2.1. Assessment scope, framework and plan

The methodology used by IOM in this review is outlined in the structure below.

Information gathered in the assessment process is analysed and reported on in the context of theframeworkofIOM’sBorderControlandMigrationManagementmodelstructure.

Overtheyears,thismodelhasproventoaddressthekeyareasofthecomplexenvironmentofMigrationManagement and Border Control.

TheIOMmodelconsidersandreportsonmigrationandbordermanagementoperationsasfollows:

Administrationcoversissuessuchasthefollowing:• Agencystructureandresponsibilities;• Finance,resourcesandbudgetmanagement;• Recruitment/training,capacity-building,morale,corporateculture;• Performanceindicators,performancestandards;and• Values and conduct.

Migrationregulatoryenvironmentconsidersthefollowing:• Policy;• Overviewofcurrentregulatoryenvironment;• Legislation;• Regulations;• Proceduresandwrittendirectionsforstaff;• Internationalobligations;and• Regionalcooperation.


Operationsaddressthebroadrangeofimmigrationdeliveryactivities,suchasthefollowing:• Bordercontroloperations‒air,landandportsincludingalertlists;• Passportsandtraveldocumentproduction;• Permitsandvisaoperations;• Citizenship;• Healthandcharacterchecking;• Investigationsandintelligencecollection;• Detentionandremoval;and• Humanitarian issues.

Informationandcommunicationstechnologymanagementexaminesthefollowing:• Overviewofinformationandcommunicationstechnology(ICT)environment;• Bordermanagementinformation,visaandpassportsystems;• Alertlistsystem;and• ManagementandadministrationoftheICTenvironment.

CHAPTER 3

ADMINISTRATION


Chapter summary

The IOM team noted that migration management encompasses numerous governmental functionswithinUganda’ssystemfortheorderlyandhumanemanagementofcross-bordermigration,particularlymanaging the entry and presence of aliens within its borders. Migration management refers to a planned approachtothedevelopmentofpolicy,legislativeandadministrativeresponsestokeymigrationissues.As defined by the EAC, effective border management systems enable the country to enhance thefacilitationofauthorizedpeople’stransnationalmovementswhileatthesametimepreventingirregularentries of people to the country.23

Border management is integral to ensuring Uganda’s security and will need to respond to growing public concernsaboutthesocialimpactofuncontrolledmigrationandhighexpectationsforpublicprotection.Border security is fundamental toUganda’snational interest,and thechallenges itpresentsare real,changing and likely to intensify.

ThecontextinwhichUganda’sDCICnowoperateshasbecomeincreasinglycomplicatedanddifficultduetoacceleratingmobilityonthecontinent,theincreasingsophisticationandvarietyofthreats,includingnearbyconflicts,terrorism,amorecompetitiveeconomicenvironmentandatighterfinancialclimate.Ugandaneedstostayaheadofafast-evolvingpolitical,securityandeconomicsituationinwhichbordercontrolsplayanimportantpart inprotectingit,aswellas itsprosperity.Uganda’sbordershavetobesecure,butDCICalsohastoensurethatthecountryremainsopenforbusinessandcompetitiveasadestinationofchoicefortourism,tradeandinvestmentandeducation.

In Uganda, as with many other countries, the role of border management is shared by a variety of agencieswithspecificadministrativeresponsibilities.Responsibilitiesforbordercontrolandmanagementaresharedamongthefollowingagencies:Directorate for ImmigrationandCitizenshipControl (DCIC),UgandaPoliceForce(UPF),InternalSecurityOrganization(ISO),ExternalSecurityOrganization,whichareallundertheMinistryofInternalAffairs(MIA),aswellastheUgandaPeoples’DefenceForce(UPDF)andUgandaRevenueAuthority(URA).TheseagenciesmaintainapresenceattheborderwhilenumerousotherGovernmentofUgandainstitutionsdealwithotherareasrelevanttobordermanagement,thatis,Ministry of Finance,Ministry ofWorks and Transportation,Ministry ofHealth (MOH),Ministry ofAgriculture(quarantine)andothers.

Onthesecurityside,DCICworkscloselywiththeaboveagenciesto,interalia,addresspotentialthreatstoUgandaarisingfromorganizedcrimeinthefollowingforms:

• Terrorism–achallengewhereextremiststendtoexploitweakbordersystemsandprocesses.• Third-countrycriminalsandtheneedtodealwiththoseidentifiedascriminallyactive,including

their removal.• Irregularimmigration,includingtraffickinginpersonsandidentityfraud,isincreasingastougher

checks are made at main points of arrival.• Illicittradeindrugs–tacklingthisisapriorityforUganda,withDCIC,PoliceandCustomscooperating

toaddresstheillegalactivityanddisruptcriminalnetworks.

This chapter focuses on the role and administrative capacities of the DCIC as the front-line agencyprimarilytaskedwiththecontrolofmovementsofpersonsinandoutofUgandawiththeadditionaltaskof the issuance of passports and IDs.

AneffectiveDCICadministrationwillensurethatsystemsofbordercontrolaresupportedbyjoined-uptechnology,effectiveidentitymanagementandstronginter-agencycooperation.TheycombinetoworktocommonobjectivesandhaveaconsistentstrategyacrossUganda’spre-arrival,borderpolicingand

23 East African Community (EAC), Immigration – Border Management. Available from www.eac.int/migration/index.php?option=com_content&view=article&id=175&Itemid=100

http://www.eac.int/migration/index.php?option=com_content&view=article&id=175&Itemid=100

http://www.eac.int/migration/index.php?option=com_content&view=article&id=175&Itemid=100

Chapter 3. Administration24

in-countryoperations.Processes,technologiesandorganizationalstructuresneedtobeproperlylinkedand coordinated through an integrated programme involving all those with the responsibility for border securityaslistedabove.Accesstoacommondatasetateachpointofinterventionisalsoakeyfeatureofmodern-dayborder,andmigrationmanagementencouragescoordinatedandeffectiveadministrativeprocesses.

3.1. Border Management Agency – Administration responsibility overview

DCIC is an autonomous directorate within the MIA and one of the key border management agencies. It is responsible for the control of movements of persons in and out of Uganda. The DCIC states its mission as “[to] facilitate the legal and orderly movement of persons to and from Uganda, […] verify and process UgandacitizenshipandenforceimmigrationlawsforthesecurityanddevelopmentofUganda”.24 Its role alsoincludescontrollingandissuingUgandanpassportsandvisas,aswellasgrantingworkpermitsandnationalidentitycards.25Tofulfilthesefunctions,travellersarerequiredtoreportatBCPsfirsttoDCICImmigrationOfficersbeforeproceedingtoexaminationbytheotheragencies.

TheNationalCitizenshipand ImmigrationBoard (NCIB) isestablishedby theConstitutionofRepublicof Uganda26andfurtherregulatedundertheUgandaImmigrationandCitizenshipAct.NCIBfunctionsareasfollows:(a)registerandissueidentitycardstoUgandancitizensandaliens;(b)registerandissuepassports;(c)grantorcancelcitizenship;(d)grantorcancelimmigrationpermits;and(e)determineanyquestionthatmayarisefromtheimplementationoftheUgandaCitizenshipandImmigrationacts.27

Someoftheboardfunctionsmaybedecentralizedtodistrictlevels.However,suchpowersanddelegationsarerestrictedandclearlydefinedintheUgandaCitizenshipandImmigrationControlActatPartII,point7(2).Thedecentralizedpowersareasfollows:

a. RegisteringandissuingNationalIdentityCards;

b. IssuingUgandapassportsandothertraveldocuments;and

c. Grantingandcancellingimmigrationpermits.

Thereare legal provisions todelegate to regions,DCICpassports, traveldocuments and immigrationpermitsservicesthatarenormallyprovidedatKampalaheadquarterlevel.

Sofar,onlytworegionalentitieshavebeenmandatedtodoso(cf.Chapter5.6).

Uganda Revenue Authority:TheresponsibilitiesofURAincludethefollowing:(a)collectionofgovernmentrevenue;(b)facilitationofinternationaltrade;(c)protectionoftheeconomyagainstthreatsposedbyillicittrade;and(d)protectionoftheenvironmentandsocietyagainstharmfulexports.Customs,whichispartoftheURA,deploystheirofficersat34BCPsandregulatesthemovementofgoodsinandoutofUganda.

Uganda People’s Defence Force:UPDFconstitutesthearmedforcesundertheMinistryofDefenceinUganda.ItdeploysborderguardsfromtheLand,AirandMarineForces.Theirresponsibilitiesincludethefollowing:(a)ensuringthedefenceofthecountryandtheconstitutionofUganda;(b)supportinginternationalobligations;(c)contributingtoregionalstability;and(d)providingsupporttocivilauthorities.

Uganda Police Force: UPF is responsible for the following: (a) policing of borders and communities;(b) protecting the people against terrorism; (c) crime intelligence and investigations; (d) network of

24 DCICpresentation,“StatusofMigrationandBorderManagementinUganda”attheworkshopofdevelopingassessment(20‒21May2014).25 MinistryofInternalAffairs(MIA)(2014),DCIC,Whoweare.Availablefromhttp://immigration.go.ug/about/who-we-are 26 Constitution1995,ChapterthreeoftheConstitution,Point16.27 UgandaCitizenshipandimmigrationControlAct,Chapter66,partII,point7.

http://immigration.go.ug/about/who-we-are


community liaison officers; and (e) interfacewith INTERPOL andmaintaining relationswith relevantinternationalpoliceagencies.

Internal Security Organization: Theresponsibilitiesof ISOaretogather informationon individualsofinterest who enter Uganda with male fide intentions,withaviewtothefollowing:(a)curtailingsubversiveactivities; (b)counteringterrorism,drugandtrafficking inpersons; (c)preventing irregularmigration; (d) stopping the proliferation of small arms and light weapons; and (e) monitoring the associatedmovements of goods and people. ISO also counters armed incursions and cattle rustling along thecommon borders.

Ministry of Health:MOHhasdraftedaconceptproposalfortheRevivalofPortHealthatallBCPs.ThisiscurrentlypassingthroughanapprovalsystemintheMOH.Theplanwillincludeaphasedimplementationof port health functions guided by the Integrated Disease Surveillance and International HealthRegulations(IHR)(2005).TheproposalenvisagesbuildinguptheeightcorecapacitiesstipulatedinIHR2005:(a)legislation;(b)policyandcoordination;(c)surveillance;(d)preparedness;(e)response;(f)riskcommunications;(g)laboratory;and(h)humanresources.

3.2. Director for Citizenship and Immigration Control management structure

ThedirectorateisheadedbytheDirectorforCitizenshipandImmigrationControl(DCIC),whoreportstothePermanentSecretaryandtheNCIB.TheDCIC’sfunctionistoimplementtheUgandaCitizenshipandImmigrationControlAct.28

DCIC is divided into three major departments, each headed by a commissioner who reports to the Director: (a) Citizenship and Passport control; (b) Inspection and Legal Services; and (c) ImmigrationControl.Theorganizationalchartof theDepartment for ImmigrationControl ispresented inAnnex4ofthisreport.TheDepartmentofImmigrationControlisresponsibleforbordermanagementandtheissuanceofimmigrationdocumentstoforeignnationalsseekingtoworkandresideinUganda.

TheDepartment of Citizenship andPassport Control is responsible for verification andprocessing ofUgandaCitizenship,aswellastheadministrationofnationaltraveldocuments.

TheDepartmentofInspectionandLegalServicesisresponsibleforlegaladvisoryservices,inspection,investigations,prosecutionandremovalofundesirableimmigrantsfromUganda.

Currently,theDCICemploys355civilservants:1Director;3Commissioners;6AssistantCommissioners;19 Principal Officers; 41 Senior Immigration Officers; 149 Officers; 8 Assistant Immigration Officers; 36ImmigrationAssistants;42Officeattendants;13Accountsstaff;2Procurementstaff;9Secretaries; 11Recordsstaff;2Storestaff;3InternalAuditors;1Statistician;1Officesupervisor;and8Drivers.

TheDCIC is anunderstaffedorganizationwhen viewedagainst the sizeof the country, lengthof theborders,numberofBCPsandchallengespresentedtoitsborderandmigrationmanagement.

TheDCICiscurrentlypreparingarevisionofitsorganizationalstructure.

Furthermore,inordertoaddresstheshortagesofpersonnel,DCICinitiatedtherecruitmentofanadditional250staffinthesecondhalfof2014.TherecruitmentdrivefornewImmigrationofficersisexpectedtocontinueuntiltheendof2014.Duringtheassessment,bothheadquarterandfieldofficesindicatedthereisaneedtoincreasestaffinglevels.Theassessmentteamobservedtherewerenospecializedmobileunits established under the DCIC structure to undertake surveillance of Uganda’s borders.

28 Ibid. Part II, point 8.


Recommendation 4:• DCICtoconsiderundertakingastaffingneedsassessmentbasedonthegeographicalpeculiaritiesand

the challenges posed by the rate and types of movements of persons across the border, as well as considertherequirementsstemmingfromDCICpriorities:EACintegrationcompliance,borderpatrols,training,anddecentralizationofDCICservices.

• Basedontheneedsassessment,therevisionoftheorganizationalstructureofDCICshouldaddressthenotablelackofstaffinordertoreinforcehumanresourcesbothatheadquarterandfieldlevels.

Recommendation 5:The DCIC organizational structure should consider creating border patrol units to conduct bordersurveillance/patrollingorinsupportofImmigrationofficersmanagingBCPs.Theborderpatrolunitsshouldbeequippedwithnecessarytools, that is,communicationsdevices (VHF,UHF,radiotelephone,V-Sat) toenhancecommandandcontrol locallyandbetweentheBCPandheadquarter, four-wheeldrivevehicles,motorbikesandpatrolboatsfortheLakesRegions.

3.3. Finance, budget and resource management

The DCIC budget is allocated by the Government of Uganda on a quarterly basis againstworkplansapprovedbythegovernment.However,thedeficiencyoftheallocatedbudgetisaseriousissuefacedbytheDCIC.FundingshortfallspreventtheDCIC’scapacitytoensureadequateresponsetothechallengesofcontrollinglongandporousborders.Inparticular,itcannotformborderpatrolunits,norcanDCICensuretheprovisionofadequateITsystemsattheBCPs.

Inordertoimprovethecurrentfinancialsituation,andasbasisforseekingforanincreasedbudget,itisrecommendedthatDCICestablishaninternalstrategicdocumentandrelatedactionplanthatwouldoutlineclearobjectives,goalsandactivities for the longerterm. Thisshould includeestimatedcoststoargueforthenecessaryfundingofsuchactivities.AnadditionalavenuethatmightbeexploredforincreasingDCIC’sbudgetistoseekanagreementwithUganda’sMinistryofFinancetofixasignificantpercentageofimmigrationandpassportfeerevenuestobereturnedtotheDCICtocoveritsoperationalcostsandongoingdevelopment.Thisarrangementwouldrecognizetherevenue-raisingcapacityoftheDCIC. Such an agreement must be included in a legal framework.

Recommendation 6:• DCIC shoulddevelop internal strategicdocumentandactionplanenlisting thegoals,objectivesand

actionsfortheimprovementofitsoperationsandfinancialimplicationsofsuchobjectives/activitiestosupporttheargumentsforincreasedbudgetbutalsoforapproachingpotentialdonors.

• DCICtoconsiderdevelopinganagreementwiththeMinistryofFinanceonallocatingapercentageofimmigrationandpassportfeerevenuetoDCICandsettingupalegalframeworkforsuchallocation.

3.4. Recruitment, organizational culture, operational and management skills training

3.4.a. Organizational culture

DCICemployeesarecivilservantsboundbytheGeneralPublicServiceActandRegulations.

3.4.b. Recruitment

Recruitmentisorganizedthroughpubliclyadvertisedrecruitmentrounds.Candidatesmusthave,asaminimum,auniversitydegree.Theyarerequiredtopasstwoaptitudetests:anoralandawrittenexam.Officerstakeanoathofallegiancewhenappointed.


3.4.c. Training

AllrecruitsofDCICparticipateinasix-monthbasictrainingcourse.TheproposedDCICtrainingunitiscurrentlybeingformedandshouldbefullyfunctionalsoon.

There is a need for continuous training and capacity-building as recommended by both DCICmanagement and officers in the field. However, it has not been realized yet due to the lackof facilities, trainingmanuals andmaterials, and human resources for such sufficient qualifiedtrainers and the development of a proper training unit within the DCIC. The directorate should considerconstructingadedicatedpurposebuilttrainingcentrewithbasicunitstoofferaffordableaccommodationtoparticipantsattheearliestopportunity.Thetrainingfacilitywouldenabletheimplementationofarangeofcoursestonewrecruits,aswellasservingofficers.Currently,DCICtrainings take place at temporary premises that belong to the Ministry of Defence. These are not consideredtobeadequateforDCICpurposes. Accordingly,thereisanurgentneedtoimproveDCICtraininginfrastructureandprovideforlong-termsolutionsassuggestedabove.

Theassessmentteamnotedthatin-housetrainingcanbeusefullysupplementedbysomeexternalsupport through training programmes funded and organized by external donors/stakeholders.ThiscanproducepositiveresultsparticularlyiftheyaddressDCIC-identifiedtrainingneeds.ThetrainingsshouldbedesignedtoaccordwithUganda’slegal,immigrationandbordermanagementframework.

Accordingly, a training needs assessment should be undertaken not only to ensure relevance but alsoavoidduplicationorunnecessaryrepetition.Thetrainingneedsassessmentshouldincludethedevelopmentofacomprehensivetrainingcurriculumtotake intoaccountexistingnationallegislationandapplicableregionalandinternationalstandardsandbestpractices.

Thereisaclearneedforthecontinuousdeliveryofspecializedtechnicaltrainingstoimprovetheefficacyofimmigrationandbordercontrol,suchasriskanalysisandprofiling,documentforgeryandbordersurveillancetechniques.

Informativetrainingonregionalintegrationprocesses,suchastheEAC,IGADandCOMESA,shouldalso be included as part of the curriculum, togetherwith an ongoing programmeof capacity-building.Resourcesatregionallevelshouldalsobeutilized,suchastheAfricanCapacityBuildingCentre(ACBC)inMoshi,whichisspecializedinthedeliveryoftrainingsintheareaofimmigrationandbordercontrols,documentforgery,utilizationandmaintenanceofMigrationInformationandDataAnalysisSystem(MIDAS).

StudytourstoAfricancountrieswithanadvancedlevelofintegrationandmigrationandbordermanagementshouldbeutilized.

Further advancement of capacities can be attained through the organization of study visits tocountriesthathavealreadyundergoneintegration,forexampleunderAfricanUnionandtheEACauspices. Such visits to countries such as Cabo Verde, an African Union Member State, that can showcasebestinternationalpracticesaregoodopportunitiestoenableanexchangeofideasandtolearnfromtheirexperiences.

Animportantelementofthetrainingprogrammemightincludecross-bordercoursestoencouragebilateral and regional trainings on joint patrols and joint response to strengthen border security.


Recommendation 7:• A comprehensive training needs analysis should be carried out to determine training needs in terms of

facilities,equipment,trainingcurriculaandothersandestablishatrainingplanbasedonapplicablebestinternationalpractices,aswellconsideringthenational,regionalandcontinentalprioritiesintheareaofmigrationandbordermanagement.

• ConstructionofaDCICtrainingcentreshouldbeinitiatedtoensurethereisapermanentfacilitythatisproperlyequippedwithappropriatetrainingtoolstoprovideofficersongoingcapacitydevelopmentatall stages of their careers.

• DevelopmentofacomprehensivetrainingcurriculumforImmigrationofficersthatincludesprogrammesfor joint trainingofbordermanagementagencies, thereby fostering inter-agencycooperationat theborder.Therelevantbordermanagementagencies,suchasURA,ISO,UPFandUPDF,shouldbeconsultedin the development of a joint training programme.

• Benchmarking system to be developed to assess the impact and relevance of delivered training and to be used for further improvements in training curricula.

• Study tour should be organized to countrieswith advanced systemsof integration and cooperationinvolving freemovement,suchas theEuropeanUnion, focusingonriskassessment/managementofborderandmigrationmanagement:datacollection,analysis,riskprofiling,definitionofactionplans:- Operational management organization of an integrated police contingent (Immigration Police,

Customs,SocialServices)toundertakebordercontrolandmanagement.• A similar study trip might be organized to one of the Central American Integration System (SICA)

countries that hasalreadymadethetransitiontocustomsintegration/unificationandintheprocessofdefiningacommonenvironment(regulatedregime)forthefreemovementofpersons.

3.5. Work conditions including salary, performance expectations and standards management

3.5.a. Employment conditions

DCICemploymentconditionsaresatisfactorywithinthecontextofUganda’slocallabourmarket.Immigrationofficers’ salariesarepaidontime.This is an importantadministrativemeasure tomaintainmorale.ThejobsecurityofgovernmentemploymentandapensiononretirementmakesworkingwithDCICattractive.

Theassessmentteamnoticedthattherotationschemeforthe Immigrationofficers isnot fullydeveloped with regard to housing. There were inconsistencies evident in the government’s applicationofthehousingpolicy,intermsofwhethertograntcertainofficersthisfacility.Thus,someofficersatBCPsaregrantedhousingbythegovernment,forinstanceinBibia;whileatotherBCPs,officershavetorelyontheirownresources.InsomeareassuchasLia,theavailablehousingispoororinadequate.ThiscanraisemoraleissuesforDCICofficers.

Housingproblemsareexacerbated forofficerspostedtoremoteBCPs, suchasTonyaorLia. Insuchlocations,theyareobligedtosharelocalvillagepeople’spoorlivingconditions,suchasalackoffacilities,poorornoelectricitysupply,andinadequateaccesstohealth-carecentres.TheDCICvisitorbookataBCPisagoodmeansofassessingofficers’isolation.

SomeDCICregionalofficesareverywellorganized,despitethelackofdutytransportanddutymobilephones,poorroadconditionsandtransportinfrastructure.Seniorofficerskeepcontactonadailybasiswiththeirfront-lineofficers,receivehandwrittenweeklyreportsandvisitBCPsformonthlymeetings.


Recommendation 8:Humanresourceactionplanmanagerstoprovideforbasicdutyhousing,dutyequipmentforcommunicationand transportation. The action plan could start by conducting a thorough assessment of facilities andresourcestodefineneedsaccordingtotheclassificationoftheBCP.AmongthemediumandsmallBCPs,itmightbeopportune,afterconsideringdevelopmentplans(thatis,forUgandalocationswherethenextwaveofOSBPwillbecommissioned) to identifywhichBCPsare suitable forupgradesand thenprepareaccordinglyfortheinitialsupplyofequipment.

3.5.b. Performance and standards management

DCICofficersexpressedtheirneedforaresearchandstatisticalunittocarryoutbenchmarkingtohelpstakeholderswhentheyareassessingbestpractices.Currently,theyimplementpolicybutdonot have the opportunity to benchmark.

Forinstance,thedecision-makingprocessregardingapplicationsforpassports,visaandpermitsisstrictandproceduresareverymeticulous.This isgoodpractice,and itmightbe improved ifperformanceindicatorsaredevelopedandimplementedeitherattheindividualofficerlevelorattheorganizationlevel.Suchindicatorsmightincludeaccuracyandtimelinessofissuance.Withoutsuchindicators,benchmarkingandtheestablishmentofbestpracticesaredifficulttoassess.

Recommendation 9:Performance monitoring and mechanisms are an integral part of senior officers’ and managers’ roles.Performancemanagementtrainingshouldbeincludedinthenewharmonizedtrainingframework.

