ACFIM: Campaign finance monitoring Uganda

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i

MONITORING CAMPAIGN EXPENSES DURING

THE PRE-ELECTION PERIOD

PROGRESS REPORT

NOVEMBER – DECEMBER 2015



ii

ACFIM MEMBER ORGANISATIONS



iii

TABLE OF CONTENTS

LIST OF TABLES ............................................................................................................................................. iv

LIST OF FIGURES ............................................................................................................................................ v

ABBREVIATIONS ........................................................................................................................................... vi

Background ................................................................................................................................................... 1

Methodology ................................................................................................................................................. 1

Poor Record Keeping ..................................................................................................................................... 2

MINIMUM EXPENSES OF POLITICAL PARTIES ............................................................................................... 2

Assessment of Minimum Expenses by Party ............................................................................................ 4

Increase in Party Expenses ............................................................................................................................ 7

Minimum Amounts Spent by District........................................................................................................ 8

Expenses of Presidential Candidates in November and December ........................................................ 10

Observed Expenditure Variations ............................................................................................................... 14

CAMPAIGN ADMINISTRATION EXPENSES ............................................................................................... 16

TRANSPORT EXPENSES ................................................................................................................................ 18

Analysis of Transport Expenditure Trends .............................................................................................. 19

Expenditure on Event/Rally/Consultative Meetings Expenses ............................................................... 20

Analysis of Expenditure on Campaign Rallies ......................................................................................... 21

Expenditure on Campaign Materials ...................................................................................................... 22

Analysis of Campaign Materials Expenditure ......................................................................................... 23

Electronic and Print Media Expenses ...................................................................................................... 24

Expenses on Journalists by Presidential Candidate (Nov & Dec) ............................................................ 25

Analysis of Expenditure on Media .......................................................................................................... 26

Expenses on Handout Materials ............................................................................................................. 27

Analysis of Expenditure on Handout Materials ...................................................................................... 31

Donations, Fundraising/Vote Buying & Misuse of State Resources ....................................................... 33

Nexus between Voter Tourism, Voter Hospitality and Voter Bribery .................................................... 37

Misuse of Government Resources .......................................................................................................... 38

RECOMMENDATIONS ................................................................................................................................. 42

APPENDIX I .................................................................................................................................................. 43

APPENDIX II ................................................................................................................................................. 45

APPENDIX III ................................................................................................................................................ 47

APPENDIX IV ................................................................................................................................................ 48



iv

LIST OF TABLES

Table 1: Amount Spent by All Parties & Candidates per Month (Nov-Dec) ................................................. 2

Table 2: Minimum Expenses by Party & Party Members (November & December 2015) ........................... 5

Table 3: Total Amount Spent by Candidates/Parties per District (Nov-Dec) ................................................ 8

Table 4: Amount Spent by Presidential Candidates in November & December ........................................ 10

Table 5: Average Campaign Admin Expenses for Nov-Dec per Parliamentary Candidate ......................... 16

Table 6: Expenses on Means of Transport Used to Arrive at Rally/Event (Nov-Dec) ................................. 18

Table 7: Event/Rally/Consultative Meetings Expenses for Nov-Dec (%) .................................................... 20

Table 8: Campaign Materials Expenses for November & December .......................................................... 22

Table 9: Electronic and Print Media Expenses for November & December ............................................... 24

Table 10: Handout Materials Expenses in November & December ........................................................... 27

Table 11: Examples of Materials Handed Out During Campaigns .............................................................. 32

Table 12: Donations & Fundraising/Vote Buying for November-December .............................................. 33

Table 13: Examples of Donations During Campaigns ................................................................................. 34

Table 14: Examples of Misuse of State Resources ...................................................................................... 40

Table 15: NRM Party Minimum Expenses by November 2015 ................................................................... 43

Table 16: SUMMARY of NRM Party Minimum Expenses by November 2015 ............................................ 45

Table 17: FDC Party Minimum Expenses by November 2015 ..................................................................... 47

Table 18: Amama Mbabazi Minimum Expenses in WestNile ..................................................................... 48



v

LIST OF FIGURES

Figure 1: Amount Spent by All Parties & Candidates per Month (Nov-Dec) ................................................ 3

Figure 2: Minimum Expenses by Party & Party Members (November & December 2015) ......................... 5

Figure 3: % Change in Expenses by Party & Party Members (November & December) .............................. 6

Figure 4: Total Amount Spent by Candidates/Parties per District (Nov-Dec) ............................................... 9