Recommendation 10:In order to establish indicators to elaborate benchmarks and data analysis, as well as measure just how results-orientedmanagementandbordercontrolare, it isrecommendedthatDCICestablisharegimeofinternalregulationsissuedbyCentralOfficethat:• Definebasicstandardindicatorsconcerningthefollowing:

- Bordermanagement:borderpostlocation,andnumber,nationalityofpersons,sex,minororadult,asregisteredundervisaregulationsorenteredonregionalnationalityregisters.

- Management indicators: number of staff appointed during theweek, if shifts are operating howmanyofficersondutypershift,numberoftravellersprocessedorcontrolmeasuresconducted.

• Incasethere isanexisting indicatorsystemalreadyorganizedunderabasicstandardsimilartothatdescribed above, the recommended information system to use is one that is network configured (cf.Chapter6).

3.6. Values and conduct

ThegeneralPublicServiceActandRegulationsthatestablishesacodeforallgovernmentemployeesispertinenttoDCICstaff.Consequently,disciplinarymeasurescoveredunderpublicservantdisciplinaryregulationsapplytoDCICstaff.AsDCICisanagencyoftheMIA,staffsarealsoanswerabletotheMIApermanentsecretariat’sdisciplinarycommittee.

“Immigration Officer’s behaviour” is described on page 31 of the Uganda Immigration ProceduresManual,buttherearenoreferencestopenaltiesordisciplinarymeasuresincludedinthemanual.


Recommendation 11: • DCIC senior management to develop a Code of Conduct for staff and implementation should be

accompaniedbyasuitabletrainingprogramme,withafollow-uptrainingprovidedonanannualbasis.• CreationofaDCICinternalinvestigationandcontrolservicetoaddressstaffdiscipline.

CHAPTER 4

MIGRATION REGULATORYENVIRONMENT

Chapter 4. Migration regulatory environment32

Chapter summary

ThemigrationregulatoryenvironmentinUgandaisbeingheavilydrivenbytheEACregionalintegrationprocess,specificallyinregardtotheEACCommonMarketProtocolsignedin2009.Thecurrentregulatoryframeworkissatisfactory,butfurtherimprovementsshouldbeconsidered.

Theperformanceof Immigrationcontrolalongtheborder isregulatedbytheUgandaCitizenshipandImmigrationAct. InApril2013,aregionalOneStopBorderPostActwasadoptedbytheEastAfricanLegislativeAssembly,whichregulatesbordercontrolsatdesignatedOSBPsandstipulatestherolesofeachofthebordermanagementagenciespresenttoensuretradefacilitation.TheOSBPwasratifiedbythemembersoftheEAC,butisyettobealignedwithUganda’slaws.

TheGovernmentofUgandahasinitiatedareviewoftheexistinglegislationtocomplywiththeprovisionsandobligationsstemmingfromtheCommunityMarketProtocolanditsannexontheFreeMovementof Persons. Other specific issues are being reviewed, or have been reviewed, in the drafting of theforthcoming 2014 amendment act.

UgandahasrecentlyadopteditsfirstMigrationProfilewiththesupportoftheIOM. Itrepresentsanimportantstepforwardtothefurthercreationofrelevantmigrationpolicies.Severalpolicieshavealreadybeendraftedandawaitadoption,suchastheNationalMigrationPolicyandtheNationalDiasporaPolicy.

Ugandaisamemberofseveralregionalandcontinentalbodies,suchastheEAC,COMESA,AfricanUnionandIGAD,andhasratifiedseveralimportantinternationalinstrumentsgoverningmigration.Alloftheabovementionedintroducesaregulatoryframeworkthatprovidesaplatformforfurtherharmonizationofnationallaws.Thereviewoftheexistingnationallawstoharmonizewithprovisionsstemmingfromtheregionalandinternationalobligationsshouldbeconsidered,whilespecialattentionshouldbegiventoenforcementofthelawsandtheirfullimplementation.

The importanceofan inter-agencyapproachandcoordination toborderandmigrationmanagementissues isrecognizedbytheGovernmentofUganda.Whilethereareseveralongoing initiatives inthisarea (such as OSBP committees, Single Window project and Wanted and Suspect Persons (WASP)committees),itisnotedthatanoverarchingandcomprehensiveinter-agencycoordinatingmechanismonbordermanagement isnotprovidedfor. It isrecommendedthatbestpractices intheareaof IBMshould be utilized to facilitate the establishment of a more permanent inter-agency coordinationstructure. Furthermore, the inter-agencyapproach shouldbeenhanced through thedevelopmentofsharedprocedures,commontraining,memorandumsofunderstanding(MOUs),conjointplanningandtheexecutionofjointactions,operationsandriskanalysis.

4.1. Overview of current general regulatory framework

Uganda’s DCIC is regulated by several national acts that are based on the 1995 Constitution of theRepublicofUganda(hereinafter:Constitution).

TheConstitutionisthesupremelawthatgovernsmigrationissuesandcitizenshipinthecountry.29

Under Chapter 3 thereof, the Government of Uganda is responsible for citizenship, immigration,emigration,refugees,deportation,extradition,passportsandnationalidentitycards.

ToimplementtheintentoftheConstitution,severallawsandregulationshavebeenformulatedincludingthefollowing:

29 Chapter3oftheConstitutiondescribescitizenshipinUganda.


a. ImmigrationAct,Cap.66,whichestablishestheImmigrationBoardandempowersthedirectoratetoexecuteitsdecisions,includingregisteringandissuingNationalIdentityCardstonationalsandregisteringandissuingidentitycardstonon-nationals;

b. ChapterVIandVIIoftheUgandaCitizenshipandImmigrationActregulatesimmigrationcontrolbothatbordercrossingsandthein-countrycontrolofaliens;and

c. Other lawsand regulations included in themigration regulatory framework relevant tobordermanagement,suchasthefollowing:

i. TheEmployment(RecruitmentofUgandanMigrantWorkersAbroad)Regulations,No.62,2005;

ii. TheRefugeesAct,2006;

iii. TheUgandaCitizenshipandImmigrationControlActCap.66,2009;

iv. TheUgandaCitizenshipandImmigrationControl(fees)Regulations,2009;

v. Ugandacitizenshipregulations;

vi. RegistrationandControlofAliensRegulations,2004;

vii. PassportRegulations,2004;

viii.TheUgandaCitizenshipandImmigrationControlRegulations,2004;and

ix. ThePreventionofTraffickinginPersonsAct,2008.30

TheDCICiscurrentlyundertakingareviewandupdateoftheUgandaCitizenshipandImmigrationControlAct, Cap. 66 to incorporate the applicableprovisionsof theEACTreaties andProtocols intonationallegislation.

Asreportedduringtheassessmentvisit,therevisionaddresses,amongothers,thefollowingissues:

a. Paymentoffinesforillegalstay.Settingafinancialpenaltyenhanceslawenforcement;

b. Custodycentre;and

c. Passportforchildren(bygrantingchildrenindividualpassports,UgandafollowsInternationalCivilAviationOrganization(ICAO)standards).

Furthermore,thereareseveralnationalpoliciesinplacethatcoverimportantelementsofmigrationandbordermanagement,suchastheNationalPolicyforInternallyDisplacedPersons(2004)andtheNationalPolicyonDisasterPreparednessandManagement(2010).

Severalnationalpoliciesthathavebeendraftedandawaitadoptionincludethefollowing:(a)NationalMigrationPolicy(2014);(b)NationalDiasporaPolicy(June2013);and(c)NationalActionPlanfortheFightagainstTraffickinginPersons(2013).

The Government of Uganda does not have comprehensive polices governing the area of border management. International best practices recommend developing and implementing the NationalIntegratedBorderManagementStrategyandassociatedActionPlan,whichwouldensuretargetedactionswithclearlydelineatedbordercontrolresponsibilitiesamongallagenciesoperatingattheborder.31

30 UgandaMigrationProfile2014,p.63.31 EuropeanCommission,GuidelinesforIntegratedBorderManagementinECExternalCooperation(EuropeAidCooperationOffice,Brussels,

Belgium,2009).Availablefromhttp://syb.icisleri.gov.tr/ortak_icerik/syb/Guidelines_for_IBM_in_EC_External_Cooperation_EN.pdf

Act, Cap. 66, 2009;

http://syb.icisleri.gov.tr/ortak_icerik/syb/Guidelines_for_IBM_in_EC_External_Cooperation_EN.pdf


Recommendation 12:TheGovernmentofUgandashouldadoptandimplementtheMigrationPolicy,NationalDiasporaPolicyandNationalActionPlanforPreventionofTraffickinginPersonstoenhanceitsmigrationregulatoryframework.TheNationalMigrationPolicyisintendedtofeedintotheoveralllegalpolicyframework.

Recommendation 13:TheGovernmentofUgandashoulddevelopandimplementtheNational IntegratedBorderManagementStrategyandassociatedActionPlanfortheimplementationoftargetedactionsspanningintra-agency,inter-agencyandinternationalcooperationandcoordinationintheareaofbordermanagement.

4.2. Legislation and procedures (pre-arrival, entry, stay, departure, residence, compliance, detention, people smuggling, people trafficking, abuse of power penalties)

ThemainlegislativeactgoverningimmigrationcontrolistheUgandaCitizenshipandImmigrationControlAct,Cap66.Immigrationcontrol,includingallrelevantprocedures(pre-arrival,entry,exit,departureandothers), isdefinedinthePartVIoftheAct.Furthermore,Ugandahasdeveloped,withtheassistanceofIOM,aBorderandImmigrationProcedureManual(hereaftertheManual),whichfurtherdetailsallrelevantproceduresandguidestheworkoffront-lineofficersatBCPs.

Thecurrentimmigrationproceduresareregulatedtoasatisfactorylevel;however,severalimprovementsmightbeconsideredforinclusion.Forexample,thepre-arrivalproceduresarenotfullydeveloped,andthereisspaceforfurtherimprovement‒forinstance,toobligecarrierstoprovideapassengerslistpriortoarrivingatBCPsinordertoenablepre-arrivalcheckstobeundertaken.Furthermore,theManualwasdevelopedin2006andsignificantdevelopmentsinthenational,regional,continentalandinternationalcontexthavetakenplacesince.Accordingly,arevisionandupgradeoftheManualiswarranted.

Ugandahas inplace thePreventionof Trafficking inPersonsAct since2009,whichpenalizes theactoftrafficking.TheManualprovidesforguidanceondetectingthevictimsoftraffickingattheBCPandsubsequentaction.WhiletheManualmakesashortreferencetodetectingsmuggledmigrants,32 it is importanttonotethatsmugglingofmigrantsisnotrecognizedasacriminalactinUganda.Thispreventstakingadequatemeasurestoprosecutetheperpetratorsanddeniesnecessaryprotectionforsmuggledmigrants who might cooperate with law enforcement in legal proceedings taken against the smugglers. Thediagrambelowexplainsthesimilaritiesanddifferencesbetweensmugglingandtrafficking,notingthat smuggling is a crime against the State.

32 PartDoftheBorderandImmigrationProcedureManual(2006),pp.94‒99.


Figure 1. Similarities and differences between trafficking and smuggling

Source:IOM,Counter-TraffickingTrainingModules,2005.

Abuseof office in general is regulatedunder thePenal code in Chapter IX, Article 87.33 While these provisions provide legal grounds for prosecution, strengthened anti-corruption preventionmeasuresspecificallyapplicabletoImmigrationofficersshouldbeconsidered.

Recommendation 14:The Government of Uganda should consider revising the relevant legislation to include strengthenedprovisionstofightcross-bordercrime,that is, topenalizetheactofmigrantsmuggling,whichmightalsoensuretheadequateprotectionofsmuggledmigrantsintheprocessofprosecutingtheperpetrators.

Recommendation 15:DCICshouldundertakerevisionandupgradeoftheexistingImmigrationBorderProceduresManualtoincluderelevant recent developments at national, regional, continental and international levels.* Furthermore, arrival procedures should be strengthened to oblige the carriers to provide pre-arrival information ofpassengers(APIS)toenableadvancescreening.

Recommendation 16:TheGovernmentofUgandahas relevant legislation inplace thatpenalizesabuseofoffice.Furtheranti-corruptionmeasuresshouldbeconsidered,bothatthepreventionlevel,that is, awareness raising, as well asthroughenforcementoftheexistingprovisionsunderanenhancedinternalauditsystem.

* Importantnormative,protocolandproceduraldevelopmentsthathavetakenplaceregionally(EAC),continentally(AfricanUnion),aswellasinternationally(fightagainstterrorism,fightagainsttransnationalorganizedcrimeandothers)since2006;developmentsininternallegislationgoverningimmigrationandbordercontrol,suchastheamendmentstotheUgandaImmigrationCitizenshipandPassportControlAct(2009,2012);theintroductionoftheOneStopBorderPostActstemmingfromtheEACCommonMarketProtocolandAnnexonFreeMovementofPersons;theinitiationoftheNationalIDproject;reformsanddevelopmentofthee-Visaande-WorkPermitsystems;theenteringintoforceoftheUgandaFightagainstTraffickinginPersonsActin2009;aspectsoftheenhanced inter-agency cooperation to fight cross-border crime and terrorism, as well as other relevant factors thatmight beidentifiedbytheIntegratedBorderManagement(IBM)projectteamand/orDCICofficers.

33 “(1) A person who, being employed in a public body or a company in which the Government has shares, does or directs tobe done an arbitrary act prejudicial to the interests of his or her employer or of any other person, in abuse of the authority of his or her office, commits an offence and is liable on conviction to imprisonment for a term not exceeding seven years. (2)Whereapersonisconvictedofanoffenceundersubsection(1)andtheactconstitutingtheoffencewasdoneforthepurposesofgain,thecourtshall,inadditiontoanyotherpenaltyitmayimpose,orderthatanythingreceivedasaconsequenceoftheactbeforfeitedtotheGovernment.”


4.3. International obligations and agreements (humanitarian, transnational crime, ICAO Standards)

Ugandahassignednumerousinternationalconventionsthatimpactmigrationgovernance.ThefulllistoftherelevantconventionsisattachedtothisdocumentatAnnex5.

UgandaalsomadesignificanteffortsinthefightagainsttransnationalorganizedcrimeandterrorismandatabularoverviewofrelevantinternationaltreatiesispresentedinTable1.

Table 1: International treaties signed and ratified by Uganda

International treaties Signed/creation Ratified/adherence

UnitedNations(UN)ConventiononFightagainstTransnationalOrganizedCrime December 2000 April 2005

ProtocoltoPrevent,SuppressandPunishTraffickinginPersons,EspeciallyWomenandChildren(PalermoProtocol)

December 2000 Notratified

Protocol against the Smuggling of Migrants by Land, Sea and Air December 2000 Notratified

Protocol against the Illicit Manufacturing of and TraffickinginFirearms,TheirPartsandComponents andAmmunition

April 2005

ConventiononInternationalCivilAviation(ICAO) 4 April 1947 10 April 1967

UNConventionAgainsttheTakingofHostages1979 5 November 2003

UNConventionfortheSuppressionoftheFinancingofTerrorism 1999 5 November 2003

UNConventionfortheSuppressionofTerroristBombings 1997 5 November 2003

UNConventionontheProtectionoftheRightsofAllMigrant Workers and Members of Their Families 18 December 1990 14 November 1995

Recommendation 17:• The Government of Uganda should consider undertaking a comprehensive review and assessment of

thelevelofcomplianceofitsnationallegislationwithratifiedinternationalinstruments.Furthermore,theratificationofProtocolstotheUNConventionontheFightagainstTransnationalOrganizedCrimeshould be considered.

• Benchmark Uganda against EAC Member States on such implementations in order to harmonizeimmigrationlawswithintheEACzone.


4.4. Inter-agency and regional cooperation

4.4.a. Inter-agency cooperation

TheGovernmentofUgandarecognizestheimportanceofenhancedinter-agencycooperationinthe area of border management. This is commendable.

Severalinitiativesareunderwaythattacklesomeaspectsofbordermanagement,suchastheOSBPprojectandaninitiativetoestablishaNationalSteeringCommitteeonOSBPincludingtechnicalworking groups. Furthermore, a SingleWindowProject also introduces enhanced inter-agencycooperationontradefacilitation.ThereisongoingcooperationonbordersecuritybetweentheUPFandtheURAwiththeagenciesjointlyundertakingarmedpatrolsoftheborderindesignatedareas.Satisfactoryinter-agencycooperationasexemplifiedbytheWASPCommitteemeetingsatthefront-linelevel(BCPs)wasobservedduringtheassessmentvisits.

Duringitsfieldvisits,theassessmentteamrecordedastrongwillandcommitmenttointer-agencycooperationexpressedbyofficersrepresentingseveralborderagenciesoperatingattheBCPs.Whilecooperationismanifest,itisnotinstitutionalizedandnordoesitoperateinaregularandformalizedmanner,relyinginsteadontheattitudeandinitiativeoflocalheadsofagencieswhoeitherconvenemeetingsweeklyormonthlyoronanadhocbasis. Inter-agencycooperationandproceduresarealreadymentionedunder the ImmigrationBorderProceduresManual; however, it hasnotbeenfurtherelaboratedthroughinter-agencyMOUsorstandardoperatingprocedures(SOPs).34 There are someexistinginter-agencyagreementsinplace,suchastheMOUbetweenDCICandURAonjointuseoffacilitiesandinfrastructureatcertainbordercrossings,butitisnotuniversallyapplicabletoenableongoingcooperationatallBCPs.Themostsignificantgapintermsofbordermanagementistheabsenceofinformationandintelligenceexchangemechanismsthatpreventstheperformanceofjointriskanalysis,planningofjointoperationsandoperatingearlywarningmechanisms.ISOofficialsarewellawareoftheimportantroleofDCICfront-lineofficersinthegatheringofvitalrawdataonmovementsandactivityalongUganda’sborder. Accordingly, itwouldbeopportunetoenlistthesupportofISOinmakinganapproachtoOfficeofthePrimeMinisterorCabinettostrengthentheintelligence role of DCIC and open a budget line to enable DCIC to undertake such tasks.

Thecurrentassessmentofinter-agencycooperationisbestdescribedasfragmentedasittacklesonly limitedaspectsofthemigrationandbordermanagement.Thebest internationalpracticesin the area of border management call for enhanced inter-agency cooperation through theestablishmentof an inter-institutional framework (inter-agency/interministerialworkinggroup/taskforce)toensureenduringcoordinationandcooperationintheareaofborderandmigrationmanagementamongallrelevantministries/departments/agencies.35

Recommendation 18:• The Government of Uganda should consider establishing an inter-agencyworking group on border

management to ensure an adequate institutional framework for the planning, development andimplementationofcomprehensivebordermanagementpolicies.

• Adopting a general inter-agency bordermanagementMOU should be considered as a platform forfurther enhancement of mutual cooperation in all areas relevant to border management, that is,informationexchange,jointriskanalysisandjointoperationsattheborder.

• ExistingMOUstacklingsomeoftheareasofcooperation,suchasthejointuseof infrastructureandfacilities,shouldberevisedandupgraded.

34 UgandaImmigrationProceduresManual,July2006.Part3,B.10p.71.35 ECGuidelinesforIBMinExternalCooperation,pp.49,110.


4.4.b. Regional cooperation

Continental and regional treaties/policies Signed / creation Ratified

African Union Convention for the Protection andAssistance of Internally Displaced Persons in Africa 2010

The2004AfricanUnionRegionalStrategyforDisasterRiskReduction

TheMigrationPolicyFrameworkforAfrica

TreatyestablishingEAC 30 November 1999 7 July 2000

EAC Common Market Protocol and Annex on FreeMovement of Persons, Goods, Services and Labour 20 September 2009 1 July 2010

EACCustomsManagementAct2004 1 January 2005 1 February 2005

TreatyonCOMESA 5 November 1993 8 December 1994

Agreement establishing IGAD 1996

IGADRegionalMigrationPolicyFramework2012

All the aforementioned instruments/policies provide a framework for further development ofUganda’snationalpoliciesonborderandmigrationmanagement.ThemostimportantframeworkistheEACintegrationmodel,whichisastronginfluencingfactoronnationalpoliciestakeninthisregard.Forexample,EACintegrationrequiresthefollowing:

• NationalIDsforMemberStates’citizens(OngoingimplementationonJanuary2014;UgandalaunchedtheNationalIDcardsproject);

• EACstandardsrequire24/7bordercontrolsystems;

• SingleEACtouristvisa(launchedinKenya,UgandaandRwandaatthebeginningof2014);

• EACPassport(enteredintoforce(Cf.Chapter5));and

• OSBP(Cf.Chapter5).

• Furthermore,Uganda’smigrationpolicyisalsoinfluencedbytheRMPFdevelopedunderIGAD,whichrepresentsanoperationalizationoftheAfricanUnionMigrationPolicyFramework.

Whilealltheaboveoutlinedregionalandcontinentalinitiativesprovideaplatformforenhancedcooperation in theareaof trade facilitation, theregional/bilateral/multilateralcooperationandassistance in theareaofbordersecurityandthefightagainst transbordercrimeandterrorismisnotsufficientlydeveloped.Thisassessmentproposesanoverhaulandassessmentofexistingregimes in use, as well as those being considered by Uganda. With those results in mind, Uganda mightscanavailablelegalinstruments,practicalexamplesandgoodpracticeintheareaofcross-border cooperation that targets enhancedborder security thathasbeen testedandproven inAfricancontextsandapplythemlocally.ConsultationswiththeAfricanUnion,IGADandtheEACwouldbeagoodstartingpoint.Ugandamightalso,onceithasdevelopedadraftregime,listitfordiscussionatafutureregionalheadsofimmigrationmeeting.IOMcanassistandadvisetomovethisprocessforwardandensurethatUgandadevelopsatailor-maderegimethatsuitsitsuniquecircumstances.


Inthemeantime,cooperationwithneighbouringcountriesDemocraticRepublicoftheCongoandSouthSudan,whichfalloutsideoftheEACintegrationprocess,shouldbeintensifiedtoaddressfacilitationof cross-bordermovementsparticularly forpopulations living inborderingareasbyintroducing a special local transborder regime.

Recommendation 19:• Regionalinitiativestargetingcross-bordercooperationintermsofenhancingthebordersecurityshould

be considered. • TheGovernmentofUgandashouldinitiatenegotiationsattheinter-Statepoliticallevel,especiallywith

thecountriesoutsideoftheEACregion,toencouragetheconclusionofoperationalarrangementstoenablefacilitatedtransbordermovementofpopulationsinborderingareasfollowingthebestexamplesappliedelsewhereinAfrica(suchasNamibia).

CHAPTER 5

BORDER OPERATIONSAND POLICIES


Chapter summary

Uganda shares borders on the east with Kenya, the north with South Sudan, on the west with the DemocraticRepublicoftheCongo,onthesouth-westwithRwanda,andonthesouthwiththeUnitedRepublicofTanzania.UgandaisamemberoftheEACalongwiththreeofitsneighbours‒Kenya,RwandaandtheUnitedRepublicofTanzania.

Thecountryisdividedinto111districtsand4administrativeregions.Thereareatotalof41gazettedborder posts, 35 of which are active and operational. Additionally, there are hundreds of unofficialcrossingpoints,makingitverydifficulttosecuretheborders.Theborderscutacrosstribalandcommunitycatchment areas. This delineation that fails to recognize traditional tribal boundaries irritates localresidentswhowouldpreferspecialarrangementstofacilitatetheirfrequentvisitstonearbyneighboursin adjacent countries.

5.1. Border operations overview

Theassessmentteamvisitedaselectionof12land,airandmarineBCPsofdifferentsizesontheborderswiththeDemocraticRepublicoftheCongo,Kenya,SouthSudanandtheUnitedRepublicofTanzania.Theyrangedinsizefromthesmallestdealingwith12travellersperweektolargerBCPsprocessinginexcessof700perday.Thereisatotalof170officersdeployedacrossthe35BCPs,36withstaffinglevelsallocatedaccordingtothesizeofthepost.