Figure 5: % Increase in Amount Spent by Candidates/Parties per District ................................................. 10

Figure 6: Amount Spent by Presidential Candidates in November & December ....................................... 11

Figure 7: % Change in Expenses by Presidential Candidates in November & December ........................... 15

Figure 8: Campaign Administration Expenses for November and December ............................................ 17

Figure 9: Percentage Change in Administration Expenses for November and December ......................... 18

Figure 10: Use of Means of Transport Used to Arrive at Rally/Event (November & Dec) .......................... 19

Figure 11: % Change in Expenses on Means of Transport Used (Nov-Dec) ................................................ 20

Figure 12: Event/Rally/Consultative Meetings Expenses for Nov-Dec (%) ................................................. 21

Figure 13: Event/Rally/Consultative Meetings Expenses for Nov-Dec (%) ................................................. 22

Figure 14: Campaign Materials Expenses for November & December ...................................................... 23

Figure 16: Overall Campaign Materials Expenses (Nov-Dec) ...................................................................... 24

Figure 17: Electronic and Print Media Expenses for November & December ............................................ 25

Figure 18: % Change in Electronic and Print Media Expenses for November & December ....................... 27

Figure 19: Handout Materials Expenses in November & December .......................................................... 28

Figure 20: % Increase in Expenses on Handout Materials in November & December ............................... 31

Figure 21: Donations & Fundraising/Vote Buying forNovember-December .............................................. 33

Figure 22: SUMMARY of NRM Party Minimum Expenses by November 2015 ........................................... 46



vi

ABBREVIATIONS

ACCOB Anti-Corruption Coalition of Busoga

ACCU Anti-Corruption Coalition Uganda

ACFIM Alliance for Campaign Finance Monitoring

CEON Citizens Election Observers Network

CEPDA Citizens Platform for Democracy and Accountability

CODI Community Development and Children Welfare Initiatives

DGF Democratic Governance Facility

DP Democratic Party

FABIO First African Bicycle Organisation

FDC Forum for Democratic Change

KICK Kick Corruption out of Kigezi

MACCO MAYANK Anti-Corruption Coalition

MIRAC Midwestern Uganda Anti-Corruption Coalition

MONARLIP Moroto Nakapiripirit Religious Leaders’ Initiative for Peace

NRM National Resistance Movement

NDI National Democratic Institute

NTF Native Travel Festival

NUAC Northern Uganda Anti-Corruption Coalition

RAC Rwenzori Anti-Corruption Coalition

SMS Short Message Service

TAACC The Apac Anti-Corruption Coalition

TAC Teso Anti-Corruption Coalition

TIU Transparency International Uganda

UGX Uganda Shillings

UPC Uganda Peoples’ Congress

WACSOF Western Ankole Civil Society Forum



1

Background

Monitoring the expenditure of candidates for presidential and Member of Parliament races

during the pre-election period is one of the many aspects that civil society is observing in the pre-

election period. Alliance for Campaign Finance Monitoring (ACFIM) is the specialized body of civil

society organisations that are conducting this initiative as an extended study to come up with

credible estimates of how much political parties and individual candidates spend on election

campaigns; document how money is used in campaign and the extent to which it influences

election outcomes. The study further interrogates how budget funds are used or misused in

election campaigns. Access to credible information about use of money in election campaigns in

Uganda is critical to developing national interventions that will among other things equalize the

conditions for political competition. Reforms in electoral and political financing will benefit

tremendously from information collected and shared by ACFIM.

We leverage the presence of 65 locally recruited campaign finance monitors that are using their

familiarity with the local context and situational awareness to gather data. This data is analysed

and to show the extent to which money influences political campaigns and election outcomes.

The data is collected from 16 districts namely: Kampala, Luweero, Masaka, Jinja, Iganga, Kabale,

Kanungu, Bushenyi, Kabarole, Hoima, Arua, Nwoya, Lira, Apac, Katakwi and Moroto. As ACFIM

we strongly believe that unregulated use of money in election campaigns is one of the main

causes of commercialization of politics, a problem that will require Ugandans from all walks of

life to take action to reduce it.