Outside of Kampala, the immigration service is structured into regions, each headed by a PrincipalImmigrationOfficerwhohasresponsibilityfortheBCPsinhis/herjurisdiction.Tworegions(MbararaandMbale)aremandatedtoissuepassportsandextendvisas,withafurthertworegions(GuluandArua)beingdesignatedtoreceivemandatesduringthenextyear.Inallotherregions,thereisapassportcentrewhereapplicationsaresubmittedandtheofficersprocessthemforissuanceinKampala.Visaextensionsare currently done in Kampala.

IndividualBCPoperationsaredependentontrafficlevelsandtheavailabilityofelectricity–largerBCPsoperateona24/7basisandthemoreremotepostsoperatefor12hours.Inallcases,theopeningtimesreflect that of theneighbouring country.Access to theborderposts vary from sealed roads in goodcondition,totracksonlypassablewithafour-wheeldrivevehicle.

The standard of immigration accommodation and infrastructure varies from one-room hutswith noelectricity topurpose-builtaccommodationcurrentlyunderconstructionatLia,AmudatandMalaba.Customsaccommodation isof amuchbetter standardwithelectricityand Internet connectionatalltheBCPsvisited.Co-locationoftheagenciesshouldbeconsideredatthepoorlyresourcedDCICBCPsto enable Immigration officers to benefit from the facilities available to Customs. There are glaringresourceallocationdifferencesbetweenthetwoservices,particularlyatremoteborderposts.ThisisanindicationthatDCICcannotaccessthesamelevelofresourcesthroughthebudgetprocessasitsCustomscounterpart. It leadsto inequities,aswellasefficiencydifferencesbetweenthetwoagencies,whichdiminishestheoveralleffectivenessofbordersecurity.

TrafficcompositionatthesmallerborderpoststendstobeprimarilyamixofUgandansandnationalsoftheneighbouringcountry,whileatthelargerpostsandatEntebbeAirport,avarietyofnationalitiesareencountered.Trafficproblemsvaryaccordingtothelocationoftheborderpost.AtEntebbeAirport,problemsincludeforgedpassportsanddocumentation,inadequateorwronglydocumentedpassengersandnationalsofsecurityinterest,whileatthelandborders,themainproblemsareillegalentryacrosstheporousborders,forgedpassportsanddocumentation,aswellasinadequatedocumentation.Humantraffickingwasnotperceivedtobeaproblemacrosstheborderposts,butsmugglingofhumanswasseen

36 DCICworkshoppresentation,Kampala20June2014.

Chapter 5. Border operations and policies42

as an issue in the Arua region.

ThelackofITresourcesandnetworkconnectivityfocusingondatacaptureandtransferinthemajorityof border posts means that traveller arrival details are recorded in manuscript in journals. Only basicdetailsarerecorded,andtheredoesnotappeartobeanyattempttoreconcilearrivalsagainstdepartures.Arrivalcardsarecompletedbutareonlyusedforminimalstatisticalreturns.Generally,onlythenationalityiscounted.

Ateachpost theassessment teamvisited, therewasgoodevidenceof inter-agencycooperationbeingpracticedand in someBCPs, jointoperationswere conducted. Eachpostheld formal and regular jointmeetingsusuallychairedbytheISOofficerundertheWASPcommitteesystem.ExamplesofjointoperationsandpatrolsweregivenatMalaba,BibiaandPortBell.Additionally,Customshavehadagreatdealofsuccesswithcross-borderjointsurveillanceandpatrolswithKenya,RwandaandtheUnitedRepublicofTanzania.37

Countries with porous land borders tend to compensate for easily compromised entry controls by having a system of robust internal control. The enforcement structure in Uganda is already in place with the requirementintheUgandaCitizenshipandImmigrationControlActthatallaliensshouldregisterwithin90daysoftheirarrival inthecountry. Inaddition,theDCIC ismakingprogressontheimplementationofthenational identitycardsystem.TheUgandaCitizenshipandImmigrationActallows,underPartVI,“ImmigrationControl”(par.65)fortheprosecutionofanyoneaidingandabettinganoffenderofimmigrationlaws.

TheRegionalOfficeratAruainitiatedaprojecttoraisethelevelofcompliancewithregardtotheregistrationofaliens.Thisinvolvedawarenessraisingandworkingwiththelocalcommunityleaders.Consequently,registrationincreasedfrom42percentto86percent.Itisrecommendedthatallregionsadoptthissystem.

5.1.a. Border issues

On-the-groundassessmentofoperational constraintsat theBCPsconcurred, toa largeextent,withviewsexpressedbyseniorofficersatDCICheadquarters.ThereisakeenawarenessofthedauntingscaleofeffectivelycontrollingthousandsofkilometresoflandandmarinebordersfromBCPswithgenerallypoorinfrastructureandinadequateresourcesbothintermsofequipmentandpersonnel.

StaffinglevelsacrosstheagenciesattheBCPsgenerallyonlyenablestafftoprovidetheabsoluteminimum cover at the border, and precludes any regular enforcement activity such as borderpatrolsatunofficialcrossingpoints.Thestafftheteamspoketoexpressedfrustrationatnotbeingable to mount daily mobile patrols to patrol the borderlines and thus combat illegal entry.

Whileanincreaseinfront-linestaffinglevelswouldaddtotheborderagencies’abilitiestomoreeffectivelysecuretheborders,suchimprovementsshouldbedoneintandemwithafundamentalreview of BCP staff deployment. This should include reviewing the situation at locations suchas Amudat on the border with Kenya, where the assessment team noted there was no border agency manning the BCP. Another anomaly was noted at Wanseko, where ferry arrivals are from PanyimuracrossthelakeinUganda,yetofficersweredeployedtothisinternallocationratherthanatinternationalborders.

The operatingmodel at all the BCPS visitedwas the presence of a plethora of agencies withoverlappinginterestsandacommonmandatetoprotectUganda’sborders.ThiswasparticularlyevidentatthesmallerBCPswherethenumberoftravellersperweekonlyslightlyexceededthenumberofborderofficerspostedthere.

AnIBMoperatingmodelthatdeploysborderofficerswithcross-conferredpowerswouldincrease

37 CustomspresentationattheworkshopinKampala,20June2014.


Chapter summary

Uganda shares borders on the east with Kenya, the north with South Sudan, on the west with the DemocraticRepublicoftheCongo,onthesouth-westwithRwanda,andonthesouthwiththeUnitedRepublicofTanzania.UgandaisamemberoftheEACalongwiththreeofitsneighbours‒Kenya,RwandaandtheUnitedRepublicofTanzania.

Thecountryisdividedinto111districtsand4administrativeregions.Thereareatotalof41gazettedborder posts, 35 of which are active and operational. Additionally, there are hundreds of unofficialcrossingpoints,makingitverydifficulttosecuretheborders.Theborderscutacrosstribalandcommunitycatchment areas. This delineation that fails to recognize traditional tribal boundaries irritates localresidentswhowouldpreferspecialarrangementstofacilitatetheirfrequentvisitstonearbyneighboursin adjacent countries.

5.1. Border operations overview

Theassessmentteamvisitedaselectionof12land,airandmarineBCPsofdifferentsizesontheborderswiththeDemocraticRepublicoftheCongo,Kenya,SouthSudanandtheUnitedRepublicofTanzania.Theyrangedinsizefromthesmallestdealingwith12travellersperweektolargerBCPsprocessinginexcessof700perday.Thereisatotalof170officersdeployedacrossthe35BCPs,36withstaffinglevelsallocatedaccordingtothesizeofthepost.

Outside of Kampala, the immigration service is structured into regions, each headed by a PrincipalImmigrationOfficerwhohasresponsibilityfortheBCPsinhis/herjurisdiction.Tworegions(MbararaandMbale)aremandatedtoissuepassportsandextendvisas,withafurthertworegions(GuluandArua)beingdesignatedtoreceivemandatesduringthenextyear.Inallotherregions,thereisapassportcentrewhereapplicationsaresubmittedandtheofficersprocessthemforissuanceinKampala.Visaextensionsare currently done in Kampala.

IndividualBCPoperationsaredependentontrafficlevelsandtheavailabilityofelectricity–largerBCPsoperateona24/7basisandthemoreremotepostsoperatefor12hours.Inallcases,theopeningtimesreflect that of theneighbouring country.Access to theborderposts vary from sealed roads in goodcondition,totracksonlypassablewithafour-wheeldrivevehicle.

The standard of immigration accommodation and infrastructure varies from one-room hutswith noelectricity topurpose-builtaccommodationcurrentlyunderconstructionatLia,AmudatandMalaba.Customsaccommodation isof amuchbetter standardwithelectricityand Internet connectionatalltheBCPsvisited.Co-locationoftheagenciesshouldbeconsideredatthepoorlyresourcedDCICBCPsto enable Immigration officers to benefit from the facilities available to Customs. There are glaringresourceallocationdifferencesbetweenthetwoservices,particularlyatremoteborderposts.ThisisanindicationthatDCICcannotaccessthesamelevelofresourcesthroughthebudgetprocessasitsCustomscounterpart. It leadsto inequities,aswellasefficiencydifferencesbetweenthetwoagencies,whichdiminishestheoveralleffectivenessofbordersecurity.

TrafficcompositionatthesmallerborderpoststendstobeprimarilyamixofUgandansandnationalsoftheneighbouringcountry,whileatthelargerpostsandatEntebbeAirport,avarietyofnationalitiesareencountered.Trafficproblemsvaryaccordingtothelocationoftheborderpost.AtEntebbeAirport,problemsincludeforgedpassportsanddocumentation,inadequateorwronglydocumentedpassengersandnationalsofsecurityinterest,whileatthelandborders,themainproblemsareillegalentryacrosstheporousborders,forgedpassportsanddocumentation,aswellasinadequatedocumentation.Humantraffickingwasnotperceivedtobeaproblemacrosstheborderposts,butsmugglingofhumanswasseen

36 DCICworkshoppresentation,Kampala20June2014.















bordersecuritywithouttheneedtoincreasestaffinglevels.Itwouldalsofacilitatethecrossingtimeforthegenuinetravellerwhowouldberequiredtoreporttoonlyoneofficerratherthanseveral.

Aneffectivewayofdeployingofficerswouldbetohavealayeredapproachattheborder.Briefly:

a. Pre-BCP–Marinepatrolsforlakeandriverborders.Thiswoulddependupontheavailabilityoffullyequippedpatrolboats.

b. BCPPrimaryLine–Oneofficertoactonbehalfofall theagencies.Thiswouldrequirethecross-conferralofborderpowers(seesection5.2)toenableofficerstoperformotheragencyfunctions.Thenumberofcross-trainedofficersdeployedtothePrimaryLinewoulddependonthesizeoftheBCP.

c. Post-BCP–Officersfreedupbythecross-conferralofpowerscanberedeployedtoperformjoint intelligence-ledenforcement functions.Examplesof thisare themountingof randominland checkpoints where compliance measures can be applied on travellers using bus routes knowntopickupillegalentrantsfromunofficialcrossings,patrollingvulnerablecrossingpointsand interceptingsmuggledgoods.This requires theavailabilityof fullyequipped transport,communicationstofacilitateidentitychecksonsuspects,intelligencetrainingandriskanalysistraining.

Thelackofmobilityatthebordersisseriouslyimpedingofficers’abilitytosecuretheborders.Theassessment team was advised that there are some vehicles and boats available at some border poststodifferentagencies.Inordertoascertainexactlywhattherequirementisfortheprovisionofvehiclesandboats,aninter-agencystocktakeshouldbeimplementedtoestablishwhatmodesoftransportarecurrentlyinplaceandidentifytheappropriatetypeoftransportationneededtofitthecharacteristicsofindividualborderposts.AtsomeborderpostssuchasKikagati,thereisalowvolume of crossings and neither DCIC nor Customs has a suitable vehicle because neither agency canjustifytheprovisionofavehicleforitsownlimitedneeds.Itisatsuchlocationsthatneedscanbepooledandafour-wheeldrivevehiclemightbeshared(thearrangementwouldincludefuelandmaintenance)byalltheagenciesattheBCPtoconductpatrols,aswellastransportsuppliesfromandpersonnel to/fromdistrict townsandona less-frequentbasis takesensitivematerialtoKampala.AUganda-wideprioritylistofborderposttransportneedsshouldbedevelopedtoaddressgapsinasystematicway.

Theneedforprovisionofforgerydetectionequipmentandtrainingwasraisedbynearlyalltheofficersthattheassessmentteamspoketo.Officershavereceivedforgerydetectiontrainingbutatabasiclevel.Forgerydetectionequipment,ifavailable,usuallycomprisesofjustultravioletlamps.

The use of forged documentation is one of the primarymodus operandi used in cross-bordercrimeandillegalentry(Frontex,2012;INTERPOL,n.d.;UnitedNationsOfficeonDrugsandCrime,2011), as well as information on technical support.38 Criminals and terrorists use increasingly sophisticatedforgerytechniques,anditisessentialthatborderofficershaveaccesstoequipmentandtechniquestobolsterbordersecurity.

Itisrecommendedthatanationalcentreofexcellenceforforgerybeestablished,possiblybasedatEntebbeAirport,withadvancedtrainingandequipment,andresponsibilityforensuringongoingtrainingofallofficersbasedattheBCPs.ThecentreofexcellencewouldalsoberesponsibleforensuringthateachBCPhasappropriateandfunctionalequipment.Thiswouldsignificantlyassistinidentifyingforgeriesandbolsterbordersecurity.

38 Frontex, Annual Risk Analysis 2012 (Frontex, Warsaw, Poland, 2012). Available from http://frontex.europa.eu/assets/Attachment_Featured/Annual_Risk_Analysis_2012.pdf;INTERPOL,Bordermanagement.Availablefromwww.interpol.int/INTERPOL-expertise/Border-management/Operations;UnitedNationsOfficeonDrugsandCrime, Smuggling of Migrants, A Global Review and Annotated Bibliography of Recent Publications(NewYork,2011).Availablefromwww.unodc.org/documents/human-trafficking/Migrant-Smuggling/Smuggling_of_Migrants_A_Global_Review.pdf


bordersecuritywithouttheneedtoincreasestaffinglevels.Itwouldalsofacilitatethecrossingtimeforthegenuinetravellerwhowouldberequiredtoreporttoonlyoneofficerratherthanseveral.

Aneffectivewayofdeployingofficerswouldbetohavealayeredapproachattheborder.Briefly:

a. Pre-BCP–Marinepatrolsforlakeandriverborders.Thiswoulddependupontheavailabilityoffullyequippedpatrolboats.

b. BCPPrimaryLine–Oneofficertoactonbehalfofall theagencies.Thiswouldrequirethecross-conferralofborderpowers(seesection5.2)toenableofficerstoperformotheragencyfunctions.Thenumberofcross-trainedofficersdeployedtothePrimaryLinewoulddependonthesizeoftheBCP.

c. Post-BCP–Officersfreedupbythecross-conferralofpowerscanberedeployedtoperformjoint intelligence-ledenforcement functions.Examplesof thisare themountingof randominland checkpoints where compliance measures can be applied on travellers using bus routes knowntopickupillegalentrantsfromunofficialcrossings,patrollingvulnerablecrossingpointsand interceptingsmuggledgoods.This requires theavailabilityof fullyequipped transport,communicationstofacilitateidentitychecksonsuspects,intelligencetrainingandriskanalysistraining.

Thelackofmobilityatthebordersisseriouslyimpedingofficers’abilitytosecuretheborders.Theassessment team was advised that there are some vehicles and boats available at some border poststodifferentagencies.Inordertoascertainexactlywhattherequirementisfortheprovisionofvehiclesandboats,aninter-agencystocktakeshouldbeimplementedtoestablishwhatmodesoftransportarecurrentlyinplaceandidentifytheappropriatetypeoftransportationneededtofitthecharacteristicsofindividualborderposts.AtsomeborderpostssuchasKikagati,thereisalowvolume of crossings and neither DCIC nor Customs has a suitable vehicle because neither agency canjustifytheprovisionofavehicleforitsownlimitedneeds.Itisatsuchlocationsthatneedscanbepooledandafour-wheeldrivevehiclemightbeshared(thearrangementwouldincludefuelandmaintenance)byalltheagenciesattheBCPtoconductpatrols,aswellastransportsuppliesfromandpersonnel to/fromdistrict townsandona less-frequentbasis takesensitivematerialtoKampala.AUganda-wideprioritylistofborderposttransportneedsshouldbedevelopedtoaddressgapsinasystematicway.

Theneedforprovisionofforgerydetectionequipmentandtrainingwasraisedbynearlyalltheofficersthattheassessmentteamspoketo.Officershavereceivedforgerydetectiontrainingbutatabasiclevel.Forgerydetectionequipment,ifavailable,usuallycomprisesofjustultravioletlamps.

The use of forged documentation is one of the primarymodus operandi used in cross-bordercrimeandillegalentry(Frontex,2012;INTERPOL,n.d.;UnitedNationsOfficeonDrugsandCrime,2011), as well as information on technical support.38 Criminals and terrorists use increasingly sophisticatedforgerytechniques,anditisessentialthatborderofficershaveaccesstoequipmentandtechniquestobolsterbordersecurity.

Itisrecommendedthatanationalcentreofexcellenceforforgerybeestablished,possiblybasedatEntebbeAirport,withadvancedtrainingandequipment,andresponsibilityforensuringongoingtrainingofallofficersbasedattheBCPs.ThecentreofexcellencewouldalsoberesponsibleforensuringthateachBCPhasappropriateandfunctionalequipment.Thiswouldsignificantlyassistinidentifyingforgeriesandbolsterbordersecurity.

38 Frontex, Annual Risk Analysis 2012 (Frontex, Warsaw, Poland, 2012). Available from http://frontex.europa.eu/assets/Attachment_Featured/Annual_Risk_Analysis_2012.pdf;INTERPOL,Bordermanagement.Availablefromwww.interpol.int/INTERPOL-expertise/Border-management/Operations;UnitedNationsOfficeonDrugsandCrime, Smuggling of Migrants, A Global Review and Annotated Bibliography of Recent Publications(NewYork,2011).Availablefromwww.unodc.org/documents/human-trafficking/Migrant-Smuggling/Smuggling_of_Migrants_A_Global_Review.pdf














http://frontex.europa.eu/assets/Attachment_Featured/Annual_Risk_Analysis_2012.pdf

http://frontex.europa.eu/assets/Attachment_Featured/Annual_Risk_Analysis_2012.pdf

http://www.interpol.int/INTERPOL-expertise/Border-management/Operations

http://www.interpol.int/INTERPOL-expertise/Border-management/Operations

http://www.unodc.org/documents/human-trafficking/Migrant-Smuggling/Smuggling_of_Migrants_A_Global_Review.pdf

http://www.unodc.org/documents/human-trafficking/Migrant-Smuggling/Smuggling_of_Migrants_A_Global_Review.pdf


Recommendation 20:• Reviewthecurrentstaffingdeploymentmodelstoensurethatofficersaredeployedappropriatelyand

formaximumefficiency.• Giveconsiderationtolayeredbordercontrol.• Implementanationalinter-agencyreviewoflandandmarinetransportationwithaviewtoestablishing

needs,identifyinggapsandthepotentialareasforjointownership.• To establish a centre of excellence for forgery detection,which should be responsible for ensuring

ongoingtrainingandequipmentprovisionacrosstheBCPs.• Officersatthecentreofexcellencetoreceiveadvancedtraininginforgerydetectionandtheuseofa

rangeofdocumentexaminationequipment.• Reviewthesystemsusedintheregionstomaximizecompliancewiththealienregistrationrequirement

in line with that implemented in Arua.• Considerco-locatingBCPagenciestoensureallagenciesenjoythesamestandardofaccommodation.

5.2. Cross-conferral of powers

Thecross-conferralofbordercontrolpowerswouldenableofficerstoperformotheragencies’functionsattheborder,withtheaimofreducingmultipleborderofficerpresenceattheprimarylineandenablingofficerstoberedeployedtoborderpatrolsandotherenforcementfunctions.

Cross-conferralofpowersaresometimesusedwithintheOSBPoperatingmodel,buttheycanalsobeused inotherBCPs thatarenotpartof thedesignatedOSBPprogramme,asameansofmaximizingscarceresourcesandincreasingefficiency.

Itwouldrequirelegalenablement,possiblyastatutoryinstrumentorMOU,andcomprehensivecross-training,backedbyrobustmanagementsystems,legaldelegationsandSOPs.

Variationsofthistypeofmodelhasbeenincreasinglyadoptedsince2001bycountries,suchasCanada,theUnitedKingdomandUnitedStatesastheyscrutinizedtheirborderoperationstoincreasesecurity,improveinformationandintelligenceexchangesandensureagenciesdidnotoperateinsilos.AustraliaannouncedinMay2014thatitwouldbemergingitsImmigrationandCustomsagencies.

Thelevelofcross-conferral,andwhichagenciesareinvolved,dependsontheindividualcountry.

It would help enforce border security at single agency crossings, such as the police checkpoint at Lwakhakha on the border with Kenya, where currently the only border check is to record the vehicle registrationandthenumberofpeopleinthevehicle.Thereisnopassportexaminationorpersonaldatarecorded.

The team acknowledges the conferral of powers is an internal process that is governed by ministerial approvals and inputs, which would involve a review by the DCICortheOfficeofthePrimeMinisterforconsiderationbyCabinetandsubsequentapproval.Ifthegovernmentthendecidestoproceedwiththearrangement,itwouldhavetoappointaninterdepartmentalcommitteetooverseenecessaryadoptionprocesses to establish the regime.

Recommendation 21:• Toestablishamulti-agencyprojectgrouptoexaminetheoptions,benefitsanddrawbackswithinthe

cross-conferralmodel.• ToproduceanoptionspaperforconsiderationbyDCICandGovernmentofUgandaseniormanagement

foreventualsubmissiontoCabinetconsiderationandapproval.• Deviseanimplementationstrategywithexpertinput.


5.3. Intelligence

TheDCIChasstartedtobuilditsintelligencecapabilityandcommencedtrainingitsofficers.ThisinitiativewouldbefurtherstrengthenedbyestablishinganationalImmigrationIntelligenceunitfullycognizantwithintelligencegathering,processinganddisseminationandfullycompliantwithnationalandinternationallaws.Intelligenceproductsandactivities,suchasenforcementtargetingandpackages,aswellasriskandthreatanalysiscouldassist inprovidingincreasedandbetterbordermanagement.Anintelligence-ledcontrolwouldenableresourcestobedeployedtomaximumeffectinpreventingandprosecutingcrimes,suchastraffickinginpersons,illegalmigrantroutes,smugglingofmigrantsandterroristactivity,whileensuring the genuine traveller is processed with minimum delay.

It should be noted that the Minister, the HonorableJamesBaba,putanImmigrationIntelligenceUnitnearthetopofhislistofprioritieswhenlaunchingthisproject.AnImmigrationIntelligenceunitwouldfeedinandaddvaluetothenationalsecurityservices.

Recommendation 22:• AgreetotheestablishmentofanImmigrationIntelligenceUnit.• Establishaprojectmanagementteamwithexpertinputtodecidethestructureandobjectivesofthe

unit.• Sourceandrecruitintelligencetrainersanddeviseashort-andlong-termtrainingprogramme.• Compile SOPs and consult legal experts to ensure legal compliance with any data protection or

investigatorylegislation.

5.4. Detention

Theteamwasonlyabletovisitonedetentionaccommodationduetotimeconstraints.ThatwasthedetentionsuiteatEntebbeAirport,andthereareseriousconcernsaboutthestandardofaccommodation,aswellastheHealthandSafetyissuesfordetaineesandstaff.