Methodology

The 16 districts covered under the scope of ACFIM comprise a total of 74 constituencies

representing 14.4% of the whole country. The data reported does provide an indication of

emerging trends that give a clear indication of happenings and changes in voting behavior in

major geographical regions. ACFIM monitors use scientific tools to collect data on campaign

expenses of political parties and candidates, voter bribery and misuse of government

administrative resources for campaigns at constituency level. Filled campaign expenses tools are

submitted to district supervisors who keep moving from constituency to constituency for data

quality assurance. There is a team of experts at ACFIM secretariat that frequently carries out data

quality control checks across the 16 districts. Collected data is entered into a web-based

database. During the reporting period, monitors submit data on campaign events and

incidents/happenings they have observed directly and indirectly. Critical incidences are

transmitted to supervisors in real time by the use of phone calls or Short Message Service text

messaging.



2

Key Findings

Poor Record Keeping

Political parties and candidates participating in the campaigns for the 2016 general elections are

poor at keeping record of expenditure incurred on campaign trail. ACFIM Researchers report that

the campaign finance management systems of participating political parties and candidates are

by and large rudimentary. The absence of legal requirement for disclosure of campaign income

and expenditure makes harder the task of capturing and verifying all data collected. The

information presented by ACFIM in this report should be understood in terms of credible

minimums of campaign expenditure.

MINIMUM EXPENSES OF POLITICAL PARTIES

The minimum amount of money observed to have been spent by parties and their flag bearers in

the observed districts was UGX 49.6 billion in November and 88.1 billion in December

representing an increase of 77% over the two months. This increase is largely attributed to the

commencement of member or parliament campaigns having been nominated on the 3rd and 4th

of December 2015. Nomination days for members of parliament were characterized with

profligate expenditure as candidates were eager to announce their presence or arrival on thepolitical scene. ACFIM observers reported use of motorcades, bodabodas cyclists, entertainers;

and provided transport refund, food and drinks for supporters that accompanied them to

nomination and attended the nomination rallies.

Table 1: Amount Spent by All Parties & Candidates per Month (Nov-Dec)

Month AMOUNT SPENT % OF TOTAL % CHANGE

November 49,625,169,000 36.0

December 88,063,034,700 64.0 1.77

TOTAL 137,688,203,700 100.0

Source: ACFIM Database



3

Figure 1: Amount Spent by Parties & Candidates in November and December

Some of the highlights for nomination day for Members of Parliament

Caption: Bodaboda cyclists hired by a number of candidates to add pomp to their processionson nomination day.

49,625,169,000

88,063,034,700

AMOUNT SPENT BY MONTH (UGX)

November

December



4

Caption: Nomination day for Member of Parliament candidates in Luweero district: Above left is a state

of the art platform build by independent candidate Patricia Magara of Katikamu South constituency.

Caption: The coaches, minibuses and wagons that escorted MP candidate Salongo Alfred Muwanga that

on nominmtion day in Luwero District. Nominations were awash with the pomp that money could buy.

Assessment of Minimum Expenses by Party

According to ACFIM observers, the National Resistance Movement (NRM) party candidates are

leading by far terms of campaign spending. The party accounts for 87% of the total minimum

observed expenditures reported by ACFIM Research Assistants/Observers in the months of

November and December. NRM is trailed by Independent Candidates who have spent 7.9%, FDC

(2.1%), Go Forward political group (1.1%), DP (0.5%), UPC (0.3%) and other parties (0.3%).



5

Table 2: Minimum Expenses by Party & Party Members (November & December 2015)

PARTY NOVEMBER DECEMBER % of TOTAL % Change

NRM 44,413,292,000 76,589,135,000 87.9 +72

INDEPENDENTS 2,327,800,000 8,529,394,000 7.9 +266

FDC 1,293,965,000 1,612,253,000 2.1 +25

GO FORWARD 849,120,000 649,785,700 1.1 -23

DP 429,480,000 224,383,000 0.5 -48

UPC 184,342,000 228,257,000 0.3 +24

OTHERS 127,170,000 229,827,000 0.3 +81

TOTAL 49,625,169,000 88,063,034,700 100.0 +77

Figure 2: Minimum Expenses by Party & Party Members (November & December 2015)

0

10,000,000,000

20,000,000,000

30,000,000,000

40,000,000,000

50,000,000,000

60,000,000,000

70,000,000,000

80,000,000,000

90,000,000,000

E X P S E N S E I N

U G . S H S

PARTY

Minimum Expenses by Party/Candidates

NOVEMBER

DECEMBER



6

NRM Party Minimum Expenses May – October 2015

Table 3: NRM Party Expenses June – December 2015

Expense Category

Observable

Minimum Cost

1Per village to reactivate NRM villagestructures 15,000,000,000

2

Delegates Conference - constitutional

amendment 19,000,000,000

3

2nd Delegates Conference to elect Party

Flag Bearer 20,000,000,000

4

Money to NRM MPs to popularise sole

candidature 6,000,000,000

5 "Posh Cars" for Party Officials 10,000,000,000

6 Party Primary Elections 30,000,000,000

TOTAL 100,000,000,000

Sources: Office of Chairperson NRM Electoral Commission, key

informant interviews, media reports.