Internationallyrecognizedprinciplesregardingthedetentionofirregularmigrantshavebeendevelopedbydifferent internationalbodies, including somewithbinding force thatguarantee theprotectionofhumanrightsofthedetainees.AmongthesebindingstandardsaretheConventionontheRightsofAllMigrantWorkersandMembersoftheirFamilies,InternationalCovenantonCivilandPoliticalRights,andtheConventionontheRightsoftheChildtowhichUgandaisasignatory.

Recommendation 23:• AssessallimmigrationdetentionaccommodationacrossUgandatoensurethattheymeetinternational

standards.• CompilelegallycompliantSOPsinlinewithinternationalconventionsonthetreatmentofdetainees.• Developatrainingprogrammetocoverthespecialistnatureofdetentionwork.• Strengthenexisting cooperationwithCustoms, Intelligence, thePolice and international partners to

ensureproperconsiderationof thebestconditions fordetainedpersons.Considerationneeds tobegiventoreligiousbelief,gender,languageandwhendetentionisactuallyappropriate.Thereisalsoaneed to consider the physical and mental health needs of detainees. Need for regular review of whether detentionislawfuland/orappropriate,preferablyconductedbysomeoneindependentofthedecisiontodetain.Problemswithdetentioncoulddirectlyaffectthepublicandinternationalcommunity’sviewofDCICoverallintegrity.Thiscouldhavetheknock-oneffectofdamagingstaffmorale.


5.5. Counter-trafficking

Ugandaisasource,transitanddestinationcountryfortrafficking.The2014TraffickinginPersonsReportpublished by the US Department of State states that the Government of Uganda does not fully comply with theminimumstandardsfortheeliminationoftraffickingbutthatitismakingsignificanteffortstodoso.

Immigrationdealswithincidentsoftraffickingandcasesthatrequiremoreinvestigationsarereferredthrough the Commissioner for Immigration to the Prevention of Trafficking in Persons CoordinationOfficeattheMIAinKampala.

All Immigration officers have received training in identifying victims of trafficking, but some of theofficersspokentodisplayedmisunderstandingoverwhattraffickingactuallyis,andconfusionoverthedifferencesbetweenmigrantsmugglingandtraffickinginpersons.Consolidationandrefreshertrainingwouldenhanceknowledgeandsupportofficersintheireffortstocombattheseglobalcrimes.

Recommendation 24:To consider implementing a national programme of ongoing refresher and consolidation training onidentifyingandassistingvictimsoftrafficking.

5.6. The passport system

Themain passport office is situated at DCIC headquarters in Kampala, and there are two approvedregionalpassportofficesatMbaleandMbarara,withtwofurtherregionalpassportofficesintheprocessofbeingmandatedtoissuepassports.TheregionalofficesareheadedbyPrincipalOfficers,andbyanAssistant Commissioner of DCIC in Kampala.

Currently,thePrincipalOfficerineachnon-passport-issuingregionisrequiredtotraveltoKampalabypublictransportwithpassportapplications,returningwithnewlyissuedpassports. ThePrincipalOfficersinMbaleandMbararasubmitarequisitionforaspecificnumberofblankpassportspriortotheirtravelto Kampala.

Inbothcases,thismodeoftravelhasmajorsecurityimplicationsandshouldbeaddressedasamatterof urgency.

Thepassportapplicationprocess isdonemanually,which iscumbersomeand leads to longdelays inKampala.Applicantsareadvisedtowaitatleastthreemonthsbeforecheckingonprogress.Itisdifficultforstafftocheckwhereanapplicationisinthesystemduetothelargevolumeofapplications.Thereisnosystemtocontactapplicantstoadvisethemwhenthepassportisready.Consequently,theofficewastesconsiderabletimedealingwithapplicantswhosepassportsremainunfinishedinthesystem,butwho have reported to Kampala to collect them.

Applicantsare required tosubmitapplicationswithsupportingdocumentsandaverified feereceipt.The application then goes through a number of stages including cross-checking records for previousapplications,assessingtheapplicationanddocuments,andapproval.Applicationswhodonotmeettherequirementsarereferredbackforadditionalinformation.

Onceapproved,theapplicationproceedstothefinalstep,whichisthepersonalizationofthepassport.ThePassportPersonalizationsectioninKampalaislocatedinaroomsecuredbyelectronicentrycontrol,padlocksandother locks.Thesystem issloweddownbytherequirement to inputdata thatupuntilthenhasbeenenteredmanuallydue to the lackof computerization.Blankpassportsarekept in thesafe,andthereisasystemofrandomchecksforquality.Thepassport-issuingprocessiscompliantwithinternationalstandards.


Passportcollectionisrecordedinamanual log.Therearehundredsofuncollectedpassportsthatarestoredon topofadesk inanoffice that iseasilyaccessibleby thepublic. There isnopolicy for thedestructionofuncollectedpassports. IOM is available toprovide technical adviceandassistanceonpassport-issuanceprocesses.

Recommendation 25: • ImplementasecuremeansoftransportingapplicationsandpassportsbetweentheregionsandKampala.• Investigateasystemofcommunicationwithapplicants,anexampleofwhichcouldbeshortmessage

service(SMS)messages.• Apolicytobedevelopedforthedestructionofuncollectedpassports.Applicantsmustbemadeaware

thatifthedocumentisnotcollectedafteracertainperiod,itwillbedestroyed,andtheywillhavetoreapply and pay again.

• Uncollected passports, which are accountable documents, must be stored securely in a lockable cabinet, notleftonthetopofadesk.

• Computerization of the application process should be implemented. IOM can assist as it has theappropriate technology for such systems.

5.7. The work permit system

AllworkpermitsareissuedatDCICinKampala.Applicationsaremadeinpersonorbytheemployers.Therearebetween20and50newapplicationsand20renewalapplicationsperday.

Theworkpermitsectionislocatedinseveralrooms,allofwhicharedifficulttonegotiatebecauseofthelargepilesoffiles.Everystageoftheprocess iscompletedmanually.Theonlycomputerizationisthestand-alonesystemthatcontainsdatafromthelast10yearsandisusedtocheckwhetherapermithasbeen issued previously.

Applicationsarescrutinized,andfieldvisitsarearrangedtocorroborateinformationwherenecessary.OfficersfromKampalatraveltotheregionstoconductfieldvisitsratherthanusinglocallybasedstaffintheregionaloffices.Thestaffsregularlyencounterforgeddocumentation,butdonothaveadequatedocumentexaminationtraining.TheLegalDepartmentistheenforcementarmoftheWorkPermitsUnit.Oncealltheinformationisgathered,thefileissummarizedandforwardedforapprovalorrejection.

Regionalizationofworkpermit issuingandgrantingvisaextensions isbeing rolledout gradually,butthereisasystemthatcouldbeutilizedbynon-mandatedregionalofficesinthemeantimethatwouldundertakethefollowing:

• Bringinrevenuefortheregionaloffices;

• Improveefficiencyat theDCICbyensuringapplicationsareproperlycompletedandreducingtheburdenofreferrals;and

• Improve the service provided to work permit and visa applicants.

The regional offices might charge a small fee to ensure that the application forms and supportingdocumentsmeettherequiredstandardbeforeformsaresubmittedtotheHeadOffice.Itwouldhavetobestressedtoapplicantsthata“checkandsend”servicedoesnotguaranteeissuanceofthepermit/visa,butthatitwouldsavetheapplicantthetimeandinconvenienceoftravellingtoKampalatosubmittheapplicationforendorsementattheregionaloffice.


Recommendation 26:• Authoritytoissueworkpermitsandvisaextensionstobedelegatedtotheregionaloffices.• Examinethepossibilityoftheregionalofficesperforminga“checkandsend”serviceforworkpermit

andvisaapplications.• Officers in the regions toundertakefieldvisits andcompliancechecks,whichwould release staff in

Kampalatotakeonotherduties.• Computerizationofthesystem.• Additional trainingondocumentfraud/counterfeitdetectionforallworkpermitsstaff inaccordance

withEACandnationalregulations.

5.8. BCP and regional office human resource management

ThedistancesbetweenBCPsandthelackofofficialtransportandcommunicationsystemshaveresultedinmanagersbeingrequiredtoremotelymanageandsupervisetheirstaff.

The Immigration Border Procedures Manual from 2006 contains comprehensive instructions andguidanceforstaff.Itisausefulmanagementtoolthatservestoreduceadhocandillegaldecision-making.However,aftereightyears, itrequiresupdatingtotakeintoaccountrecentnationalandinternationallegislationandpolicies,aswellasregionaldevelopments.

Therearenoformalmanagementinformationsystems(MIS)orriskassessmentsystemsinplacetoassistmanagersindeployingstaffmoreefficiently.

Regionalizationofcertainfunctionssuchasissuingpassportshascommenced.ThisshouldbeextendedtoallborderfunctionssothatthestructuresintheregionsreflectthestructureinKampala.ThiswouldeliminatetheinefficienciesofprincipalofficersbeingrequiredtotraveltoKampalaonaregularbasis,aswellasempowerregionalofficerstoconductfieldandenforcementvisitsratherthanofficersbeingsentfromKampalatomakeenquiriesandvisitsinareasthattheyareunfamiliarwith.

Recommendation 27: • UpdatehumanresourcemanagementaspectsoftheImmigrationBorderProcedureManualproduced

byIOMinlightofchangedoperationalconditions.• EstablishMISsystemstoinformmanagers.• Whilethenationalriskassessmentfunctionwouldsitwithinanintelligenceunit,allBCPsshouldhave

trainedofficerstoinformlocalmanagersandfeeddataandinformationintothenationalunit.• RegionalofficestoreflectthestructuresinKampala.• Provisionofappropriatetransportforusebytheregions’principalofficers.• NationalreviewofthedeploymentofofficerstoBCPs.

5.9. Ministry of Health

TherewerenohealthofficialsatanyoftheBCPsvisitedbytheassessmentteam.Healthofficialsprovideanimportantserviceattheborder.Theyhelpprotectthelocalandnationalcommunitiesbyidentifyingandraisingawarenessofdiseaseandepidemics.Theycanassistandtreatmigrantswithinaquarantinedzonewhendealingwithpandemics suchasEbola.Healthofficials canbe trained toprovidemedicaladviceandcounsellingforvictimsoftraffickingandothervulnerablegroups.


Recommendation 28:• ToconsiderimplementinganationalstrategyofporthealthateachBCPalignedtoInternationalHealth

Regulations(IHR2005).• CompilethelistofallBCPandsensitizerespectivedistricthealthteamsontheirbordercontrolroles

andresponsibilities.• BriefandtrainrelevanthealthworkersindistrictswithBCPsontheirrolesandresponsibilities.

CHAPTER 6

INFORMATION TECHNOLOGYMANAGEMENT


Chapter summary (developed in line with objectives in Chapter 1: Environment and assessment background)

Despitetheextentofmigrationdynamics inUgandaanditsneighbours,there isapaucityofdataonmigration.Existingdata isoftenpoorlymanagedandnotadequately linkedtopolicychoices. Indeed,research capacities appear to be quite limited to produce the necessary evidence for coherent andcomprehensivemigrationpolicies.Asaresult,thepoliciesadoptedoftendonotrelyonevidence-basedinstrumentsandcanbeswayedbyill-informedpoliticaldebateandxenophobia.39

The assessment team and IOM would encourage using the data collected by DCIC and others for further researchanddevelopmentofpublications,suchastheUgandaMigrationProfiletohelpintheongoingconsiderationandmeasuredformulationofmigrationpolicy,lawsandprocedures.Theteamrecommendsthe establishment of interdepartmental mechanisms to collect and manage data and the training of key nationalinstitutionsanddepartmentsonmigrationdatamanagement.

ThemanagementandcontrolofUganda’scomplexand lengthy landborder isasignificantchallengeforImmigration,Customsandborderpoliceofficers.Inordertoaddressthischallenge,theDCICneedstostrengthenandimproveitsICTsystemintermsofhardwareandsoftwaretoaddresstheemergingrequirementsforanefficientborderMIS.

Uganda’sbordercontrolregimehastocopewith largeandcomplexmigrationflows intheregion. Inordertoaddressthischallenge,theGovernmentofUgandahasdecidedtoadoptarangeofICTsolutionstosupporttheworkofitstwoprincipalborderandmigrationmanagementagencies‒ImmigrationandCustoms.

Inlinewiththeneedforstrengthenedimmigrationcontrol,theGovernment‒throughtheDCIC‒hasalsostartedaprojecttoimplementeVISAandeWorkpermitsinordertobettermanagetemporaryworkers,residentsandotherswhoapplyforshort-termstayinUganda.

TheprioritiesofDCICintermsofICTbordermigrationmanagementareasfollows:

• ImproveitsICTinfrastructure,includingthroughaninterconnectedinformationsystemwiththepossibilityofaddingconnectivitytointernationalwatchlistssuchasINTERPOL’sI-24/7.

• EnhanceDCIC capacity to exchange datawith other government departments, border controlentitiesandlawenforcementagencies.

• Establishwithinareasonabletimeframetechnologythatenablesthegatheringofreliableandreal-timemigrationmanagementinformationsuchasentryandexitnumbersandtypes,visasissued,work permits, alert lists, travel documents and through links to other government databases that concernmigration.

• StrengthenDCICinfrastructureandofficesatBCPstoestablishanappropriateenvironmentfortheinstallationofnewtechnologies,securecommunicationsandICTsolutions.

• Improveequipmentlevelsintheheadquartertoenabletheimplementationofanefficient,reliableandsecurecentraldatabaseformigrationmanagement.

39 Generallydiscussedin“ProspectsforFreeMovementintheEastAfricanCommunity”,apaperforthe“RegionalGovernanceofMigrationandSocialPolicy:ComparingEuropeanandAfricanRegionalIntegrationPoliciesandPractices”byJohnOucho,PhD,PopulationStudiesandResearchInstitute,UniversityofNairobi,Kenya,heldattheUniversityofPretoria,SouthAfrica,19‒20April2012.EspeciallyatSection4.3:“Xenophobiaiskillingwell-intentionedeffortsofRECstofathomouteffectiveregionalintegrationobservingthetreatiesandprotocolsofallRECsinESA.SADCcountrieshavenoexcusefailingtotakeonboardresearchfindingsonxenophobia,basedon[SouthernAfricanMigrationProgramme]SAMPsurveysonxenophobiatoavoidtheassumptionthattheproblemdoesnotexistwithintheirareasofjurisdiction.ToleranceshouldbethehallmarkofobservingtheprinciplesofregionalintegrationandliberalisedmovementofpersonsinthetruespiritofAfricangoodwillenunciatedinthe[AfricanUnion]AUandRECtreaties.”

Chapter 6. Information technology management52

6.1. ICT environment: Current migration and population management projects

6.1.a. Personal Identification Secure Comparison and Evaluation System

ThePersonalIdentificationSecureComparisonandEvaluationSystem(PISCES)isabordercontroldatabase system employing biometrics.

ThePISCESprojectwasinitiatedbytheUnitedStatesDepartmentofState,TerroristInterdictionProgram(TIP) in1997, initiallyasasystemforcountriesto improvetheirwatch listcapabilitiesbyprovidingamainframecomputersystemtofacilitateimmigrationprocessing.Itwassuppliedto a select group of countries in Africa. Foreign authorities used the technology to monitorthewatch listandexchange informationwith theUnitedStatesDepartmentofStateregardingsuspectedterroristsappearingattheirborders.Theinformationisusedtotrackandapprehendindividual terrorists,not for thewide-ranginganalysisof terrorist travelmethods,according tothe Government of the United States reports.40 It matches passengers inbound to the United Statesagainstfacialimages,fingerprintsandbiographicalinformationastheydepartfromairportsin high-risk countries. A high-speed data network permits US authorities to access advancedinformationconcerninginboundpassengers.

PISCESworkstations installed inparticipatingcountriesare linkedbywideareanetwork to thenation’sImmigration,PoliceorIntelligenceheadquarters.

ThePISCES-projectremainsunderTIP,anongoingprogrammeoftheUnitedStatesDepartmentofState.

TIP provides all necessary software and hardware (mostly commercial and off-the-shelf, suchascamerasandpassportscanners),full installation,operatortrainingandsystemmaintenance.Additionally,TIPassistswithimmigrationbusinessprocessimprovementsatthoseportsofentrychosenforPISCESinstallation.

In2014,theGovernmentofUgandahasgrantedabudgetallocationfortheinterconnectivityofPISCESandiscurrentlyintheprocessofprocurementoftheInternetprovidertolinkthesixbordercrossingswithPISCESinstalled.

6.1.b. MIDAS

MIDAShasbeendevelopedbyIOMtoaddresstheneedofcollectingandanalysingmigrationdataatnational levelandoffers thepossibilityofanalysingandexchanging thatdata.Oneof IOM’sintendedlong-termgoalsisthecompleteautomationoftheexternalbordersofEastAfricawithaborderMISthatoperatesonharmonizeddatacollectionandanalysisprocedures.

MIDAScanbeconfiguredtocollectdataatBCPs.Thecollecteddatacanberecordedandprocessed,so that information about travellers passing through entry and exit points canbe sharedwithinterestedgovernmentagencies.AfullyfunctionalandproperlyusedMIDASinstallationhelpstoimproveandstreamlineprocedures forbordercontrol,aswellasprovidevaluable informationondevelopments, trendsand thenatureofmigratoryflowsacrossUganda’sborders.Thedatacollected allows for the comprehensive analysis of cross-bordermovements and informsDCICofanyrequirementssoitmightadjusttheadministrationofUganda’smigrationpolicies(it isapowerfulsupporttoolforstrategicdecision-making)andthenecessaryallocationofhumanandfinancialresourcesatcertainbordersaccordingtoneedsthatmightvaryfromtimetotime.Thesystemisalsoamajorinformationresourceforthelong-termdevelopmentofmigrationpolicies.

40 T.Eldridgeetal.,9/11 and Terrorist Travel,StaffReportoftheNationalCommissiononTerroristAttacksUpontheUnitedStates,21August2004. Available from www.webcitation.org/5IAC4S8Pt.

the Government of the United States reports.40 It matches passengers inbound to the United

http://www.webcitation.org/5IAC4S8Pt


MIDASprovidesthefollowingfunctions:

• Automaticandmanualdataentryofpassengersandvehicles,shipsandaircraftenteringandleavingthecountry;41

• Extractionofregisteredtravellerdataidentitydocumentsanddetailscapturedfrommachinereadablezone(MRZ)passports;

• Comparisonfunctions,recordingandretrievalofdata;

• RecordinginformationtoMIDASdatabase,transferandsharingofdatabetweenborderpostsandheadquarters;

• Productionofcustomizablereportsforthepurposesofanalysis(ondaily,weekly,monthlyoryearlybasis,providinginformationonnationality,gender,ageandothers);

• Connectivitywithnationalandinternationalalertlists.BCPScanbeconnectedtoINTERPOLI-24/7anditsdatabase,whichincludesaregisteroflostandstolendocumentslinkedtotravelcommunicationsystemworldwide;and

• MIDASalsoworksonacomplete“ownership”basis;IOMtrainingisprovidedtoallICTofficersfrom the recipient countries border management agencies ensuring retention of skills tomaintain and operate the MIDAS system ensuring sustainability of installed sites.

6.1.c. Customs ICT solutions

Automatic System of Customs Data

AutomaticSystemofCustomsData(ASYCUDA)isacomputerizedCustomsmanagementsystem,which covers most foreign trade procedures. The system handles manifests and Customs declarations,accountingprocedures,transitandsuspenseprocedures.Itgeneratestradedatathatcanbeusedforstatisticaleconomicanalysis.

ASYCUDAtakesintoaccounttheinternationalcodesandstandardsdevelopedbytheInternationalOrganizationforStandardization,WorldCustomsOrganizationandtheUnitedNations.

Itcanbeconfiguredtosuit thenationalcharacteristicsof individualCustomsregimes,nationaltariff,legislationandothers.

Finally, it provides for Electronic Data Interchange (EDI) between traders and Customs usingElectronicDataInterchangeforAdministration,CommerceandTransportrules.

Customscurrentlyrunthetwolatestversionofthesoftware:ASYCUDA++andASYCUDAWorld(themostupdatedandfullyweb-basededition).

ELECTRONICCARGOTRACKINGSYSTEM

Inmanyinstances,cargohasbeendivertedintoUgandawithoutpaymentoftaxes,andtherehasbeenlimitedcapacitytodetectsuchnon-compliance.Toavertdiversionoftransitcargo,Customshas adoptede-trackingwith the launchof theElectronicCargoTracking System (ECTS) inMay2014. It isbasedonGPStechnology.Underthesystem,e-sealsareattachedontoahighlightedconsignmentandmonitoredinthecentralcommandcentre,withrapidresponseunitsstationedcountrywideatstrategiclocations.

41 Travelleridentityisregisteredbiometricallyusingphotographsandfingerprints.Biometricidentifiers,suchasfingerprints,retinalscansorvoicescansarepiecesofinformationthatencodearepresentationofaperson’suniquemakeup.Ugandamightconsideraspartofitsnationalidentitysecurityfocusanintroductionoftheuseofbiometricsmorewidelyasanimprovedsecuritymeasure.MIDASatthebordermightthusbe linkedtopassports,visas,workpermits,alert lists,policerecords, licencesandother identitydocumentswithbiometricregistrationfunctionsthroughoutUganda.


Theaimistomonitorthecargo’sitineraryasdeclaredatentrypointandincaseofnon-declaredmovementtotracktheunittoitsdestination.

The e-seal is installed into both the cargo and the truck or lorry at the entry point, and thenunsealedattheexitpointasperthedeclarationmadeuponentry.

6.1.d. DCIC Passport enrolment

Passport issuance in Uganda ismainlymanaged by a paper-basedmanual process. The greatmajorityofapplicationsareprocessedbyapplicantsfillingintheappropriateformandprovidingtheappropriatesupportingdocumentationtoverifyUgandancitizenship.

WithinDCIC,thereisawell-organizedprocesstoissuepaperfilesforeachapplicant.Aftervalidationofthepaperfile,thepassportisproduced.Thisprocessconsistsofcollectingandmanuallyenteringdetailsofthepassportandtheapplicantintothedatabase;incaseofrenewal,acheckbypassportnumber is done to recover personal data and verify if any changes might have occurred since last registration.Thenextstep,alwaysdonemanually,iscapturingaphotooftheapplicant’sfaceandenclosingit intotheelectronicfile.This isthenusedtogeneratethepersonaldatapageofthepassport. Finally, the passport is printed out, ready to be issued.

Passportprocessing isdone in themajorityof casesatDCICheadquarter inKampala,but twoother centres‒MbaleandMbarara‒arealsoauthorized toproducepassports.However, thealternate sites are not totally independent issuing points. Technically, they are connected with the centraldatabaseinKampala.ThisfacilitatesdataregistrationdirectlyintothecentraldatabaseinKampala.Thetworegionalofficeshavebeendelegatedrestrictedauthorizationpowers,allowingonlytemporarydatastoragefortheperiodthefileisactuallyprocessed.

The passport enrolment system is provided by DeLaRue, which is configured as a centralizedproduction centre for passports. The National Centre for Passport production is positioned inKampala in the main DCIC premises.

Therestofthecountryfollowsapaperprocess:

• ApplicantsgototheirlocalDCICoffice.

• LocalDCICofficersprovidethenecessaryapplicationformstorequestthepassport.

• Local DCIC officers collect the completed application form and copies of necessarydocumentationasprovidedbytheapplicant.

• LocalDCICofficerstraveltoKampalatolodgethepassportapplicant’sfileinordertostarttheproductionandpersonalizationprocess.

• LocalDCICofficersreturntotheirofficewithcompletedpassportsandproceedtotheissuingphase, which consists of handing over the passports to the applicants.