FDC Party Minimum Expenses June – December 2015

Table 4: FDC Party Expenses June – December 2015

Expense CategoryTotalMinimums

(UGX)

1 Party Delegates Conference at UMA 200,000,000

22nd Party Delegates Conference for Pres. Frag Bearer elections

at Nambole210,000,000

3 Contribution to TDA 50,000,000

4 Fuel on Campaign Trail @ 900,000 54,000,000

5 Kizza Besigye Posters 120,000,000

9Hire of sound system for entire campaign period of 60 days

(November & December) @700,000 per day 42,000,000

10 Mobilisation and Coordination @ 550,000 per district 20,000,000

11 Radio Talk Shows 15,000,000

12 Reimbursement of Nomination fees to 267 MP flag bearers801,000,000

TOTAL 1,512,000,000

Source: Office of the Secretary General, FDC



7

The graphic representation below shows that the minimum expenses that were incurred by the NRM

party in five months (May – October 2015) before nominations for presidential candidates, is over 66

times more than what the strongest opposition party FDC has spent in seven month (May – December

2015).

Figure 3: Comparison between NRM Party and FDC Party Spending

Increase in Party Expenses

ACFIM Results further show that generally most political parties have increased their expenses

from the months of November to December to the overall tune of 77%. The only exceptions are

Democratic Party (DP) and Go Forward political group both of which saw a decline in their

expenditure by 48% and 23% respectively. The highest increase is in expenditure is by

Independent Candidates in the MP races with an increase of 266%, followed by the NRM party

flag bearers with a 72% increase, FDC with a 25% increase and UPC with a 24% increase. Also

other parties saw an increase in the expenditure by 81% over the periods of November to

December 2015.

0

20,000,000,000

40,000,000,000

60,000,000,000

80,000,000,000

100,000,000,000

NRM (May - Oct. 2015 FDC (May - Dec.2015

Comparison in Expenditure Between NRM and FDC



8

Figure 4: % Change in Expenses by Party & Party Members (November & December)

Minimum Amounts Spent by District

According to ACFIM observer reports, most of the expenditure by Candidates/Parties in both

November & December was in Kampala District (26.5%), followed by Luweero District (17.0%),Masaka District (9.4%) and at 6.9% the districts of Iganga and Jinja. The least expenditure was in

the districts of Hoima, Nwoya, Lira, Kabarole and Kanungu each with less than 3% of the total

expenditure in the 2 months.

Table 5: Total Amount Spent by Candidates/Parties per District (Nov-Dec)

District NOVEMBER DECEMBER % of Total % Change

KAMPALA 13,609,018,000 22,859,128,000 26.5 68.0

LUWEERO 8,874,592,000 14,599,592,500 17.0 64.5

MASAKA 4,417,323,100 8,491,767,000 9.4 92.2

IGANGA 3,320,783,000 6,153,370,900 6.9 85.3

JINJA 3,296,972,800 6,241,036,000 6.9 89.3

BUSHENYI 2,975,282,000 5,593,768,000 6.2 88.0

KATAKWI 2,283,512,000 4,263,801,000 4.8 86.7

ARUA 2,130,552,200 3,721,684,000 4.3 74.7

LIRA 1,675,587,000 2,322,366,200 2.9 38.6

(100)

(50)

-

50

100

150

200

250

300

% I N C R E A S E / D E C R E A S E

PARTY/ PRESSURE GROUP

Minimum Expenses (Nov-Dec 2015)



10

Figure 6: % Increase in Amount Spent by Candidates/Parties per District

Expenses of Presidential Candidates in November and December

Analysis of data gathered and recorded in the ACFIM database shows that for the months of

November and December, the candidate Yoweri Museveni accounts for majority of the total

minimum expenditure with 91.6% of the total minimum expenses recorded. Candidate Museveni

is followed by Amama Mbabazi whose expenditure accounts for 4.6% and Kizza Besigye (3.3%).

The rest of the candidates spent less than 1.0% combined.