6.1.e. Ongoing projects

Identity Card and Population registry

TheNationalSecurityInformationSystemDirectorateisresponsibleforestablishingandmanagingacentralnationaldatabasethatisdesignedtoholdtheidentityandotherpersonaldetailsoftheentirepopulationresidinginUganda.“Population”isdefinedascitizensofUgandaandaliensorresidents in Uganda.

Theterm“personalinformation”encompassesbiographicaldata(name,surname,dateofbirth,placeofbirth,nationality)andbiometricdata(fingerprintandfacephoto–capableofbeingreadbyfacialrecognitiontools).


Thetargetoftheprojectistohaveareliableandcompletepopulationregistry.Itwillbeanexclusiveand comprehensive resource holding essential information on the identity of each resident inUganda(asperabovedefinition).

Thegeneralorganizationwillbeasfollows:

• TheNationalSecurityInformationSystemwillkeeppersonaldatafiles.

• Underaneed-to-knowsecurityprocess,otheragenciesmightaccessthisdatabaseinordertoverifyorissuelegaldocuments.Forexample,DCICaccesswouldbejustifiedasnecessaryforthe issuance of a passport.

Thefirststepofthisprojectconsistsofa largeandintensivepopulationregistrationconducteduntilSeptember2014duringwhichtimeproductionandissuanceofIDcardswillcommence.

Infact,thefirstdocumentscheduledforissuance,accordingtotheworkplan,wastheUgandaIDCard from 1 September 2014.

6.1.f. Incoming projects

eVISA and eWorkpermit tender process

Uganda’sMIA, through the DCIC, has launched a tender competition for the procurement ofconsultancyservicesforthe“supply,configurationandimplementationofanintegratedeVISAandWorkpermit”system.

Theprojectdescriptionconsistsoftheprovisionofawiderangingsystemthatincludesbothvisasand work permits. The tender covers several aspects but with respect to ICT, two main topics are tobetakeninconsideration:

• A decentralized solution is specifiedwith a headquarter system that functions alongwithindependent locallyoperatedvisasystemsatborderposts. Anetworksolution is requiredtobridgelocalareanetwork(LAN)technologyforBCPandregionalofficesthroughasecureInternet-basedvirtualprivatenetwork(VPN)technologyconnectiontotheheadquartersatKampala.

• Theassessmentteamobservedthatthesoftwaresolutionshouldbecapableofmanagingnotonlybiographicaldata(name,surname,dateofbirth,passportnumber),butalsofacephotofromcameraorfromthepassport.Regrettably,itappearsabiometricfeatureinthesoftwareis not contemplated for this project.

Furtheroutstandingissuesregardingtheprojectdescriptioninvolvingmanagementandcontinuityincludethefollowing:

• TrainingoftrainersandadvancedusertrainingtobuildDCIC’sinitialcapacitytoensureefficientuseofthesystem;

• Specialisttrainingfordeliveringendusersupportservice;

• Inclusion of new standards that make marked improvements to the security features of the newvisastickersuchas3Dinkandawatermark;and

• Projectenvisagessystemdeploymentatsixborderposts;thepresumptionisthattheyarethesixOSBPs.


6.2. Overview of IT environment to support the border management business processes

ITmigrationmanagement inUganda is supported by two bordermanagement information systems:PISCESandMIDAS.Theyaredeployedateightborderposts:

• SixusePISCES(includingEntebbeInternationalAirport);and

• Two use MIDAS (Port Bell and Kikagati). It has been reported by IOM staff that during thefourthquarterof2014,afurtherfourBCPsareequippedwithMIDAS(Afoji‒SouthSudan,Goliand Bunagana–Democratic Republic of the Congo and Kyanika‒Rwanda), and these BCPs areinterconnectedwiththecentralMIDASserverlocatedatDCICheadquarter.

Themainbordermanagement informationsystem(BMIS)activity is transitingregistration; itconsistsof registering passports and travel documents. DCIC is in charge of this activity. PISCES andMIDASinformation systemsarenot connectedwithotherdatabases, suchas INTERPOL I-24/7network,butthereareseveralINTERPOLofficerswhoareconductingmanualinvestigationworkandtheyreporttotheUgandaNationalContactBureau‒INTERPOLinKampala,whichiswithintheUPF.

Anotherissueregardingmigrationmanagementisdiscrepanciesintheprocessforissuingvisas,whichisdoneeitherattheairport(themajorityofvisasareissuedonarrivalatEntebbe)oratUganda’sdiplomaticmissions or consular posts abroad.

Thefollowingconditionsapply:

• Forvisasissuedattheairport,personaldataandbiometricsareregisteredintoPISCES,includingfingerprints.Feesarecollectedandastickerispastedinthepassport.

• Forvisasissuedatdiplomaticmissionsorconsularposts,theprocessisconductedinstand-alonemode(thatis,thereisnocheckingenquirytoKampalatoascertainifthepersonisonthealertlistoraknowncriminal).WhenthepersonarrivesattheUgandaborder,theonly“assessment”doneistocheckthatthestickerisgenuine.

DCICisinchargeof40gazettedborderposts,includingPortBellandEntebbeAirport.TheassessmentrevealedquiteanumberofgapsandinefficienciesintheoperationoftheBCPs.SomeofthegapsaresignificantandwillhaveastrongimpactonthefuturedeploymentofICTbordermanagementsystems.

Thosegapsareasfollows:

• InappropriatelocationofsomeBCPsthatrenderthemobsoleteandunabletoprovideeventhemostbasicfunctionsnormallyrequiredofaborderpost,suchastheBCPTonyainHoimaDistrict.

• Inadequatepowersupply.

• Absenceoforinadequatemeansofcommunication:

- Inmostcases,borderofficersareforcedtoutilizetheirpersonalmobilephoneforprofessionalcommunication;and

- CompletelackofInternetaccessibility.

• Connectionsbetweenborderposts,theregionalofficesandDCICheadquartersinKampalarelyonmobilephonestorequestback-upsupportorsendandreceivemessages. This isamajordeficiencyascellphonesystemscaneithercrashbecauseoftoomanysubscriberstryingtomakecallsatthesametimeorifthegovernmentshutsdownthesystemasasecuritymeasureduringan emergency.

• PortableradiohandsetsarecrucialtomaintaincommandandcontrolandthesecurityofofficerswhenoperatingawayfromtherelativesafetyofDCICofficesatBCPsorwhenonpatrol.

• Lack of transportation:At someBCPs, there aremotorbikes available but no cars or off-roadvehicles. To compensate, the DCIC officer is obliged to use public transport, to travel long


distances(forinstance,whenavisittotheheadquartersisnecessary)todeliverdocumentsorpickupsuppliesorfiles. This includestransportofaccountabledocumentsusedforpassportissuance and processing.

• While therearesystems inplace for the identitymanagementofnationalsandmigrantsatanumber of BCPs, their use is inconsistent. There is an obvious weakness in Uganda’s border controlbecauseoftheprevalenceandacceptanceofinsecuretemporarypasses(notpassports)andinsomecasesallowingtravellerstobypasstheBMISinthenameoftraditionaltransbordermovements.Thereareoccasionswhennobiometricregistrationorotherchecksaredoneonthedepartingmigrants,someofwhommighthavebeenonwantedlists.

• A number of border posts can issue temporary passes. This role, plus the usual one of visa issuance and applications for passports and longer-term travel documents, however, ismoreproperlydoneawayfromtheBCPatDCICregionalandheadquarteroffices.

• Therearesomesystemsinplaceandattemptsmadetomaintainorderlyidentitymanagementproceduresattimesofemergencies;however, therehavebeenanumberofoccasionswhenbiometricregistrationshavebeenbypassed.

• Alert lists are updated regularly – either weekly or monthly. The problem is that the updates are delayedastheyarecommunicatedinpaperfilesthatarrivebycourier.

ThereareimportantsiteshostingcrucialICTinfrastructureotherthanthegazettedOSBPs,whichrequireimprovementsasperthefollowingpoints:

• Physical security

- Fitting secure armored doors for theserverrooms(atEntebbeAirport).

- Use of digital security code-activatedlocks rather than lock-and-keyarrangements;

- Provision of a security-graded steeldoor for the passport production sitein Mbale. Currently, there is a simple steel grid door with a padlock and no realsecurityprocedures(seeFigure2);

- Servers shouldalwaysbe located inaseparate room and access should be controlled to this room. Access should be limited to those individuals having anoperationalorjob-relatedneed;

- The room should be built with wallsthatextendfromthefloorslabtotheundersideofthefloor/roofslababove.Rooms with walls that extend to theunderside of a suspended ceiling would not meet the definition of a “lockedserverroom”;and

- Control of access is best achievedthrough electronic card readers that record who enters and leaves. Such systems include an audit trail to indicate who has had access to the room and when.

Figure2.SecuritydooratMbalepassportpersonalizationcentre. ©IOM2014(Photo:DamianoBeltrame)


- InKampala, there is controlofaccessviaadooroperatedbydigit codewithafingerprintreader, but it appears to be out of order. The alarm does not sound even if the main door staysopenforanextendedperiod.

• Network security

- ICTsystemsshouldhaveaccessrestrictionsbasedontheroleoftheofficerloggedontothesystem.

- ICTsystemswillthushaveauditlogsrecordingactionstakenbyindividualofficers.- AtEntebbeAirport, thenetworkcablesareeasilyaccessible todetainees in thedetention

room.Therearealsonetworkplugsopenlyavailableforcomputerconnectivity(seeFigure3).- TheLANhubisalsoeasilyaccessibletodetaineesandothers(Figure3).- ThesediscrepanciesofferanopeninvitationtobreachesofITsecurity.

ThegeneralICTinfrastructureusedformigrationmanagementneedstobeimproved.Suchimprovementscannotbecompletewithoutthesupportofqualifiedhumanresources.Currently,theonlycapableICTexpertiseisevidentatthePISCEScentralserver.Atsomepointinthefuture,theMIDAScentralserverwillalsobemaintainedbyasuitablyqualifiedexpert.

Itwasrathercomplicatedfortheassessmentteamtounderstandhowimplementation,maintenanceandsupportofICTareorganizedatthevariousImmigrationoffices.FortheplacesinwhichthereisanICTsystemoperating,PortBell(MIDAS),EntebbeAirport(PISCES),Bibia(PISCES),Mbale(DeLaRuePassportPersonalization),Malaba(PISCES),maintenanceiserratic.

Figure3.DetentionroomatEntebbeairport.Networkcables(left)andnetworkplugs(right)areaccessibletodetainees. ©IOM2014(Photo:DamianoBeltrame)

Figure4.Accessiblenetworkhubatdetentionfacilities. ©IOM2014(Photo:DamianoBeltrame)


BCPsequippedwithPISCESappeartohavearegularmaintenanceprocessinplace.Itispossiblethatmaintenance is only provided at places where BMIS systems and associated equipment are newlydeployed.Forexample,inBibia,theair-conditioningsystemfortheserverroomhasbeenoutofordersince itwas recently installed sometime inApril 2014, and the assessment teamwas advised that amaintenancecrewwasscheduledtovisittofixtheproblem.

As for long-termmaintenance, itappearsthere isnothing inplacetosupport theenduserorrectifytechnical failures. For locations equipped withMIDAS, there is nomaintenance process in place asevidencedatPortBell,whereoneofthetwomachineshasremainedoutoforderfora longtime. Itshouldbenoted that the Immigrationpersonnel have received training forMIDAS,utilizationand ITadministrationandmaintenancetrainingatACBCinMoshiinAugust‒September2014.Thisshouldassistin sustainabilityof theMIDAS systems installedduring2014at fourBCPswithin theaforementionedproject.

Asforthepassportpersonalizationprocess,thereisanestablishedteamdedicatedtotheprovisionofmaintenance services and support to the central site in Kampala as arranged under the service contract with the supplying company. Human resources are crucial also for identity control procedures. Thelargestdocumentcontrolteamof21personsisatEntebbeAirport.Thisisthemaximumnumberofstaffdeployed,butcapacityremainsinthesystemtodeploymorestaff.

It iswell understood that the immigration controlworkload at an airport has its peaks and troughsaccordingtoairlineschedules.InEntebbe,thepeakperiodisduringthedayandespeciallyatmidday,whenseveralmedium-rangeplanessuchastheAirbusA320,orEmbraer170/190andasinglelong-rangeEmirates AirbusA340make their scheduled arrivals and departures. Processing is done by only onepersonperworkstationhandlingarrivingpassengersanddocumentcontrolduringsuchabusyperiod.ThecapacityperworkstationistwopersonssoDCICmanagementcanassignmorestaffasnecessary.Thereasonfortheapparentstaffingshortfall isalackofresources.Currently, it isnotpossibletoputmore end users onto the system for registering documents, because such resources are deployed on otherimmigrationcontrolduties.

Recommendation 29:Given DCIC’s strong interest in modernizing and harmonizing immigration border points (cf. thestandardizationofimmigrationBCPbuildings),asimilareffortneedstobeappliedmorewidelytotakeintoconsiderationpowerneeds, telecom interconnectivityandprovisionof Internet facilities toachieve real-timecommunicationsbetweenBCPsandheadquarter.Twomainrecommendationsmightbeaddressed:• Follow-uponthedevelopmentofthe22CustomsBCPsalreadyequippedwithASYCUDAICTsolutionto

besharedwithDCICposts.Thosesiteswillbeequippedwithpowersupply(solarpanel,nationalpower,andgenerator)andtheyhaveInternetconnectivity.Actionstotakeareasfollows:- Implement an operational workgroup within Immigration and the Customs IT directorate to

evaluate thequantityandtypeofdata tocarryon thenetwork.According todiscussionsat theinitial assessmentmission workshop, Customs ICT directorate seems to be ready to cooperateconstructively along these lines. Customs might need to be assured that its data will remainconfidentialandseparatedfromDCIC’s.

- EvaluationofthecurrentcapacityoftheCustomsnetworkundertheexistingservicecontractwiththeCustomsnetworkprovider.EstimationofthefundingrequiredtobridgethegapsothatDCICmightbeintegratedwithCustomsdatatraffictoenableittosendandreceiveadditionaldata.

• To follow up the eVISA and eWorkPermit incoming project. According to the tender document, the solution thatwill be in place is aweb-based implemented secure Internet network (based on VPNtechnology).


Benefit Drawback

Proposition1:•Awideandverywell-distributednetwork(22places).

•Power supply already in place.•Cost-controlledsolutionforawidenumber

of BCPs.•Potentialtocollectlargerangeofinformationinqualityandquantity,covering all Uganda’s borders.

Proposition1:•To implement a workgroup with ICT Customs directoratefortechnicalandfinancialevaluation.

• Likelyfinancialcontributiontothenetworkserviceprovidertocoverthecostofthepotentialgapinincreaseddatatraffic.Notethatthiscostwouldbeconsiderably lower than the full cost of a dedicated, separate network.

Proposition2:Build DCIC’s own network.

Proposition2:Limited coverage at six border posts thatmight be theidentified/alreadyselectedasOSBPs.Currently, the network is limited to the eVISA and eWorkPermitsolution.Currentinformationindicatesthereisnomentionofthepossible use of an Internet network for border control processescommunicationsanddatatransfer.

Recommendation 30:AllocatespecialisthumanresourcesdedicatedtotheimplementationofDCIC’sICTinfrastructure.Twosuggestedoptionsareasfollows:• In-housesolution:ThisrequiresDCICtosetupadedicatedICToffice.

-Recruitmentofskilledstaffwithprofilesmatchingthecurrenttoolsandsystemsinplace,capableofprovidingmaintenanceservicewhencomplexproblemsconcerningthedatabaseemerge(secondandthirdlevelofmaintenance).

-TrainfocalDCICpointsateachsiteequippedwithagivencomputerizedsolutiontoprovideinitialmaintenance service (first-level maintenance), such as checking the correct functioning of themachine, using their basic knowledge of functionalities of the software solution in situ, beforerequestinginterventionofexpertsatthesecondandthirdlevel.

• Outsourcedsolution:Thismeansexternalizingoroutsourcingtheactivitydescribedabovetoacompanyviaacompetitivetenderprocess.Irrespective,DCICneedsaminimumlevelofexpertiseinICTatthecoretomeaningfullysuperviseandmanagetheITcompany.Activitiestobeimplementedforthisoptionareasfollows:- Definetheparameterofactivityandwhatlocationsmightbecoveredbyanoutsourcedentity;- EstimateanannualbudgetallocationforthecostofoutsourcingITservices;and- Provideatendercallingforanoutsourcedserviceproviderforaminimumdurationofthreeyears,

butideallyfouryears(asitwouldbemoreeffective).InchoosingthemostappropriateoptionintheUgandaenvironment,ananalysismightbedonetakinginconsiderationthefollowingpoints:• Cost:

- Incaseofanin-housesolution:Estimationofhumanresourcesnecessary,definitionofprofilesofexpertstoberecruited,designingapossiblecarriernetwork(proprietarynetworkinfrastructurethatbelongstoatelecommunicationsserviceprovider),andfinallyprovidinginitialandfollowuptoupdatestaffonupgradestohardware/software.

- Ifoutsourced:Quantifybudgetforthecostoftheservicecalculatedonthebasisofthelengthoftimerequiredunderthecontract,preciseidentificationofthesystemsandnetworktobesupportedandlocationstobecoveredbytheservice.


• Strategicelements:- IsDCICHRpreparedandcapableofmanagingin-housesolutions?- IsDCICbudgetabletoabsorbthecostsofrecruitingadditionalICT-qualifiedpersonnelfullydedicated

toITduties?

Recommendation 31:IfUgandadecidestoupgradeandstrengthenitscapacitytocentralizeinformationmanagementviaanICTsolution,thecurrentHRwouldnotbesufficienttocoverthisadditionalfunction.Itisthereforenecessarytostrengthen the Directorate’s capacity with a team that can be scaled up when demands escalate especially at theairport inorder to reduce the stress levelsof front-lineofficers.HR training is requiredon team-organization-developingmechanisms tosupply surgecapacitywhenresponding to thedemandsofpeakperiodsatborderpointswithhighlevelsoftraffic,suchasinEntebbeAirportandtheMalabaOSBP.

6.3. Architectural overview including hardware and software at head office and border checkpoints

The general architecture of agencies’ information system is differentdepending whether it is DCIC or Customs ICT. Customs ICT is a fully web-based interconnected solutionreportinginrealtimetotheCustomscentral system in Kampala.

Immigration solutions differ as theyare based on a stand-alone systemexcept some sites visited such asEntebbe International Airport, Bibiaborder point, and Malaba border point where they are operate using LAN architecture. Those places, in terms of data management when viewed

Figure5.Entebbeairportarrivals.©IOM2014 (Photo:DamianoBeltrame)

Figure6.MalabaCustomsoperationICTcentre.©IOM2014 (Photo:DamianoBeltrame)


againsttheoverallnationalsystem,arestill inastand-alonepositionbecauseinformationcollectedisstored at the place and not shared, apart from manual updates to the central database with no regular orsystematizedupdateprocedure.

The incoming eVISA and eWorkpermit project might have a web-based architecture with a centraldatabaselimitedtothesixselectedOSBPs.Noreferencehasbeenmade,totheknowledgeoftheteam,todiplomaticmissionsorconsularposts,whichmeansthatfromatechnicalpointofview,VISAswillbeissuedusingamanualprocesswithnodirectconnectiontotheeVISAdatabase.Thiswillmakeitdifficultto screen out male fideoralert-listedapplicants.

Recommendation 32:DCICismakingcommendableprogressonstandardizingBCPs.Inthatprocess,DCICneedstofactorintheneed to configure the buildings to be IT-readywith basic features built into the infrastructure thatwillfacilitatefutureICTinstallations.

6.4. IT security environment (Application access, data capture, storage, archiving, backup and other features)

ObservationsmadeofthesecurityenvironmentatDCICpremisesareasfollows:

• Apart from the premises dedicated to passport personalization (Kampala and Mbale) and atEntebbeAirport,ITsecurityisveryweaktotheextentthatareasonablyskilledIToperatorcanpotentiallyaccessthedatabaseserveronceanimmigrationinformationsystemisestablished.

• Backupisdonemanually.ThisiscompletedwhenaBCP-basedofficertravelstoKampalawithdataheldonaflashkeyorCD,tobackuptheBCPdataintothecentralserver.Thereisnoprocedureorcapacitytobackupdataatthelocal/fieldlevel.

• DatacapturingwhenthereisacapacitytodosoisdonebyscanningaMRZpassportandtakingafacephotoandfingerprints.ThesedetailsareregisteredintheBMIS.Otherwise,thereisapaperregisterorjournalentry. Thisinformationiscollectedanddispatchedtoheadquarters/regionalofficesonanadhocbasisusingcouriersorwhenBCPofficialstraveltoregionalorheadquartersupervisingoffices.

• IT applications are stand-aloneatmostBCPs. The teamnoted therewasno securityprotocolinplacetoprotectinformationordocuments.TherewasnopolicyonsystempasswordsortheappointmentofalocalICTsecurityofficertoprotecttheITandcommunicationssystemsandthedata they hold.

6.5. Management and administration of the IT environment (including platform, licensing, technical support, database administration and system performance)

In theDCICwork environment, the administration of IT is done on a case-by-case basis. PISCES hassomesupport for its implementation siteand inNovember2014, through IOMsupport,newMIDASinstallationstookplaceatfouradditionalBCPs(Afogi,Goli,KyanikaandBunagana).ITsupportforbothsystems is providedonly at theheadquarter level.However, in viewof the requirements for furtherinvestmentsandmaintenanceoftheexistingsystemsandpotentialnewones,thereisaneedtoestablishandcoordinateITadministrationatthecentralICTsiteandenablethesupporttothefieldlocations.


Recommendation 33:• To implement an IBM system, it is crucial to devise an action plan for the deployment of essential

hardwareandsoftware.Thefirstobjectiveshouldbetoinstallacentraldatabaseandthenidentify‒onaprioritybasis‒aseriesofITdeploymentstoBCPs.

• Set up a core ICT team comprised of trained personnel to manage the DCIC ICT infrastructure especially with the imminent realizationof the eVISA and eWorkPermit projects, even if, in the short term, adecisionismadetooutsourcemaintenanceactivities.

Recommendation 34:TheeVISAdeploymentsolution,asperthedocumentkindlysharedbyDCIC,willapparentlybedeployedatthesixselectedOSBPs.Itishighlyrecommendedthat,inthenearfuture,diplomaticmissionsandconsularpostsaresimilarlyequippedinordertomanagetheriskoffraud,forgeryorvisatrafficking(visashopping)amongborderpoststhatareeVISAequippedandtheotherswherevisasareprocessedmanually. Inthemedium term, DCIC is recommended to set up a system that can support the provision of an eVISA process throughanInternetsitetoreducethescopeforvisashoppingandtrafficking.

Recommendation 35:To create a workgroup comprising DCIC and Customs ICT directorates tasked with a workable proposal on theoptimizationofInternetconnectivityresourceswithinaninter-agencysetting(intheannex,thereisalistofthe22CustomspoststhatareInternet-connected).

Recommendation 36:ToshareITnetworksattheBCP.ThisrecommendationismadeconsequentonRecommendation35.The22 Internet-connected Customs border postswould be the entry point for immigration ICT connectivityandgreatlyenhancethedatamanagementcapacityforDCICBCPs.Capacityforthelocalinterconnectionof agencies at BCPs, as currently understood, arose during field visits, and itwas found it is technicallypossibletodobecauseoftheproximityofoffices,particularlyCustomsandDCICoffices.AgoodexampleisthesituationatPortBellwheretheCustomsOfficeislocatedinthesamebuildingasDCIC.AttheLiaBCP,buildingsarelocatedneareachother.Interconnectioncouldbeachievedfairlyeasilysimplybyconnectingthe two premises with a wire.