Table 6: Amount Spent by Presidential Candidates in November & December

PRESIDENTIALCANDIDATE NOVEMBER DECEMBER

% ofTotal % CHANGE

Yoweri Kaguta Museveni 4,897,716,000 22,252,640,000 91.61 +354

Amama Mbabazi 849,123,000 498,237,000 4.55 -41

Kiiza Besigye 129,556,500 847,103,000 3.30 +554

Baryamureba Venansius 31,402,000 64,330,000 0.32 +105

Abed Bwanika 14,532,000 19,779,000 0.12 +36

- 20.0

40.0

60.0

80.0

100.0

120.0

140.0

160.0

180.0

% I N C R E A S E

DISTRICTS

Percentage Increase/Decrease in Expenditure

(Amount Spent in Nov-Dec)



11

Mabirizi Joseph 11,571,000 14,915,000 0.09 +29

Maureen Faith Kyalya 3,709,500 1,983,000 0.02 -47

TOTAL 5,937,610,000 23,698,987,000 100.00 +299

Figure 7: Amount Spent by Presidential Candidates in November & December

-

5,000,000,000

10,000,000,000

15,000,000,000

20,000,000,000

25,000,000,000

A

M

O

U

NT

S

P

E

N

T

CANDIDATES

Pres. Cand. Expenses Nov-Dec 2015

NOVEMBER

DECEMBER



20

Figure 12: % Change in Expenses on Means of Transport Used (Nov-Dec)

Expenditure on Event/Rally/Consultative Meetings Expenses

In the months of November and December, Donations by Candidates was the biggest expense

during event/rally/consultative meetings with 44.2% of the total, followed by physical cash to

voters/agents (30.8%) and then Transport Refund to Event Attendees (10.6%). The least expenses

during event/rally/consultative meetings were Ambulance (0.2%), Alcohol (0.2%) and Venue

(0.4%).

Table 9: Event/Rally/Consultative Meetings Expenses for Nov-Dec (%)

Resource/Expense

TOTAL for November

& December

%

Expenses

% CHANGE

(Nov-Dec)

Donation by Candidate 4,546,895,000 44.2 828

Cash to Voters & Agents 3,168,958,000 30.8 801

Transport refunds to Event Attendees 1,093,194,000 10.6 258

Public Address 410,333,000 4.0 -20

Food 365,507,000 3.6 163

Musicians/Entertainment 193,135,000 1.9 57

- 50 100 150 200 250 300 350

Bus (es)

Cars

Coaster (s)

Van/Taxi/Matatu

Boda-Bodas

Trucks/Lorries

Pick-ups

Helicopter

Other Transport Means

PERCENTAGE INCREASE IN TRANSPORT MEANS EXPENSES

T R A N S P O R T M E A N S U S E D

% Change in Transport Means Expenses for

Campaigns



25

SMS Blasts 3,635,000 7,140,000 1 96

Robbo calls 1,250,000 3,250,000 1 160

TOTAL MINIMUMS 166,501,000 653,603,000 100 293

Figure 5: Electronic and Print Media Expenses for November & December

Expenses on Journalists by Presidential Candidate (Nov & Dec)

Reports from ACFIM Research Assistants show that candidate Yoweri Museveni outstrips his competitors

in terms of expenditure on facilitation of Journalists on campaign trail. Observers report that candidate

Yoweri Museveni has a team on 20 local journalists (electronic and print) that are covering his campaign

trail, each of these journalists receives daily upkeep (per diem and incidentals) of UGX 150,000 from the

candidate’s campaign coordination team. In addition when the candidate conducts regional press

conferences, the facilitation for journalists attending the press conference rises to UGX 500,000 and about50 journalists can be in attendance (i.e. the 20 on campaign trail are joined by 20-30 others from the

region). Journalists on candidate Amama Mbabazi campaign trail get up a reported minimum of UGX

40,000 while journalists covering candidate Kizza Besigye and others get much less or nothing.

40%

22%

16%

18%

2%1%

1%

Electronic & Print Media

Talk Shows

Radio Adverts/Jingles

Print media

Facilitation for Journalists

DJ Mentions

SMS Blasts

Robbo calls



29

Caption: Boxes of Mukwano soap source pans and other items awaiting distribution to supporters of

incumbent Katikamu North MP Abraham Byandaala in Luweero district.



30

Caption: Plastic chairs and NASECO maize seeds donated by incumbent Member of Parliament

for Bukoto Central in Masaka District and incumbent Vice President Edward Kiwanuka Sekandi.