Figure7.SampleofproximityofImmigrationandCustoms(PortBell).©IOM2014(Photo:DamianoBeltrame)


Recommendations35and36arepartofacompletesolution.UponrealizationofanagreementtosharetheCustomsInternetnetwork,theimplementationofRecommendation30couldhaveimmediateeffect.

Recommendation 37:Premisesforserverroomsneedtobestronglyimprovedwiththefollowing:• Separate and unique room for ICT, preferably with dedicated power supply room (solar panel and

inverterorgeneratororbothtoensurepermanentpower).• Air-conditioningsystem.• Armoreddoorandsecuritygrillsorshuttersatthewindow.• Waterproofing‒tobebuiltatalocationonhighgroundtopreventwaterintrusionsorflooding.

Recommendation 38:Implement an IBM system that is not only used as an identity travel document registration systemandsecurity blanket to check against unwanted travellers, but also provides management tools such as indicator keyboardreports,statisticalreportformigrationmanagement(suchasnationality,gender,age,reasonforcrossing,perborderpostperregion,daily,weeklyorquarterly).Thesystemcouldbereadytobeconnectedwithlocalwatch/wantedlist,criminalrecordandINTERPOLI-24/7.

CHAPTER 7

SUMMARY OF KEY FINDINGSAND RECOMMENDATIONS

Chapter 7. Summary of key findings and recommendations66

The list of recommendations that follows is sorted by priority and responsible agency for pur-suing the changes.

Number Responsible Agency Priority Recommendation

1 OPM, Ministry of Foreign Affairs(MOFA),DCIC

Medium term

Bilateral, regional and continental cooperation at a politicallevel should be encouraged to address pending border-relatedissues, such as border demarcation alongside the regulationof the cross-bordermovements, specifically for local residentsstraddling the border area. The best practice developed underthecurrentinitiativeforborderdemarcation,throughtheAUBPof theUganda–Rwandaborder, shouldbeadopted. In regardsto the local border regime, good practice from other parts ofAfricamightbeconsidered,suchasalocalbordertrafficregimethatprovidesforspecificcross-bordermovementbyintroducingspecial permits for border residents.

2 OPM, DCIC, Police, ISO

Medium term

The Government of Uganda should consider adoptingcomprehensive border and migration management policies thatwouldprovideforclearprioritiesandobjectives,aswellasactionplansforimplementation.ThisshouldaddresscurrentneedsoftheGovernment of Uganda to effectivelymanage its border, such asthrough the following: (a) upgrade technical capacities for bordercontrols by improving border infrastructure (including placement of markerswherethereisnonaturalborderdelineationsuchaslakesor rivers) and equipment; (b) improve inter-agency and bilateral/regional cooperation to enhance border security, that is, jointpatrols,commandandcontrolsystems;and(c)continuouscapacitydevelopment of border personnel through trainings and professional development.GoodinternationalpracticeindevelopingtheNationalIBMStrategiesandActionPlanshouldbeconsidered.

3 OPM, DCIC, Customs

Medium term

Regional and continental border and migration priorities,such as the EAC Protocol, COMESA, AUBP, should be furtheroperationalized through national initiatives. An example ofgoodpracticeistheOSBPprojectwhichrepresentsanexcellentinitiative and platform for enhancing an inter-agency approachandfacilitatingtradeamongtheEACMemberStates.

4 DCIC Immediate • DCICtoconsiderundertakingastaffingneedsassessmentbasedon the geographical peculiarities and the challenges posedbythe rate and types of movements of persons across the border and also to consider the requirements stemming from DCICpriorities, such as EAC integration compliance, border patrols,training,anddecentralizationofDCICservices.

• Based on the needs assessment, the revision of the organizational structure of DCIC should address the notablelack of staff in order to reinforce human resources both atheadquarterandfieldlevel.

5 DCIC Immediate The DCIC organizational structure should consider creatingborderpatrolunits toconductbordersurveillance/patrollingorin support of Immigration officersmanaging BCPs. The borderpatrol units should be equippedwith necessary tools, such ascommunications devices (VHF, UHF, radio telephone, V-Sat) toenhance command and control locally and between the BCP and headquarter, four-wheel-drive vehicles, motorbikes and patrolboatsfortheLakesRegions.


6 DCIC, Ministry of Finance

Immediate • DCIC should develop internal strategic document and actionplan enlisting the goals, objectives and actions for theimprovement of its operations and financial implications ofsuchobjectives/activitiesnotjusttosupporttheargumentsforincreasedbudgetbutalsoforapproachingpotentialdonors.

• DCIC to consider developing an agreement with the Ministry of FinanceonallocatingapercentageofimmigrationandpassportfeerevenuetoDCICandsettingupalegalframeworkforsuchallocation.

7 DCIC Immediate • A comprehensive training needs analysis should be carried out to determine training needs in terms of facilities, equipment,training curricula, and others and to establish a training plan based on applicable best international practices, as well as considerthe national, regional and continental priorities in the area ofmigrationandbordermanagement.

• Construction of a DCIC training centre should be initiated toensurethereisapermanentfacilitythatisproperlyequippedwithappropriate training tools to provide officers ongoing capacitydevelopment at all stages of their career.

• Development of a comprehensive training curriculum for Immigrationofficersthat includesprogrammesfor joint trainingofbordermanagementagencies, thereby fostering inter-agencycooperation at the border. The relevant border managementagencies,suchasURA,ISO,UPFandUPDF,shouldbeconsultedinthe development of a joint training programme.

• Benchmarking system to be developed to assess the impact and relevance of delivered training and to be used for further improvements in training curricula.

• Studytourshouldbeorganizedtothosecountrieswithadvancedsystemsofintegrationandcooperationinvolvingfreemovement,such as the European Union, focusing on risk assessment/management of border and migration management: datacollection,analysis,riskprofilinganddefinitionofactionplans.

• Operational management organization of an integrated policecontingent (Immigration Police, Customs, Social Services) toundertake border control and management.

• AsimilarstudytripmightbeorganizedtooneoftheSICAcountriesthat have already made the transition to customs integration/unificationandwhichare in theprocessofdefininga commonenvironment(regulatedregime)forthefreemovementofpersons.

8 DCIC Immediate Humanresourcesactionplanmanagerstoprovideforbasicdutyhousing,dutyequipmentforcommunicationandtransportation.TheactionplancouldstartbyconductingathoroughassessmentoffacilitiesandresourcesinordertodefineneedsaccordingtotheclassificationoftheBCP.AmongthemediumandsmallBCPsitmightbeopportune,afterconsideringdevelopmentplans(thatis, for Uganda locations where the next wave of OSBPwill becommissioned),toidentifywhichBCPsaresuitableforupgradesandthenprepareaccordinglyfortheinitialsupplyofequipment.

9 DCIC Immediate Performance monitoring and mechanisms are integral parts of the roleofseniorofficersandmanagers.Performancemanagementtraining should be included in the new harmonized trainingframework.


10 DCIC Immediate In order to establish indicators to elaborate benchmarks and dataanalysis,tomeasurejusthowresults-orientedmanagementand border control are, it is recommended that DCIC establish a regimeofinternalregulationsissuedbyCentralOfficethatdefinebasicstandardindicatorsconcerningthefollowing:- Border management: border post location, and number,

nationality of persons, sex, minor or adult, as registeredunder visa regulations or entered on regional nationalityregisters.

- Management indicators: number of staff appointed duringtheweek,ifshiftsareoperatinghowmanyofficersondutypershift,numberoftravellersprocessedorcontrolmeasuresconducted.

11 DCIC Immediate • DCICseniormanagementtodevelopaCodeofConductforstaffand implementation to be accompanied by a suitable trainingprogramme, with refresher training provided on an annual basis.

• CreationofaDCICinternalinvestigationandcontrolservicetoaddressstaff.

12 OPM, DCIC Medium term

The Government of Uganda should adopt and implement the Migration Policy, National Diaspora Policy and National ActionPlan for Prevention of Trafficking in Persons to enhance itsmigrationregulatoryframework.TheNationalMigrationPolicyisintended to feed into the overall legal policy framework.


The Government of Uganda should develop and implement the NationalIntegratedBorderManagementStrategyandassociatedActionPlanfortheimplementationoftargetedactionsspanningintra-agency, inter-agency and international cooperation andcoordinationintheareaofbordermanagement.

14 OPM, DCIC,Police, ISO

Medium term

The Government of Uganda should consider revising the relevant legislation to include strengthened provisions to fight cross-bordercrime, that is, topenalize theactofmigrantsmuggling,whichmight also ensure the adequate protection of smuggledmigrantsintheprocessofprosecutingtheperpetrators.

15 DCIC Immediate DCIC should undertake revision and upgrade of the existingImmigrationBorderProceduresManualtoincluderelevantrecentdevelopmentsatnational,regional,continentalandinternationallevels. Furthermore, arrival procedures should be strengthened toobligethecarrierstoprovidepre-arrival.


TheGovernmentofUgandahasrelevantlegislationinplacethatpenalizesabuseofoffice.Furtheranti-corruptionmeasuresshouldbeconsidered,bothatthepreventionlevel‒thatis,awarenessraising‒aswellasthroughenforcementoftheexistingprovisionsunder an enhanced internal audit system.

17 OPM, MOFA

Longer term

• The Government of Uganda should consider undertaking a comprehensive review and assessment of the level of complianceofitsnationallegislationwithratifiedinternationalinstruments.Furthermore, theratificationofProtocols to theUN Convention on the Fight against Transnational OrganizedCrime should be considered.

• Benchmark Uganda against EAC Member States on suchimplementations in order to harmonize immigration lawswithintheEACzone.


18 OPM, DCIC, Police, ISO, Customs

Medium term

• The Government of Uganda should consider establishing an inter-agency working group on border management toensureanadequate institutional frameworkfortheplanning,development and implementation of comprehensive bordermanagement policies.

• Adopting a general inter-agency border management MOU shouldbeconsideredasaplatformforfurtherenhancementofmutualcooperationinallareasrelevanttobordermanagement,such as information exchange, joint risk analysis and jointoperationsattheborder.

• ExistingMOUstacklingsomeoftheareasofcooperation,suchasthejointuseofinfrastructureandfacilities,shouldberevisedand upgraded.

19 OPM, MOFA, DCIC

Medium term

• Regionalinitiativestargetingcross-bordercooperationintermsof enhancing the border security should be considered.

• TheGovernmentofUgandashouldinitiatenegotiationsattheinter-Statepoliticallevel,especiallywiththecountriesoutsideoftheEACregion,toencouragetheconclusionofoperationalarrangements to enable facilitated transborder movement of populations in bordering areas following the best examplesappliedelsewhereintheAfricancontinent.

20 DCIC Medium term

• Reviewthecurrentstaffingdeploymentmodelstoensurethatofficersaredeployedappropriatelyandformaximumefficiency.

• Giveconsiderationtolayeredbordercontrol.• Implementanational inter-agencyreviewoflandandmarinetransportation with a view to establishing needs, identifyinggapsandthepotentialareasforjointownership.

• Toestablishacentreofexcellenceforforgerydetection,withresponsibility for ensuring ongoing training and equipmentprovision across the BCPs.

• Officersatthecentreofexcellencetoreceiveadvancedtrainingin forgery detection and the use of a range of documentexaminationequipment.

• Reviewthesystemsusedintheregionstomaximizecompliancewith the alien registration requirement in line with thatimplemented in Arua.

• Considerco-locatingBCPagenciestoensureallagenciesenjoythesamestandardofaccommodation.


• Toestablishamulti-agencyprojectgrouptoexaminetheoptions,benefitsanddrawbackswithinthecross-conferralmodel.

• To produce an options paper for consideration by DCIC andGovernment of Uganda senior management for eventual submissiontoCabinetforconsiderationandapproval.

• Deviseanimplementationstrategywithexpertinput.

22 DCIC Immediate • AgreetotheestablishmentofanImmigrationIntelligenceUnit.• Establish a project management team with expert input todecidethestructureandobjectivesoftheunit.

• Sourceandrecruitintelligencetrainersanddeviseashort-andlong-termtrainingprogramme.

• Compile SOPs and consult legal experts to ensure legalcompliancewithanydataprotectionorinvestigatorylegislation.


23 DCIC Immediate • Assess all immigration detention accommodation acrossUgandatoensurethattheymeetinternationalstandards.

• Compile legally compliant SOPs in line with internationalconventionsonthetreatmentofdetainees.

• Develop a training programme to cover the specialist nature of detentionwork.

• StrengthenexistingcooperationwithCustoms,Intelligence,thePoliceandinternationalpartnerstoensureproperconsiderationof the best conditions for detained persons. Considerationneeds to be given to religious belief, gender, language and whendetention isactuallyappropriate. There isalsoaneedto consider the physical and mental health needs of detainees. Needforregularreviewofwhetherdetentionislawfuland/orappropriate, preferably conducted by someone independent of the decision to detain. Problems with detention coulddirectlyaffectthepublicandinternationalcommunity’sviewofDCIC’soverallintegrity.Thiscouldhavetheknock-oneffectofdamagingstaffmorale.

24 DCIC, Police Medium term

To consider implementing a national programme of ongoingrefresherandconsolidationtrainingonidentifyingandassistingwithvictimsoftrafficking.

25 DCIC Immediate • Implement a secure means of transporting applications andpassports between the regions and Kampala.

• Investigate a system of communication with applicants, anexampleofwhichcouldbeSMSmessages.

• A policy to be developed for the destruction of uncollectedpassports. Applicants must be made aware that if the document isnotcollectedafteracertainperiod,itwillbedestroyedandthey will have to reapply and pay again.

• Uncollected passports, which are accountable documents, mustbestoredsecurely ina lockablecabinet,not leftonthetop of a desk.

• Computerization of the application process should beresearched and implemented.

26 DCIC Immediate • Authority to issue work permits and visa extensions to bedelegatedtotheregionaloffices.

• Examine the possibility of the regional offices performing acheck-and-sendserviceforworkpermitandvisaapplications.

• Officersintheregionstoundertakefieldvisitsandcompliancechecks thatwould release staff in Kampala to take on otherduties.

• Computerizationofthesystem.• Additional training on document fraud/counterfeit detectionforallworkpermitsstaff,inaccordancewithEACandnationalregulations.


27 DCIC Immediate • Update human resource management aspects of the Border Procedure Manual produced by IOM in light of changed operationalconditions.

• EstablishMISsystemstoinformmanagers.• Whilethenationalriskassessmentfunctionwouldsitwithinanintelligenceunit,allBCPsshouldhavetrainedofficerstoinformlocalmanagersandfeeddataandinformationintothenationalunit.

• RegionalofficestoreflectthestructuresinKampala.• Provision of appropriate transport for use by the regions’ principalofficers.

• NationalreviewofthedeploymentofofficerstoBCPs.

28 OPM, DCIC, Ministry of Health

Immediate • To consider implementing a national strategy of port healthat each BCP aligned to International Health Regulations (IHR2005).

• CompilealistofallBCPsandsensitizerespectivedistricthealthteamsontheirbordercontrolrolesandresponsibilities.

• Brief and train relevant health workers in districts with BCPs on theirrolesandresponsibilities.

29 DCIC, Customs

Immediate Given DCIC’s strong interest in modernizing and harmonizingimmigrationborderpoints(cf.thestandardizationofimmigrationBCPbuildings),asimilareffortneedstobeappliedmorewidely,totakeintoconsiderationpowerneeds,telecominterconnectivityand provision of Internet facilities to achieve real-timecommunicationsbetweenBCPsandheadquarter.Twomainrecommendationsmightbeaddressed:• Follow up on the development of the 22 Customs BCPs already equippedwithASYCUDA ICTsolution tobesharedwithDCICposts. Those siteswill beequippedwithpower supply (solarpanel, national power and generator) and have Internetconnectivity.Actionstotakeareasfollows:- ImplementanoperationalworkgroupwithinImmigration

and theCustoms ITdirectorate toevaluate thequantityand type of data to carry on the network. According to discussions at the initial assessment mission workshop,Customs ICT directorate seems to be ready to cooperate constructively along these lines. Customs might needto be assured that its datawill remain confidential andseparated from DCIC’s.

- EvaluationofthecurrentcapacityoftheCustomsnetworkunder the existing service contract with the Customsnetwork provider. Estimation of the funding requiredto bridge the gap so that DCIC might be integrated with Customs data traffic to enable it to send and receiveadditionaldata.

• To follow up the eVISA and eWorkPermit incoming project. According to the tender document, the solution thatwill beinplaceisaweb-basedimplementedsecureInternetnetwork(basedonVPNtechnology).


30 DCIC Immediate Allocate specialist human resources dedicated to the implementationofDCIC’sICTInfrastructure.Twooptionssuggestedareasfollows:• In-housesolution:ThisrequiresDCICtosetupadedicatedICToffice.- Recruitment of skilled staff with profiles matching the

current tools and systems in place, capable of providing maintenanceservicewhencomplexproblemsconcerningthe database emerge (second and third level of maintenance).

- TrainfocalDCICpointsateachsiteequippedwithagivencomputerized solution to provide initial maintenanceservice (first-level maintenance), such as checking thecorrectfunctioningofthemachine,aswellasusingtheirbasicknowledgeoffunctionalitiesofthesoftwaresolutionin situ before requesting intervention of experts at thesecond and third level.

• Outsourcedsolution:Thismeansexternalizingoroutsourcingthe activity described above to a company via a competitivetender process. Irrespective,DCIC needs aminimum level ofexpertise in ICT at the centre tomeaningfully supervise andmanagetheITcompany.Activitiestobeimplementedforthisoptionareasfollows:- Definetheparameterofactivityandwhatlocationsmight

becoveredbyanoutsourcedentity;- Estimate an annual budget allocation for the cost of

outsourcingITservices;and- Provideatendercallingforanoutsourcedserviceprovider

for aminimum duration of three years, but ideally fouryears(asitwouldbemoreeffective).

In choosing the most appropriate option in the Ugandaenvironment,ananalysismightbedonetakinginconsiderationthefollowingpoints:• Cost:- In case of an in-house solution: Estimation of human

resources necessary, definition of profiles of expertsto be recruited, designing a possible carrier network (proprietary network infrastructure that belongs to a telecommunications service provider), and finallyprovidinginitialandfollow-uptoupdatestaffonupgradestohardware/software.

- Ifoutsourced:Quantifybudgetforthecostoftheservicecalculated on the basis of the length of time requiredunderthecontract,aswellaspreciseidentificationofthesystemsandnetworktobesupportedandlocationstobecovered by the service.

• Strategicelements:- Is DCIC human resources prepared and capable of

managingin-housesolutions?- Is DCIC budget able to absorb the costs of recruiting

additional ICT-qualified personnel fully dedicated to ITduties?


31 DCIC Immediate If Uganda decides to upgrade and strengthen its capacity to centralize information management via an ICT solution, thecurrent HR would not be sufficient to cover this additionalfunction.ItisthereforenecessarytostrengthentheDirectorate’scapacity with a team that can be scaled up when demands escalate especially at the airport in order to reduce the stress levelsoffront-lineofficers.Humanresourcestrainingisrequiredon team organization-developing mechanisms to supply surgecapacity when responding to the demands of peak periods at borderpointswithhighlevelsoftraffic,suchasinEntebbeAirportand the Malaba OSBP.

32 DCIC Longer term

DCIC is making commendable progress on standardizing BCPs.In that process, DCIC needs to factor in the need to configurethe buildings to be IT-ready, with basic features built into theinfrastructurethatwillfacilitatefutureICTinstallations.

33 DCIC Immediate To implement IBMsystem, it is crucial todeviseanactionplanforthedeploymentofessentialhardwareandsoftware.Thefirstobjectiveshouldbetoinstallacentraldatabaseandthenidentify,on a priority basis, a series of IT deployments to BCPs.To set up a core ICT team comprised of trained personnel to manage the DCIC ICT infrastructure especially with the imminent realization of the eVISA and eWorkPermit projects, even if, inthe short term, a decision is made to outsource maintenance activities.

34 DCIC, MOFA

Medium term

The eVISA deployment solution, as per the document kindlysharedbyDCIC,willapparentlybedeployedatthesixselectedOSBPs. It is highly recommended that in the near future, diplomaticmission and consular post are similarly equipped inordertomanagetheriskoffraud,forgeryorvisatrafficking(visashopping)amongborderpoststhatareeVISAequippedandtheothers where visas are processed manually. In the medium term, DCIC is recommended to set up a system that can support the provision of an eVISA process through an Internet site to reduce thescopeforVISAshoppingandtrafficking.

35 DCIC, Customs

Immediate To create a workgroup comprising DCIC and Customs ICT directoratestaskedwithaworkableproposalontheoptimizationofInternetconnectivityresourceswithinaninter-agencysetting(in annexes, there is a list of the 22 Customs posts that areInternet-connected).

36 DCIC, Customs

Medium term

Toshare ITnetworksattheBCP.Thisrecommendation ismadeconsequentonRecommendation35.The22Internet-connectedCustomsborderpostswouldbetheentrypointforImmigrationICT connectivity and greatly enhance the data managementcapacity for DCIC BCPs. Capacity for the local interconnectionofagenciesatBCPs,ascurrentlyunderstood,aroseduringfieldvisits, and it was found it is technically possible to do because oftheproximityofoffices,particularlyCustomsandDCICoffices.AgoodexampleisthesituationatPortBellwheretheCustomsoffice is located in the same building asDCIC. At the Lia BCP,buildingsarelocatedneareachother. Interconnectioncouldbeachievedfairlyeasilysimplybyconnectingthetwopremiseswitha wire.

36 DCIC,Customs

Mediumterm


37 DCIC Immediate Premises for server rooms need to be strongly improved with the following:• Separateandunique room for ICT,preferablywithdedicated

power supply room (solar panel and inverter or generator or bothtoensurepermanentpower);

• Airconditioner;• Armoreddoorandsecuritygrillsorshuttersatthewindow;and• Water proofing, to be built at a location on high ground topreventwaterintrusionsorflooding.

38 DCIC, Police, ISO

Medium term

Implement an IBM system that is not only used as an identitytravel document registration system, but also providesmanagementtools,suchasindicatorkeyboardreports,statisticalreport formigrationmanagement (such as nationality, gender,age, reason for crossing, per border post per region, daily, weekly andquarterly).Thesystemcouldbereadytobeconnectedwithlocalwatch/wantedlist,criminalrecordandINTERPOLI-24/7.

Additional recommendations / post-completion of the assessment

1. DCIC is mandated by the Government of Uganda to fulfil a statutory role under the UgandaCitizenship and ImmigrationControlAct to exercise border control as per – PartVI: ImmigrationControl. Accordingly,DCICshouldargueforextraresourcesasappropriate,duringestimatesandbudgetallocationprocesses.

2. InstallbettersignageatBCPsalongwith fencedchannels tomanageandprocess largegroupsofmigrantstowardsappropriateprocessingunits(suchasimmigrationandhealth).

3. AtBCPandheadquarters,developa“jointborderagency”intelligenceunitwithcommonlyagreedgoalsandtargetstosupportallborderoperations.

4. Encourageshort-termstaffsecondmentstoPolice,IntelligenceandCustomstoimproveinter-agencyrelations.Promotestaffmovementamongborderpointssothatknowledgeissharedandstaffcangainabroaderpictureoftheborderoperations.

5. Review of recruitment policy at each checkpoint location to promote staff integrity and avoidrecruitmentofstaffonlyfromthelocalityoftheposts(whilerecognizinggoodpracticeofhavingastaffwhoisfamiliarwithlocaltransborderdialectandculture).

6. Fullreview/auditofequipmentincludingcurrentactivityandneedsateachlocation/checkpoint.Thisshouldassess ifthecurrentequipmentandtransportmeetthecurrentchallengesfacedbyDCIC.Reviewshouldalsoconsiderifequipmentisbeingadequatelyutilizedbyallagenciespresent.