Caption: Mama Kit donated by incumbent Member of Parliament for Jinja Municipality East Constituency



31

Analysis of Expenditure on Handout Materials

On average, minimum expenses on handout materials increased by 165% between the months

of November and December. The biggest increase was in expenses for Seeds (1069%), followed

by Salt at 250% then Food at 154%.

Figure 21: % Increase in Expenses on Handout Materials in November & December

Branded Mineral Water Bottles for some Candidates

247

254

244

207

350

1169

166

% Increase in Expenses on Material Items

(Nov-Dec)

Hoes

Food

Sugar

Saurce pans

Salt

Seeds

Others



34

Table 15: Examples of Donations in November and December 2015

EXAMPLES OF DONATIONS DURING CAMPAIGNSDistrict Parish/Village Date Organization Party Donation Total Estimate

APAC Awiri, Awiri 9/7/2015 Church UPC Cement 2,250,000

Ayumi London 9/23/2015 St. Peters Catholic Church NRM Cement 40 Bags

ARUA Kenya, Club Village 12/11/2015 Fundraising Go Forward Cash 1,000,000

Okollo Trading Centre 12/15/2015 Appreciation of Supporters Independent Cash 300,000

BUSHENYI Ryeishe, Kitabi 12/14/2015 Kitabi Women Group Independent Cash 100,000

Kibaare 10/22/2015 Bwooma Women Group NRM Cash 1,500,000

HOIMA Kidoma, Nyabunyira 10/26/2015 Tugende Omumaiso NRM Cash 400,000

Kyamukenda 10/10/2015 Kitana Catholic Church NRM Cash 300,000

IGANGA Bulowoza 9/20/2015 Kasolo Women Group NRM Cash 300,000

Buwabe 9/16/2015 Community NRM Cash 1,000,000

JINJA Mafumbira/Wairaka 9/22/2015 Pregnant Women NRM Mama Kits 100 Kits

Nabitambala 9/24/2015 Farmers NRM Maize Seeds 14,000,000

KABALE Central Ward 10/25/2015 All Saints Church NRM Cash 100,000

Rutengye, Kazooha 10/24/2015 Kashambya Parents P. S FDC Cash 1,000,000

KABAROLE Bazaar, Public Library 10/2/2015 Njara Church Of Uganda NRM Cash 1,000,000

KANUNGU Bugongi 10/21/2015 Namunye Mosque NRM Cash 1,000,000

Katete 10/20/2015 Kirima Community S S NRM Bursaries 1,000,000

KATAKWI Northern Ward,Katanga 9/20/2015 St Steven Catholic Church NRM Cash 10,000,000

Ongongoja, Akwamor 10/10/2015 Akwamor Village NRM Iron Sheets 3,640,000

LUWEERO Wobulenzi 11/23/2015 Kwagalana Women Group Independent Iron Sheets 2,000,000

Kasana Kisaawe 11/9/2015 Healthy Centre 5 NRM Cash 2,500,000

MASAKA Kyabakuza A 9/20/2015 Kyabakuza Catholic Parish DP Cash 1,000,000

Kamuzinda, Bukunda 11/1/2015 Teachers Day DP Beddings 880,000

Kimanya, Kigamba 10/23/2015 St Lucia NRM Desks 2,000,000

NWOYA Anaka Town Council 9/26/2015 Community, Hospital NRM

Ambulance, Basins

& Boreholes 102,200,000



36

Caption: Candidate Yoweri Museveni has 12 yellow buses on campaign trail. ACFIM observers have

reported that these buses have been used to transport voters to campaign events of the NRM

presidential candidate a clear example of voter tourism. Voter tourism is prevalent.



37

Some of the Examples of Voter Hospitality

Caption: Food being prepared at a campaign event in Bukalasa for supporters of independent

candidate Patricia Magara – one of the contestants in the race for Katikamu South Member of

Parliament – Luweero District.

Nexus between Voter Tourism, Voter Hospitality and Voter Bribery

Political candidates that have been observed to engage in campaign tactics like voter tourism and voter

hospitality in November and December, do not do so because they are generous, but because they expect

recipients to return the favour. The timing of these offers in the middle of an election campaign and the nature

of intended beneficiaries for this generosity is clear manifestation that the aim is to induce voters in return

for their support on February 18th, 2016. This clearly is voter bribery.