7. Involve BCP senior managers in a joint agency forum where each agency’s challenges can be discussed, andagreementcansubsequentlybereachedoncommongoalsandinter-agencycooperation.Thisforumcouldformthebasisofquarterlymeetingsalongsimilarlines.

8. Considerationofaquarterly“jointagency”publicationforallstaffthathighlights“border”successstoriesathomeandabroad.Thepublicationcanalsobeinformativeaboutlegislation.Ajointagencypublicationwillhelpfosteracommonbondandpurposebetweenstaffinvolvedinborderwork.Itwillalsopromoteunderstandingofdifferentagencyroles.Lastly,itwouldallowseniormanagerstocommunicatethegoalsofthevariousborderagenciestoallstaff.

37 DCIC Immediate

38 DCIC,Police, ISO

Mediumterm


9. InstitutesystematictrainingforTemporaryPassissuanceofficerssupportedbyacomprehensivesetof issuance guidelines.

10. Consider thevalueofwhether toexpandvisasonarrival, aswell as visa-freearrangements toagreaternumberofnationalsfromlow-riskcountriesplanningashortstayinUganda.

11. Reviewsecurityarrangementsforreceiptofmoneyforissuanceoftemporarypasses.

12. Improve foreign language signage in areas where applicants apply for foreign registration orprocessing.

13. Review DCIC operations in light of international recommendations and best practices – primeexamplethosesetbyICAOinAnnex9dealingwithfacilitation.

14. ReviewexistingtemporarypasssystemsusedbycountriesthroughoutEastAfrica,notingthatoveruseand inappropriate practices are undermining the integrity of border control regimes. Instigatebiometricregistrationandtheissuanceofborderresidencecardsasapossibleoptiontotemporarypassesortosetupsuchsystemswherenodocumentationiscurrentlyused.

15. Considersendingatrainingteamortrainertoeachofthetemporarypass-issuingBCPsasashort-term measure to improve the guidance for pass issuance.

16. WithassistancefromtheIOMtrainingcentreinMoshi,identifysuitablyexperiencedstafftoreviewcurrenttrainingprogrammefornewstaffentrants.RecommendedmodulesofthetrainingshouldincludeshortperiodsecondmentstoCustoms,PoliceandIntelligence.Thiswillencouragenewstaffto have a deeper and broader understanding of the agencies’ work and internal partners.

17. Developapermanentlystaffedandspecializedjointagencyforgeryteambasedatthemainairport.Onceestablished,provideopportunitiesforstaffatborderpointsandothergovernmentdepartmentswho deal with documents to have seconded periods working with that team to increase knowledge offrauddetection.

18. Looktoutilizethedowntimeofstaffworkingatborderpostsbyimplementingaseriesoftrainingprogrammesbetweenarrivalsandduring lowseason.Thesecould seestaffofficially credited forprogress made in areas such as understanding humanitarian border management, immigrationpolicy and learning a new language. They could be joint programmes aimed at all agencies working atborderpostsandreflectedinworkappraisals.

BCPs

1. Considercombiningtheentry,exitanddeportationrecords.However,unfortunately,thereisnorecordofdeportationsordenialofentry.Alternatively,considercreatingaseparatedatabase(oraddingtothealertlist)forallpersonsdeniedentryorremoved(deported);inthisregard,considerationmightbegiventoconfiguringtheMIDASsystemwithsamplesofrefusalofentry,deportationsandotherstobeavailableforofficerstoreferto.

2. Encourage compiling a stock of sample documents used by high-volume travellers for selectivedestinationsandmadeaccessibletotheborderpoints.ThiscouldbedonebyengagingtheresidentembassiesinKampalaandDaresSalaam(includingKenya,Rwanda,Burundi,SouthSudan,SomaliaandtheUnitedRepublicofTanzania/Uganda).

3. ReviewICAOonremovalanddocumentationofthetraveldocumentifsuspectedoffraud.

4. Consider connecting to Edison/Stolen and Lost Travel DocumentDatabase/INTERPOL. These twoapplicationscanbecombined,that is, installingtheINTERPOLapplicationwillgrantaccesstotheEdisonTDdatabase.Anotheroptionwouldbethefreeaccesstoa“light”versionoftheEdisonTDdatabase:www.edisontd.net/

http://www.edisontd.net/


5. Installaback-upsystemfortheITsystemthatisactivatedregularly(ideallyatthecloseofbusinesseachday).ThiscanprovideapointofreferenceiftheInternet/satelliteisdown.Encourageuseoffaxeswhenthesatelliteor Internetconnection isdown,andensureallborderpostsare likewiseconnectedviaalternatecommunications(perhapssharingCustomsdatatransmissionservice).

6. Needtoensurecarriers’liabilitythatcoversnotonlyairlinesbutalsobuses/trucks.Clearlydefinetheroles of bus and truck operators.

7. Needtoputuppostersatentryandexitpointswithwarningsonthedangersofhumantrafficking.Theseshouldhavethefollowing:(a)contactnumbersthatcanbecalled;and(b)encouragementtospeaktobordersecurityagencies.Informationleafletswiththisinformationcouldalsobehandedouttoarriving/departingtravelers.

8. Looktobetter integratethewarningsystemsof Intelligence,Defiance,DisasterManagementandCustoms. Also encouragemore joint exercises between staff from Police, Intelligence, DCIC andCustomstargetingorganizedcrime,terroristsandinsurgencycombatants.

9. Develop a permanently staffed and specialized joint agency forgery team based at the mainairport.Onceestablished,provideopportunities for staffatborderpointsandothergovernmentdepartments who deal with documents to have seconded periods working with this team. This will increaseallrelevantdepartments’knowledgeoffrauddetection.Thissecondarylineofverificationcouldperformthefollowing:(a)producealertsonfraudulentdocuments;(b)facilitateinformationsharingatnational/internationallevels;(c)producetechnicalreportsonfraudulentdocuments;(d)delivertrainingtothenewcomersandrefreshertrainingsonayearlybasis;(e)setupagenuinetraveldocuments“database”byrequesting(viaMOFA/embassies)forsamples;and(f)trainingonprofilingandfingerprintverificationwouldbeabenefit.

10. In order to assist with headquarter command and control, early warning and any necessaryinvestigations into allegations of inadequate humanitarian treatment of migrants, corruption,criminalactivity,considerinstallationofcamerasurveillanceofimmigrationentryandexitareasatallBCPs.Thesurveillancecamerasshouldbemonitoredbynewheadquarterintelligenceunit.

ANNEXES

Annexes78

Annex 1. Maps

ANNEX 1.a. Uganda immigration inland station map

Source:http://immigration.go.ug/about/regional-offices

http://immigration.go.ug/about/regional-offices


Annex 1.b. Uganda map of border posts

Source:http://immigration.go.ug/content/border-management

http://immigration.go.ug/content/border-management

Annexes80

Gazzetted BCPs

• Mpondwe • Kamwezi• Malaba • Paidha • Busia • Ntoroko • Katuna • Busunga • Mutukula • Ngomoromo • Entebbe • MadiOpei• Lwakhakha • Atiak• Cyanika • Suam• Bunagana • Butiaba• Goli • Wanseko• Lia • Tonya • Afogi • Port Bell• Vurra • Sebagoro • Ishasha • Odramachako• Oraba • Kizinga• Kikagati • Amudat• Mirama Hills • Kidepo

Annex 2. Full list of consultations

Date Location Name Agency/Office Grade

19 May Kampala DCIC headquarters

OngodiaEtinuNicholas

DCIC CommissionerCitizenshipandPassport Control

Anthony Namara DCIC CommissionerImmigration

Mujuni Benon DCIC PrincipalImmigrationOfficer

Kamugidha Ludovic DCIC ActingAssistantCommissionerInspection/Legal

WetayaMartin DCIC PrincipalImmigrationOfficer

Jabel Male DCIC PrincipalImmigrationOfficer

Cheborion Pat DCIC AssistantCommissioner/PassportControlOfficer

RosemaryWamimbi DCIC Assistant Commissioner Immigration

Jacob Siminyu DCIC SeniorImmigrationOfficer

Margaret Kabugho DCIC SeniorImmigrationOfficer

Okumu Oryeda Wifred DCIC SeniorImmigrationOfficer

21 May Kampala DCIC headquarters

S.P. Kagoda MIA Permanent Secretary

Anthony Namara DCIC CommissionerImmigration

Ssensalire Ismail DCIC ImmigrationOfficer, Legal Department


23 May EntebbeAirport

Okello Charles Cowards

DCIC PrincipalImmigrationOfficer

25 May Bibia Border Post

Kisekka Jonathan DCIC SeniorImmigrationOfficerinchargeofEleguBorderPost

Ojok Bonnan Police OfficerinCharge,CrimeIntelligence Division

Mugonga Pins URA Customs in charge

Wabomba Moses INTERPOL LiaisonOfficer

Kasaija Jimmy BISO/ELECOM

Border ISO

26 May GuluRegionalPost

MartinWetaya DCIC PrincipalImmigrationOfficerIncharge

28 May Kampala DCIC headquarter

EkwangJosephine DCIC Commissioner, Legal and Inspection

ANNEX 3. Attendance list of the assessment development workshop (20 and 21 May 2014)

IBMASSESSMENTDEVELOPMENTWORKSHOPATTENDANCELIST20–21MAY2014ATPROTEAKAMPALAHOTEL

No. Name Title/Position Organization

1 EkwangJosephineAli Commissioner MIA

2 OngodiaE.N. Commissioner MIA

3 Namara Anthony Commissioner DCIC

4 Okumu Oryeda Wilfred SeniorImmigrationOfficer DCIC

5 Margaret Kabugho SeniorImmigrationOfficer DCIC

6 Jabel Male PrincipalImmigrationOfficer DCIC

7 WamimbiRosemary Assistant Commissioner Immigration

DCIC

8 Asha Hussein ActingPrincipalImmigrationOfficer DCIC

9 Kangume Abiah Jane ImmigrationOfficer DCIC

10 Ssensalire I.S. ImmigrationOfficer DCIC

11 Stephen Chwinyaii Deputy Director ISO

12 Okunia Joyce ForeignServiceOfficer MIA

13 Patrick Temera SeniorSocialDevelopmentOfficer Ministry of Defence

14 Okunia Juliet ForeignServiceOfficer MOFA

15 Henry Tumwesigye Assistant Commissioner of Police, Operations

Police, UPF

16 Lt. Col. Julius Bakirana UPDFOfficer UPDF

17 RumanyikaC RegionalManager URACustoms

18 Geofrey Balamaga Manager Customs URACustoms


23 May EntebbeAirport

Okello Charles Cowards

DCIC PrincipalImmigrationOfficer

25 May Bibia Border Post

Kisekka Jonathan DCIC SeniorImmigrationOfficerinchargeofEleguBorderPost

Ojok Bonnan Police OfficerinCharge,CrimeIntelligence Division

Mugonga Pins URA Customs in charge

Wabomba Moses INTERPOL LiaisonOfficer

Kasaija Jimmy BISO/ELECOM

Border ISO

26 May GuluRegionalPost

MartinWetaya DCIC PrincipalImmigrationOfficerIncharge

28 May Kampala DCIC headquarter

EkwangJosephine DCIC Commissioner, Legal and Inspection

ANNEX 3. Attendance list of the assessment development workshop (20 and 21 May 2014)

IBMASSESSMENTDEVELOPMENTWORKSHOPATTENDANCELIST20–21MAY2014ATPROTEAKAMPALAHOTEL

No. Name Title/Position Organization

1 EkwangJosephineAli Commissioner MIA

2 OngodiaE.N. Commissioner MIA

3 Namara Anthony Commissioner DCIC

4 Okumu Oryeda Wilfred SeniorImmigrationOfficer DCIC

5 Margaret Kabugho SeniorImmigrationOfficer DCIC

6 Jabel Male PrincipalImmigrationOfficer DCIC

7 WamimbiRosemary Assistant Commissioner Immigration

DCIC

8 Asha Hussein ActingPrincipalImmigrationOfficer DCIC

9 Kangume Abiah Jane ImmigrationOfficer DCIC

10 Ssensalire I.S. ImmigrationOfficer DCIC

11 Stephen Chwinyaii Deputy Director ISO

12 Okunia Joyce ForeignServiceOfficer MIA

13 Patrick Temera SeniorSocialDevelopmentOfficer Ministry of Defence

14 Okunia Juliet ForeignServiceOfficer MOFA

15 Henry Tumwesigye Assistant Commissioner of Police, Operations

Police, UPF

16 Lt. Col. Julius Bakirana UPDFOfficer UPDF

17 RumanyikaC RegionalManager URACustoms

18 Geofrey Balamaga Manager Customs URACustoms

Annex 3.

Annexes82

Annex4. Report on the field visits undertaken during the assessment

1. Port Bell

PortBell is situatedonLakeVictoria,whichbordersKenyaandtheUnitedRepublicofTanzania.PortBellisprimarilyacargoentrypointfortrafficfromKisumuinKenyaandMwansaintheUnitedRepublicofTanzania.

Staffing

TheBCPisstaffedbythefollowing:

• OneImmigrationOfficerandoneImmigrationAssistant;

• ThreeCustomsOfficersandoneCustomsAssistant;and

• OtheragenciespresentattheBCP(butnotavailableatthetimeofthefieldtrip)arethePolice,ISO and plain clothes military soldiers.

TheImmigrationOfficeoperatesfrom8.00a.m.to5.00p.m.fromMondaystoFridaysand8.00a.m.to1.00p.m.onSaturdays.CustomsOfficersprovide24-hourcover.

Accommodation and facilities

Both agencies are accommodated in single rooms adjacent to each other. Both are furnished with desks andchairs.TheImmigrationOfficeisequippedwithMigrationInformationandDataAnalysisSystem,butthereisnoInternetconnection.TheCustomsOfficeisequippedwithfilingcabinetsandhasInternetconnectivityandgovernment-issuedtelephones,whereastheImmigrationOfficedoesnothaveInternetconnectionortelephones,andofficersusetheirpersonalmobile.

Thereisnodetentionaccommodation;anyonesubjecttodetentionistransportedtoDCICortransferredto the police.

Operation

The BCP processes 8 to 10 vessels per week, mainly carrying unaccompanied cargo. There are currently nopassengervesselsoperatingthroughPortBell.Theonlypeopletravellingthroughtheportarecrewwhotravelonnationalpassports,Seafarer’sNationalIdentityDocumentorSeaman’sBooks.

TheBCPreceivescrewandcargomanifests,whicharedealtwithbytheImmigrationOfficeandCustomsOfficerespectively.

Thecrewmanifestscontainnames,nationalitiesandpassportnumbers,whicharesubsequentlycheckedagainstthetraveldocuments.Themanifestsaremanuallyfiledinboxfiles.

The cargo manifests are entered on to the centrally connected computer. Customs visit 100 per cent of arrivingvesselsandrummagingofthevesselisdoneincoordinationwiththeotheragencies.Searchesareconductedintheopenandexecutedmanuallyastherearenosearchequipmentorsheds.

Goodssmugglingmainlyinvolvesgrain,rice,wheat,spaghettiandmilk.

TheCustomsOfficersraisedpersonalsafetyconcernswhereasituationoccursandthepoliceandarmyarenot immediatelyavailable. SomePersonal SafetyTraining (PST)hasbeendeliveredbutnot toallofficers.

Joint working

Therearejointagencymeetingsheldmonthly‒usuallychairedbytheISOofficer‒whichreviewportactivity,identifyloopholesandareasofweaknessandhighlightsuccesses.Meetingsandoutcomesare

of Tanzania.

Annex 4.

Annexes82

Annex4. Report on the field visits undertaken during the assessment

1. Port Bell

PortBell is situatedonLakeVictoria,whichbordersKenyaandtheUnitedRepublicofTanzania.PortBellisprimarilyacargoentrypointfortrafficfromKisumuinKenyaandMwansaintheUnitedRepublicofTanzania.

Staffing

TheBCPisstaffedbythefollowing:

• OneImmigrationOfficerandoneImmigrationAssistant;

• ThreeCustomsOfficersandoneCustomsAssistant;and

• OtheragenciespresentattheBCP(butnotavailableatthetimeofthefieldtrip)arethePolice,ISO and plain clothes military soldiers.

TheImmigrationOfficeoperatesfrom8.00a.m.to5.00p.m.fromMondaystoFridaysand8.00a.m.to1.00p.m.onSaturdays.CustomsOfficersprovide24-hourcover.


Both agencies are accommodated in single rooms adjacent to each other. Both are furnished with desks andchairs.TheImmigrationOfficeisequippedwithMigrationInformationandDataAnalysisSystem,butthereisnoInternetconnection.TheCustomsOfficeisequippedwithfilingcabinetsandhasInternetconnectivityandgovernment-issuedtelephones,whereastheImmigrationOfficedoesnothaveInternetconnectionortelephones,andofficersusetheirpersonalmobile.

Thereisnodetentionaccommodation;anyonesubjecttodetentionistransportedtoDCICortransferredto the police.

Operation

The BCP processes 8 to 10 vessels per week, mainly carrying unaccompanied cargo. There are currently nopassengervesselsoperatingthroughPortBell.Theonlypeopletravellingthroughtheportarecrewwhotravelonnationalpassports,Seafarer’sNationalIdentityDocumentorSeaman’sBooks.

TheBCPreceivescrewandcargomanifests,whicharedealtwithbytheImmigrationOfficeandCustomsOfficerespectively.

Thecrewmanifestscontainnames,nationalitiesandpassportnumbers,whicharesubsequentlycheckedagainstthetraveldocuments.Themanifestsaremanuallyfiledinboxfiles.

The cargo manifests are entered on to the centrally connected computer. Customs visit 100 per cent of arrivingvesselsandrummagingofthevesselisdoneincoordinationwiththeotheragencies.Searchesareconductedintheopenandexecutedmanuallyastherearenosearchequipmentorsheds.

Goodssmugglingmainlyinvolvesgrain,rice,wheat,spaghettiandmilk.

TheCustomsOfficersraisedpersonalsafetyconcernswhereasituationoccursandthepoliceandarmyarenot immediatelyavailable. SomePersonal SafetyTraining (PST)hasbeendeliveredbutnot toallofficers.

Joint working

Therearejointagencymeetingsheldmonthly‒usuallychairedbytheISOofficer‒whichreviewportactivity,identifyloopholesandareasofweaknessandhighlightsuccesses.Meetingsandoutcomesare


reportedtoseniorofficersineachagency.

There is a reciprocal arrangement in place that enables CustomsOfficers and army personnel to beattachedtoeachother’senforcementteams.There isnoarrangementfor ImmigrationOfficerstobeincluded as part of these teams.

Inadditiontothejointenforcementteams,CustomscarryoutwaterpatrolsintwovesselsprovidedbytheJapanInternationalCooperationAgency.

Thearmydeploysamarineteam,butdoesnotshareinformationorintelligencewiththeotherborderagencies.

Recommendations

• The ImmigrationOfficeandCustomsOffice to share Internet connectivityand communicationinfrastructure.

• Considerationtobegiventoincludeimmigrationinthejointenforcementteams.

• PSTtobedeliveredtoallstaffworkingattheport.

• For jointworking to achieve its optimum potential, themeetings and operations should alsoinclude the army marine team.

2. Entebbe Airport

EntebbeAirportistheprincipalinternationalairportinUganda.Passengerfiguresfor2012areasfollows:42

• Internationalpassengers–1,238,536

• Domesticpassengers–13,780

ItreceivesflightstoandfromBelgium,DemocraticRepublicoftheCongo,Egypt,Ethiopia,Kenya,theNetherlands,Qatar,Rwanda,SouthAfrica,UnitedArabEmirates,UnitedKingdom,andUnitedRepublicofTanzania.

42 CivilAviationAuthorityarrivalstatistics.

ImmigrationandCustomsofficeatPortBellBCP.©IOM2014

Annexes84

Staffing

EntebbeAirportoperates24hoursperday,7daysperweekwithflightsdepartingandarrivingregularlythroughoutthe24-hourperiod.BothImmigrationandCustomsdeploystaffonasystemofthreeeight-hourshifts.Thenumberofofficersondutyvaries,butaveragesateightImmigrationOfficersandtenCustomsOfficers.


TheArrivalsControlisconfiguredintofourchannels:(a)visa;(b)EACandothers;(c)crewandspecialneeds;and(d)Ugandans.Therearesevenarrivaldesks,eachaccommodatingtwoImmigrationOfficers,anda securitydesk for furtherexaminationofnationalitiesof security interest.ThearrivaldesksareequippedwithbasicforgerydetectionequipmentandPISCES.ImmigrationOfficersmanuallyrecordthecollectionofvisafees.

TheEmbarkationControlhas threedesks,eachable toaccommodate twoofficers,plusan interviewroom.Thereareoftenqueuesduetopoorconfigurationofpassengerflowfromthecheck-indesks.

TheCustomshall is configured in the internationally recognizedGreenandRedChannels,which arestaffedbyuniformedofficers.Passengersaremonitoredandprofiledfromtheconveyorbeltbyplainclothesofficers.ThereisonebaggagescannermannedbyCustomsandPoliceofficers.BaggagesearchesforimmigrationpurposesareconductedbyCustomsOfficerswithImmigrationOfficersinattendance.

Detention accommodation

Internationallyrecognizedprinciplesregardingthedetentionofirregularmigrantshavebeendevelopedbydifferent internationalbodies, including somewithbinding force thatguarantee theprotectionofhumanrightsofthedetainees.AmongthesebindingstandardsaretheInternationalCovenantonCivilandPoliticalRightsandtheConventionontheRightsoftheChild,towhichUgandaisasignatory.

The Immigration detention suite at EntebbeAirport is situated behind the arrivals control at the end of a corridor, which also provides accesstoImmigrationOfficeaccommodation.The suite comprises of four rooms, two bedrooms and two bathrooms. One bedroom is furnished with bunk beds and a mattressonthefloor,andtheotherwithonebedandone mattress on the floor. Opposite eachroom, separated by a corridor, are the two bathrooms.

Serious concerns about the standard of accommodationareasfollows:

• All the roomshave significantdamageto the walls and ceilings caused by violent detainees.

• The bedrooms could be allocated to separate male and female detainees;however, to ensure the safety of vulnerable detainees, the bedroom doors would have to be locked, which would prevent access to the toilet facilities. ImmigrationdetentionsuiteatEntebbeAirport.©IOM2014


• The door from the corridor to the suite does not allow Immigration Officers visual access tomonitorandsupervisethedetainees.ThereisnoCCTVinthedetentionsuite.

• Thereisonlyoneentry/exit,leavingImmigrationOfficersatsignificanthealthandsafetyriskintheeventofanattack.

• Therearenopanicbuttons.

• Immigration Officers require training in the following: (a) suicide awareness; (b) first aid; (c) childcare,protectionandsupervision;and (d) security trainingandpractice.This isnotanexhaustivelist.

Trafficking problems

Immigration: Commonlyvictimsoftrafficking includethefollowing: (a)nationalsofsecurity interest; (b)peopletravellingonforgedpassportsorwithforgedsupportingdocumentation;and(c)inadequateorwronglydocumentedpassengers.Officersclaimthathumantraffickingisnotanissue.

Customs:Themainitemsthataresmuggledarethosethatattracttaxation,suchasalcoholandcigarettesexceedingthepermittedallowances.

Forgery detection

Although therewerenofigures available at thetimeof the team’s visit, ImmigrationOfficers statedthatforgedpassportsandsupportingdocumentationwerefrequentlyencounteredatEntebbeAirport.Thearrivals desks are suppliedwithultraviolet lamps,but there is nootherequipment to assist theImmigrationOfficer.Deliveryofforgerydetectiontraininghasbeenpatchyandbasic.

Theuseofforgeddocumentationisoneoftheprimarytoolsusedincross-bordercrimeandillegalentry.Criminalsandterroristsuseincreasinglysophisticatedforgerytechniques,anditisessentialthatborderofficershaveaccesstoequipmentandtechniquestobolsterbordersecurity.

A national centre of excellence for forgery based at Entebbe Airport, with advanced training andequipment,wouldsignificantlyassistinidentifyingforgeriesandbolsterbordersecurity.

Joint working

Thereisevidenceofgoodinter-agencycooperationwithregularweeklymeetingssupplementedbyadhocmeetingstoexchangeinformationandupdateonproblemprofilesandtrends.

Recommendations

• UpgradethedetentionaccommodationatEntebbeAirportinlinewithinternationalstandards.

• EstablishacentreofexcellenceforforgerydetectionatEntebbeAirport.Provideadvancedleveltrainingtoacoreofstafftoenablethemtoimplementanationalprogrammetotrainallborderofficers.

• Provisionoftrainingincounter-trafficking,intelligenceandriskassessment.

3. Tonya in Hoima District

Tonyaisasmallfishingvillageof10,000peopleontheshoresofLakeAlbert.ItisintheearlystagesofdevelopmentfundedbyoilexplorationcompaniesactiveinthatpartoftheAlbertine.

TheBCPisstaffedbyoneofficerwholivesinaroomatthebackoftheImmigrationOffice.Thelackofelectricity supplymeans that there isno IT.Theofficedoesnothaveany forgeryorequipment.Theofficeruseshispersonalmobilephoneforcommunication.

Annexes86

Theofficerrecordsallarrivalsanddeparturesinamanuallogbook,whichshowed25peopledealtwithsinceJanuary2014.Interestingly,thenationalitieswereshownasallCongolesearrivingandallUgandansdeparting,whichcouldmeanthatthosenationalshavenotyetleftUgandaortheDemocraticRepublicoftheCongo,butmorelikelytheyhavetravelledbyoneofthe500+unofficialcrossingpointsalongLakeAlbert’s porous border.

The border agencies do not have any vehicles or boats, and patrolling is done on foot.

Thelocalpoliceofficerstatedthathehasasystemoflocalinformantswhoadviseonirregularmigrants.However,becauseof theCongolese/Ugandan intermarriagesover thegenerations, the local villagerstend to protect irregular migrants as family members.

Joint working

BorderagenciesatTonyaarePolice,ImmigrationandISO.ThereisnoCustomspresence.Thereisgoodevidenceofinter-agencycooperationwithregularmeetingsandinformalexchangesofinformation.TheUPDFhasamarineunitcomprisingofthreeofficers,whopatrolbyboatandshareinformationwiththeImmigrationOfficer.

Recommendations

• Althoughthearea’s infrastructureisbeingupgradedbytheoilexplorationcompanies,theBCPrequiresanelectricitysupplyassoonaspossible.Scopemethodsofprovidingelectricity,includingsolar panels.

• Provision of a vehicle and boat to enable mobile patrols.

• Provisionofforgeryequipmentandtraining.

• Provisionofofficiallyfundedtelephone.

4. Wanseko in Buliisa District

Wanseko is a small ferry port on the shores of Lake Albert. There are three arrivals and departures per day,onMondaystoSaturdays,to/fromPanyimurinUganda.Wansekoisthereforeaninternalborderpostratherthananinternationalborderpost.

Immigrationsignpost,TonyaBCP.©IOM2014

Immigrationoffice,TonyaBCP.©IOM2014


Wansekohasone ImmigrationOfficer inpost, buton thedayof the team’s visit, hewasworking inPanyimur,whereinternationalpassengersfirstenterUganda.

The police based at Wanseko advised that the port does occasionally get people arriving by canoe from theDemocraticRepublicoftheCongo,andcanoesareusedtosmuggleopium.TheyalsoadvisedthatthereisnoevidenceofhumantraffickingthroughWanseko.

Recommendation

NationalreviewofpostingsofofficerstoBCPstoensurestaffaredeployedappropriatelyformaximumefficiency.

5. Masindi Passport Office

Unfortunately,theteamwasunabletovisittheofficeduetotheabsenceofthePassportOfficer.

6. Lia in Arua District

LiaisasmallBCPontheborderwiththeDemocraticRepublicoftheCongo.

Trafficking levels

Traffic levels are intermittent with no one crossing some days, and other days two or three. TheImmigrationOfficerestimatesthatthereisanaverageof12peopleenteringUgandaand30exitingperweek.Thedisparityintheentryandexitfigurescanonceagainbeexplainedbytheporousborderwithitshigh levelsofunofficialcrossingpoints.Thereisnopublictransportcrossingtheborder;travellerseither cross on foot or use their own transport.

Customsestimatethattheycleartwoorthreecargoperday.LiaisnotagazettedBCPforCustoms.Theirroleisapreventativeone,tostoppeopleexportinggoodswithoutpayingtaxes.

Staffing

ThereisoneImmigrationOfficer,twoCustomsOfficers,onePoliceofficerandoneISOofficer.


TheImmigrationOfficedoeshaveasolarpanelonitsroofbutitiscurrentlybroken.ThereisnoInternetconnectionandnoforgeryequipment.Thereisnoofficialcommunicationsystemandtheofficerhastouse his own mobile phone.

Wanseko port. © IOM 2014

Annexes88

Customshaveworkingsolarpanels,Internetconnectionandtheircomputersystemisinterlinkedwithother border posts and the centre.

Joint working

Thereareregularmeetingsbetweentheagencies.

Therearenocross-bordermeetingswiththeCongolese.

Recommendations

• Theborderagenciestoshareaccommodation,Internetandotherfacilities.

• Consideration given to cross-conferral ofpowerstoenableoneofficertodealwiththesmallamountoftrafficfreeingtheotherstodeploy as mobile patrols.

• Patrol vehicles needed.

• Supplybasicforgeryequipment.

• Supply official communications, such astelephones and radios

7. Arua Regional Office

AruaRegionalOffice jurisdictioncoverseightdistricts in theareaof theWestNile. It isheadedbyaPrincipalImmigrationOfficerwhoisbasedatArua.

Border operations

ThePrincipalOfficerleadsastaffingcomplementof21officerswhoaredeployedto6borderpostsatLia,Goli, Paidha, Vurra, Adramachacko and Oraba.

TheregionhasdistrictsontheborderswithDemocraticRepublicoftheCongoandSouthSudan,withapproximately 2,000 people crossing the border everymonth, including significant refugee numbersfromSouthSudan.ThetraffickingproblemismainlyCongolesewithdocumentissues‒theyeitherhavenodocumentoralocallyissuedJetonsthatarenotrecognizedbyUganda.Themainreasonsfortravelareforbusiness,educationandfamilyreasons.Occasionally,itisformedicalreasons.

Instancesofhumantraffickingareclaimedtobeverylow,butpeoplesmugglingandillegalentryresultingfromtheporousbordersisseenasamajorissue,withthePrincipalOfficerestimating100,000peopleinthe region with no legal basis.

ThePrincipalOfficerutilizesasystemofremotemanagementasheisunabletosupervisehisstaffattheBCPsduetolackoftransport.Dailysituationreportsbytelephonearecompiledintoweeklywrittenreports, which form part of the updates he shares with other senior colleagues during his monthly visits toDCICHeadquartersinKampala.

Detention facilities

There are detention facilities at each of the six BCPs, most shared with the Police. Oraba has anImmigrationdetentioncentre,whichtheteamwasunabletovisitduetotimeconstraints,butwhichthePrincipalOfficerstateddidnotmeetinternationalstandards.

Immigrationoffice,LiaBCP.©IOM2014


Alien registration

UndertheUgandaCitizenshipandImmigrationControlAct,thereisarequirementthatallaliensshouldregisterwithin90days.However, inpractice,only42percentcompliedwithin theAruaRegion.ThePrincipalOfficerinitiatedaprojectthatinvolvedthelocalcommunityleaders,andasaresult,increasedtheregistrationto86percent.

Passports and work permits

Arua Office processes passport applications and produces monthly and quarterly reports for DCICheadquarteronthenumberofapplicationsreceived,processedandissued.NationalsseekingtoapplyfororextendaworkpermitareadvisedtoattendDCICinKampala.

Regionalizationofpassportandvisaissuingisbeingrolledoutgradually,butthereisasystemthatcouldbeutilizedbyregionalofficesinthemeantimethatwouldachievethefollowing:

• Improvetheservicegiventoworkpermitandvisaapplicants;

• Bringinrevenuefortheoffices;and

• ImproveefficiencyattheDCICbyensuringapplicationsareproperlycompletedandreducingtheburden of referrals.

The regional office would charge a small fee to ensure that the application form and supportingdocumentsmeettherequiredstandard,beforebeingsubmittedtotheDCIC.Itwouldhavetobestressedtoapplicantsthatthecheck-and-sendservicedoesnotguaranteeissuanceofthepermit/visa,butthatitwouldsavetheapplicantthetimeandinconvenienceoftravellingtoKampalatomakeanapplication.

Recommendations

• AvehicletobebasedatAruaRegionalOfficeforuseinvisitstotheBCPsandinenforcementandenquiryvisits.

• Considerationtobegiventodelegatepowerstoallregionalofficestoissuepassports,visasandwork permits.

• Intheabsenceofworkpermitsbeingissuedattheregionaloffice,examinethepossibilityoftheregionalofficesperformingaworkpermitandvisaapplicationcheck-and-sendservice.

• Conductaneedsassessmentofdetentionaccommodationacrosstheregion.

• TheAruaAlienRegistrationprojecttobeadoptedbyotherregionstoincreasecompliance.

8. Bibia in Amuru District

Bibiaisamedium-sizedBCPontheborderwithSouthSudan.Theofficeissituatedabout600metresfromtheborderandreliesonpeoplecrossingtheborderattendingtheImmigrationOffice.

ItisoneoftheBCPsgazettedtobenefitfrombeinganOSBP.

Traffic

The ImmigrationOfficeprocessesbetween200 and400peopleper day. There arefluctuationswithtrafficheavieronmarketdaysandfestiveholidays.

ThemainnationalitiesencounteredarefromEritrea,Kenya,Rwanda,SouthSudanandUganda.

Annexes90

Customsprocess200heavygoodsvehicle(HGV)perday,whichareallexportsasUgandadoesnotimportfrom South Sudan. HGVs travel empty to Uganda. Customs state that they have not had any instances of peoplebeingfoundinthebackoftheemptyvehicles,butadmittedthattheydonotsearchthem.

Staffing

TheImmigrationOfficeopeninghoursarefrom5.00a.m.to7.00p.m.andareintandemwiththeSouthSudan office. There are seven ImmigrationOfficers posted to Bibia providing cover of at least threeofficersthroughoutopeninghours.

Operations and facilities

TheImmigrationOfficehasthreeworkstationsandisequippedwithPISCES,forgerydetectionequipmentandpassportscanners.PISCEShadonlybeeninstalledforoneweekatthetimeoftheteam’svisit,andtheImmigrationOfficerswerestillfamiliarizingthemselveswithitsuseandapplications.

TheaccommodationiscrampedbutwillimproveoncetheOSBPisbuilt.

ImmigrationOfficersuse twomotorcycles forpatrolling theborder,but inpractice,donotuse themasoftenastheywantduetostaffinglevels.Theyestimatethat10officersarerequiredtoprovidefullcoverage.

Theyalsorequireavehicletocoverlargerdistancesalongtheborderandforconveyingpeopletocourt;they are currently put on public transport.

Customshave several systems includingAsicudaandECTS, all ofwhichare connected to the centralsystem.

ThePolicehavenoITsystemsandrelyonImmigration.

Trafficking problems

Themainreasonsforrefusalofentryareexpireddocuments,subjectofanalertandbeingrudetotheImmigrationOfficer.

Forged documents are encountered, mainly the temporary mobile permits, work permits and special passes.Theofficershavehadlittleornoforgerytraining.

Theofficersstatedthattherewasnohumantraffickingacrosstheborder,butthattherewereinstancesonaweeklybasisofminors,andwomenwerebeingtakentoworkinSouthSudan.ThePoliceOfficerpresentstatedthat,ifidentified,theminorsandchildrenwereinterviewedandalistwiththeirnamessenttoPoliceheadquarters.

TheconfusionoverwhattraffickingactuallyishasbeenevidentinthemajorityofBCPsvisited.Thereisalsomisunderstandingaboutthedifferencebetweensmugglingandtrafficking.

South Sudan crisis

On 15 December 2013 refugees started arriving in large numbers, over 1,000 per day. All the agencies workedtogethertodealwiththenumbers.DCICsentthreeadditionalofficerstoassist.Anemergencycommitteeofalltheborderagencieswasestablishedtodealwiththecrisis.

There is now a reception centre run jointly by the United Nations High Commissioner for Refugees(UNHCR)andthePrimeMinister’sOfficetoprocessarrivingrefugees.ThedataisgiventoImmigration.

Joint working

TherearemonthlymeetingschairedbytheISO.


Recommendations

• Provision of basic and enhanced forgery training.

• Trainingintraffickingandsmuggling.

• Training in intelligence gathering and risk assessment.

• Provisionofasurveillancevehicleequippedwithnightvisiongoggles.

9. Gulu Regional Office

GuluisheadedbyaPrincipalImmigrationOfficerassistedbyoneofficeadministrator.It isoneoftheregionalofficesdesignatedtostartissuingpassportsandworkpermitsinthenextfinancialyearonceitis fully mandated.

Operations

Theofficereceivesapproximately24passportapplicationspermonth,andareprocessedintheregionaloffice.Duetothelackofofficialtransport,thePrincipalOfficertakespublictransporttoDCICinKampalawhere he deposits the passports for issuance. He then collects passports that have been issued and transportsthembacktoGuluonpublictransport.Theofficerundertakesthisjourneyonceortwiceamonthdependingonthelevelofapplications.

Thepassportapplicationsandthenewlyissuedpassportsarecarriedonpublictransportsecuredonlyinanenvelope.Thishasmajorsecurityimplications.

Recommendations

• That urgent action is taken to ensure passport applications and newly issued passports aretransported securely.

• That similar urgent action is taken in other regional offices that follow this form of unsecuretransportation.

10. Lwakhakha in Manafwa District

This is an unmanned border between Uganda and Kenya. There is a Police checkpoint approximately15 kilometres from the border. The Police take note oftheregistrationofthevehicleandthenumberofpeopletravelling.Theydonotexaminepassportsortake personal data.

Recommendation

• Police to record full details of travellers.

• Cross-conferral of powers to be consideredtoenablethePolicetocarryoutimmigrationfunctions.

• Forgery,traffickingandintelligencetrainingtobedelivered.

Lwakhaha BCP. © IOM 2014

Annexes92

11. Amudat in Amudat District

This is a BCP on the border with Kenya. On the day that the team visited, there were no border agency officerspresent.Itwasthereforenotpossibletoobtainanyinformationaboutthetrafficthroughtheborder.

TheBCPoffice isundergoingconstructionandgiven itssize, itwould indicatethat this isnotasmallborder crossing.

Both Amudat and Lwakhakha BCPs were unmanned on the day the team visited. On 6 June 2014, the New Vision newspaper carried an article titled “Suspected terrorists enter Uganda – Police” (www.newvision.co.ug/new_vision/news/1341469/suspected-terrorists-enter-uganda-police), an excerpt ofwhichisasfollows:

KAMPALA - The Police has issued a fresh terror alert in which all security agencies and members of public have been asked to report any suspicious people and particularly suspicious Land Cruiser vehicles.

Police spokesperson Fred Enanga told New Vision online that four vehicles allegedly carrying terrorists are suspected to have sneaked into the country using the Kenya-Uganda border.

Recommendation

• Regional Principal Officers to carry out an urgent review of staffing levels, deployment andattendance reporting. This should be conducted in conjunctionwith other border agencies toensurethatborderpostsarenotleftunmanned,andthatoneagencyisalwayspresent.

• Considerationtobegiventocross-conferralofpowerstoassistborderpostswithlowlevelsofborderstaff.

12. Mbale Regional Office

MbaleisaregionalofficethatstartedissuingpassportsinOctober2013.

Staffing

TherearefiveofficerspostedtoMbale,onePrincipalOfficer,oneSeniorOfficerandthreeImmigrationOfficers. Inaddition,thereisanINTERPOLofficersecondedtotheofficewhoseroleistoconfirmtheapplicationofindividualsandexaminepeoplereportinglostorstolenpassports.

Operations

Theofficeissuesapproximately100passportspermonth.ThePrincipalOfficerputsinarequisitionforaspecificnumberofblankpassportsfromKampala.HethentravelstoDCICinKampala,collectstheblankpassportsandreturnstoMbalebypublictransport.Thishasmajorsecurityimplications.

Theofficeismandatedtoextendvisas,butworkpermitsareissuedinKampala.

Amudat BCP. © IOM 2014

http://www.newvision.co.ug/new_vision/news/1341469/suspected-terrorists-enter-uganda-police

http://www.newvision.co.ug/new_vision/news/1341469/suspected-terrorists-enter-uganda-police


Thepassport-issuingofficeissetbehindirongatesandtwosetsoflockeddoors.Theissuingprocessissecureandcompliantwithinternationalstandards.

Theofficeneedsfilingcabinetsandstoragefacilitiesasfilesarecurrentlystackedonthefloor.

Recommendations

• Urgent arrangements should be made for the secure transportation of blank passports fromKampala.

• Theregionalofficerequiresitsownvehicle.

• The regional office should have delegatedauthority to carry out field visits on behalf ofheadquarters; currently, officers are dispatchedfrom Kampala. This would enable Kampala officerstobedeployedmoreefficiently.

• Theregionalofficeshouldhaveanenforcementcapability. Currently, officers are sent fromKampala to deal with irregular migrants.

• The structure in Kampala should be reflectedin the regions with all regional offices beingmandated to issue passports, work permits and visaextensions.

• Supplyoffilingcabinetsandstoragefacilities.

13. Malaba in Tororo District

MalabaisalargeBCPontheRiverMalaba,whichistheborderwithKenya.IthasbeendesignatedasanOSBP,andconstructionoftheOSBPbuildingiswelladvanced.

MalabaisoneofUganda’sbusiestBCPsprocessingapproximately700peopleandclearing1,500cargoperday.Over75percentofallcargotoenterUgandatravelsthroughMalaba.Additionally,65percentofcargointransittoothercountries,suchasBurundi,RwandaandSouthSudanisprocessedthroughMalaba.

TheoperationatMalabaisimpressiveandworkswelldespitethedisruptioncausedbytheongoingOSBPconstruction.Staffcomplaintsandobservationswereminimalandmainlyconcerninglowstaffinglevelsand the need for improved training.

Staffing

• Immigration:7officersproving24/7cover.ThisprovidestheminimumcoverandmeansthattheyrelyontheotheragenciestoprovidecoverawayfromtheImmigrationOffice,suchasindealingwith illegal entry.

• Customs:48officersdeployedinthreeshiftstoprovide24/7coverplusadditionalshiftscovering6.00p.m.to6.00p.m.Customsestimatethatoptimumstaffinglevelsis65.

• Police:104officersproviding24/7cover.

Other agencies present at the border are the security agencies and army.

SecuritygateinMbaleoffice.©IOM2014

Annexes94

Operations

The Immigration Office has three window workstations, which all have PISCES and basic forgeryequipment.

Themainproblemareasareforgeddocuments,illegalentry,humantraffickingandhumansmuggling.Additionally,theborderisporouswithseveralunofficialcrossingpointsacrosstheriver.

Blank visa stickers are collected fromKampala by an officer using public transport,which hasmajorsecurityimplications.

The Police have four motorcycles to patrol the border, the rest of the patrols being conducted on foot.

Joint working

Therearegoodexamplesofjointworkingincludingjointoperations.However,Immigrationparticipationislimitedduetostaffingconstraints.

Recommendations

• Provisionofofficialtransporttoenablethesecurecollectionofblankvisastickers.

• Multi-agencytraininginhumantrafficking,intelligencegathering,riskassessmentandprofiling.

• Additionalforgeryequipmentandtraining.

• Carbondioxideprobestoenableexaminationofheavygoodvehicles.

• Bombdetectionequipmentandtraining

• TrainingonINTERPOLprocesses.ThereisonlyoneINTERPOLofficerpostedtoMalaba,resultinginno cover if he is absent or on leave.

• Fullyequippedsurveillancevehicle.

Malaba BCP. © IOM 2014


Annex 5. DCIC organizational chart

Annexes96

Annex 6. Full list of relevant international treaties and conventions signed/ratified by Uganda

Name of treaty/ convention Adherence date Commentary (including relevant reservations,

derogations and declarations)

Internationalhumanitarianlaw

Membership to the United Nations

25 October 1962

GenevaConventionsI,II,III and IV 1949

18 May 1964 Includefourtreatiesandthreeadditionalprotocolsthat establish the standards of international lawfor the humanitarian treatment of war

AdditionalProtocolI1977 13 March 1991

AdditionalProtocolII1977 13 March 1991

AdditionalProtocolIII2005

21 May 2008

EnvironmentalModification(ENMOD)Convention1976

18 May 1977 Convention on the prohibition of military orany hostile use of environmental modificationtechniques

Internationalhumanrightlaw

ICERD1965 21 November 1980 InternationalConventionontheEliminationofAllFormsofRacialDiscrimination

ICCPR1966 21 January 1987 InternationalCovenantonCivilandPoliticalRights

ICCPRop11966 14 November 1995 Reservation:Article5

“The Republic of Uganda does not accept thecompetence of the Human Rights Committee toconsider a communication under the provisionsofarticle5paragraph2 froman individual if thematter in question has already been consideredunder another procedure of internationalinvestigationorsettlement.”

ICESCR1966 21 June 1995 International Covenant on Economic, Social andCulturalRights

CEDAW1979 22 July 1985 Convention on the Elimination of All Forms ofDiscriminationagainstWomen

CAT 1984 3 November 1986 United Nations Convention against Torture andOther Cruel, Inhuman or Degrading Treatment

CRC1990 17 August 1990 United Nations Convention on the Rights of theChildandChildRights


CRCOptionalProtocolArmedConflict2000

6 May 2002 Declaration:

“TheGovernmentoftheRepublicofUgandadeclares that the minimum age for the recruitment of persons into the armed forces is bylawsetateighteen(18)years.Recruitmentisentirelyandsquarelyvoluntaryandiscarriedout with the full informed consent of the persons beingrecruited.”ThereisnoconscriptioninUganda. The Government of Uganda reserves therightatanytimebymeansofanotificationaddressedtotheSecretary-GeneraloftheUnitedNations,toadd,amendorstrengthenthepresentdeclaration.SuchnotificationsshalltakeeffectfromthedateoftheirreceiptbytheSecretary-GeneraloftheUnitedNations.

Refugees

RefugeeConvention1951 27 September 1976 ItispartoftheotherlegaltextsonthesametopicCf.National“NationalBillsandActs”Table.

RefugeeProtocol1967 27 September 1976 ItispartoftheotherlegaltextsonthesametopicCf.National“NationalBillsandActs”Table.

“The Government of the Republic of Uganda declares that the minimum age for the recruitment of persons into the armed forces is by law set at eighteen (18) years. Recruitment is entirely and squarely voluntary and is carried out with the full informed consent of the persons being recruited.” There is no conscription in Uganda. The Government of Uganda reserves the right at any time by means of a notification addressed to the Secretary-General of the United Nations, to add, amend or strengthen the present declaration. Such notifications shall take effect from the date of their receipt by the Secretary-General of the United Nations.

International Organization for Migration17 route des Morillons, P.O. Box 17, 1211 Geneva 19, Switzerland

Tel.: +41 22 717 9111 • Fax: +41 22 798 6150E-mail: [email protected] • Website: www.iom.int

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