Voter Bribery

Reports submitted by ACFIM Research Assistants/Observers show that voter bribery remained

prevalent in all 16 districts with all candidates across political parties, political groups and

independents being suspects of complicity. The Presidential Elections Act (as amended) 2005

[section 64] and Parliamentary Elections Act (as amended) 2005 [section 68] , define voter bribery as

an act where political candidates offer money or gifts to another person to either directly or indirectly



38

influence someone to vote or not to vote in a particular way. Based on this premise ACFIM members

argue that offering donations in cash or kind, handout materials, cash, voter tourism or generosity

that manifests in what ACFIM calls voter hospitality are all intended to influence voters to vote for

the particular candidates that have provided the inducements. This should be understood as forms

of voter bribery and must be condemned without qualification. Relevant government institutionsand should investigate and sanction political candidates and their agents that engage in these

practices.

Misuse of Government Resources

Section 27 of the Presidential Elections Act (as amended) 2005 makes it illegal for any candidate to

use government resources for the purpose of campaigning for election. ACFIM observers reported

mainly incidents of misuse of government vehicles to transport voters to campaign rallies/events. On

the 9th of November 2015 a number of government vehicles were used on candidate Museveni’s rally

held at Kasana Play Ground. Some of the vehicle registration plates observed in action at the rally

include: UG2183C, UG 0178H, UG1427W, UG 0187D, UG 2688D, UG 2183C, UG 2043C, UG 2405C.

UG 1832S, UG1768C. Observers in Katikamu report that on the same day government vehicle number

UG 2708R was used to transport supporters to Kasana playground.

Caption: Office of the President van was observed being used to ferry people to attend the NRM

flag bearer‘s rally in Jinja district . This is in breach of the legal provisions against use of government

resources for campaigns.



39

Similarly on December 3rd 2015 dependent candidate for Katikamu South Member of Parliament

Patricia Magara was observed using a bus with government number plates to ferry campaign

attendees from different sub counties to her nomination rally in Bulakasa.

Caption: Bus used by independent candidate Katikamu South, Luweero District, Patricia Magara to

transport attendees to her first rally at Bukalasa after being successfully nominated in Luweero.

ACFIM observers report that the bus had been picking campaign event attendees from Wobulenzi,

Bombo, Nyimbwa and other villages to Bukalasa all day. Patricia is a daughter to the late bush war

veteran Sam Magara. Here the bus was pictured at the venue of her nomination rally at Bukalasa.

This is blatant misuse of government resources for campaigns a violation of section 27 (1) of the

Presidential Elections Act 2005.



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Paradigm Shift inUganda’s Campaign Financing Culture

ACFIM observers in all 15 districts report that the norm of political candidates offering inducements in

cash and/or kind to voters in return for their support come polling day was prevalent in November and

December. It can be argued that this practice epitomizes Uganda’s political culture. ACFIM has noted that

since July 2015 some political parties and many political candidates have spent unprecedented andunsustainable amounts of money on things and services that are clearly intended to induce citizens to

support their candidature. This largely accounts for the growing levels of commercialization of politics

that stands as a major bottleneck to the country’s democratization process. That notwithstanding ACFIM

Observers are reporting an increase number of citizens that have been observed to make financial and in-

kind contribution towards the campaign expenses of presidential candidate Kizza Besigye. FDC Secretary

General Hon. Nathan Nandala Mafabi revealed that candidate Besigye has been collecting an average of

UGX 1.5million every day from supporters in different districts/constituencies visited thus far. This trend

has now trickled down to parliamentary candidates. ACFIM observers in Iganga Municipality reported that

FDC flag bearer in the race for Member of Parliament Mudyobole Nasser while at a campaign rally in

Kasokoso, Iganga Municipality, was observed receiving financial and in-kind contributions from some ofthe citizens that came to his rally. This is a paradigm shift in Uganda’s political culture that should

necessarily be encouraged because it is critical to restoring political accountability to the citizens.

Caption: The campaign trail of candidate Kizza Besigye has been characterized with images like

this where citizens donate money towards his campaign expenses. ACFIM observers in Bushenyi

District reported that on Sunday the 20th of December 2015, candidate Kizza Besigye (pictured

above) attended mass at St Kagwa Parish church and later a service at All Saints Church where

Christians in both churches made total cash contributions of UGX 1.2million for FDC presidential

candidate.



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RECOMMENDATIONS

ACFIM strongly recommends the following to happen:

1. Relevant government institutions namely the Electoral Commission, the Police and

Inspectorate of Government should consider investigating further the breaches in

electoral laws on voter bribery and misuse of government resources for campaigns that

have been exposed in this report. Once brought to the attention the office of the Director

Public Prosecutions, prosecutors must take the cases seriously and bring them to court

expeditiously.

2. Government through the ministry of justice and constitutional affairs should consider

amending legal provisions on voter bribery in the Presidential Elections Act 2005 and

Parliamentary Elections Act 2005 to strengthen punishments against voter bribery. In

addition voter bribery should be redefined to include all actions that are aimed at

inducing or influencing citizens to vote for particular candidates as revealed in this report.

Practices like donations, handout materials, cash handouts, voter-tourism and voter-

hospitality among others are clearly given to induce/bribe voters. These should be

qualified as acts of voter bribery. Candidates convicted of voter bribery should be banned

from contesting any elections for at least five years. Uganda needs a specific law to

regulate campaign financing.

3. Ugandans from all walks of life including religious leaders, cultural leaders, the academia,

civil society organisations, faith based organisations and the media among others should

take collective action to curb commercialization of politics. Specifically we need to change

people perceptions on vote buying/selling and encourage a culture where citizens stop

demanding for inducements from political candidates. The practice of ordinary citizens

making donations towards political candidates during campaigns should be strongly

encouraged.



44

65 packs of yellow T-shirts each containing 48 pieces valued at 8,000/= each 24,960,000

Compensation to BCU farmers' arrears out of the 9bn demanded 4,000,000,000

Fuel for 2 media vans per day 24,000,000

Fuel (full tank) for 12 Coasters per day 72,000,000

Allowance for 500 SFC men and women 20,000 per day for 30 days 300,000,000Facilitation for at least 40 Journalists on 6 regional press conferences in Lango, W.Nile,

Gulu, Karamoja, Kapchorwa and Soroti: 500,000/= per person 120,000,000

TOTAL MINIMUM 125,219,922,000



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Figure 23: SUMMARY of NRM Party Minimum Expenses by November 2015

0 10,000,000,000 20,000,000,000 30,000,000,000

Party Primary Elections

2nd Delegates Conference to elect Party Flag Bearer October 30-

November 2nd

Delegates Conference that confirmed Pres. Sole candidates and

amendin the constitution to make SC position appointive

Yellow T-Shirts

Money advanced per village to reactivate NRM village structures

"Posh Cars" for Party Officials

Money received by NRM MPs to popularise sole candidature of

Pres. Museveni

Compensation to BCU farmers' arrears out of the 9bn demanded

Outdoor Advertising

Media Advertising

Other Expenses

AMOUNT IN UGANDA SHILLINGS

M A J O R E X P E N S E S

Summary of NRM Major Expenses by November 2015



47

APPENDIX III

Table 19: FDC Party Minimum Expenses by November 2015

EXPENSEMINIMUM TOTAL

EXPENDITURE

1 Party Delegates Conference at UMA 200,000,000

22nd Party Delegates Conference for Pres. Frag Bearer elections at

Namboole210,000,000

3 Contribution to TDA 50,000,000

4 Fuel on Campaign Trail @ 1,000,000 30,000,000

5 Posters 120,000,000

6 Upkeep for team on campaign trail379,240,000

7 Allowances for campaign agents164,245,000

8Hire of sound system for entire campaign period of 95 days

@700,000 per day21,000,000

9 Mobilization and Coordination @ 550,000 per district 20,900,000

10 Radio Talk Shows 10,000,000

11 Reimbursement of Nomination fees to 267 MP flag bearers 801,000,000

12 Others290,480,000

TOTAL 1,293,965,000



APPENDIX IV

Table 20: Amama Mbabazi Minimum Expenses in WestNile

Candidate John Patrick Amama Mbabazi

West Nile (Arua, Yumbe, Koboko)

Expense Units

Minimum

Unit

Expenditure

per day

Total No. of

Days

Observable

Minimum Cost

1 Fuel 0 0 0 0

2 Allowances for Journalists on Campaign 20 150,000 14 42,000,000.00

3 Publicity 1 5,000,000 1 5,000,000.00

4 PA System 1 2,000,000 1 2,000,000.00

5 Cash to Bodaboda cyclists 40 20,000 1 800,000.00 7 Pressure groups 20 300,000 1 6,000,000.00

8 Facilitation for Organising Committee 1 2,000,000 1 2,000,000.00

9 T-shirts 250 8,000 1 2,000,000.00

10 GO Forward Tags 1,500 300 1 450,000.00

11 A3 Glossy Colour Posters 20,000 1,000 1 20,000,000.00

13 Fliers 10,000 500 1 5,000,000.00

TOTAL MINIMUM 85,250,000.00

ACFIM: Campaign finance monitoring Uganda

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