COVID-­‐‑19  AND  THE  ADMINISTRATION  OF  JUSTICE  IN  UGANDA  

 By  Timothy  Lumunye  1*  

Introduction  

In   line   with   the   standard   public   health   guidelines,   Uganda   had   to   institute   a   partial  

lockdown  of  the  country  when  it  was  confirmed  that  there  was  an  outbreak  of  COVID-­‐‑

19  within  the  country.  When  the  lockdown  was  instituted  only  “essential”  services  were  

allowed  to  operate,  those  deemed  basic  and  yet  indispensable  without  which  the  nation  

would  collapse.2    

Indeed   the   COVID-­‐‑19   pandemic   means   we   are   wading   in   uncharted   waters.   But   with  

no   vaccine   in   the   near   future   and   with   the   number   of   patients   increasing   by   the   day,  

there  is  no  way  of  predicting  how  long  the  lockdown  will  be  in  force,  or  how  long  it  will  

take   for   judicial   work   to   return   to   “normal”.   This   article   therefore   examines   existing  

interventions   in   the   administration   of   justice,   challenges   and   how   the   pandemic  

presents  an  opportunity  for  access  to  justice  through  LC  Courts.  

Current  efforts  by  the  Judiciary  

The   Judiciary   was   listed   as   an   essential   service   but   would   only   hear   remands,   urgent  

mentions,  bail  and  other  very  pressing  interlocutory  applications.  Court  registries  were  

directed  to  stay  open  but  only  for  the  purposes  of  filing  new  suits.3  Even  then  extreme  

social  distancing  was  to  be  practiced  by  all  participants  to  the  court  process.  To  mitigate  

this,   the   Chief   Justice   issued   the   “Guidelines   for   on-­‐‑line   hearings   in   the   Judiciary   of  

                                                                                                                       
1
 Magistrate  Grade  one,  Courts  of  Judicature  Uganda  Email:  [email protected]    
2  Luke  Anami,  'ʹUgandan  Takes  Govt  to  EACJ  over  Lockdown'ʹ  (The  East  African,  2020)  
<https://www.theeastafrican.co.ke/news/ea/Ugandan-­‐‑takes-­‐‑government-­‐‑to-­‐‑EACJ-­‐‑lockdown-­‐‑against-­‐‑the-­‐‑
law/4552908-­‐‑5520778-­‐‑wl31aaz/index.html>  accessed  12  May  2020.  
3  Chief  Justice’s  Circular,  Administrative  and  Contingency  Measures  to  Prevent  and  Mitigate  the  Spread  

of  Corona  Virus  (Covid-­‐‑19)  

  1  
Uganda”4.   The   Guidelines   indicate   that   online   hearings   may   be   used   for   inter   alia,  

delivering  of  judgments  and  rulings,  plus  the  hearing  of  bail  applications,  mentions  and  

interlocutory  applications.  Attendance/participation  is  by  invitation  through  a  Judiciary  

provided   link.   The   hearing   of   these   matters   is   not   exclusively   limited   to   the   online  

option   though   and   in   some   cases,   advocates   and   parties   appear   in   person   before   the  

judicial  officer.5  

These  efforts  are  building  upon  a  foundation  set  by  other  recent  Judiciary  interventions.    

For   example   the   installation   of   a   Video   Conferencing   Facility   between   Buganda   Road  

Court  and  Luzira  Maximum  Prison  (Male  and  female  Wing),  Kigo  Government  prison  

and  Kitalya  Government  prison.    Initially  it  aimed  at  handling  cases  at  mention  stages  

especially  in  very  sensitive  cases  that  require  a  high  level  of  security  where  transporting  

the   accused   persons   to   Court   may   cause   security   threats   to   the   entire   public   or  

unnecessary  cost.      

The   Judiciary   is   also   in   final   stages   of   developing   the   Electronic   Court   Case  

Management  Information  System  (ECMIS)  that  will  be:-­‐‑  

(i) A  fully-­‐‑featured  system  which  automates  and  tracks  all  aspects  of  a  case  life  

cycle  from  initial  filing  through  disposition  and  appeal;    

(ii) Able   to   facilitate   the   efficient   and   reliable   collection,   organization,  

distribution  and  retrieval  of  significant  amounts  of  case  specific  data  as  well  

as  the  processing  of  payment  of  relevant  court  fees  and  fines  by  the  Citizens.    

The  system  will  ease  filing  of  matters  and  all  documents,  reducing  the  need  for  physical  

contact  in  the  court  registries.  

                                                                                                                       
4  Office  Instructions  No  2  of  2020  
5  This  in  itself  is  rather  difficult  as  both  private  and  public  transport  is  banned  during  the  lockdown  
period.  See  Joseph  Kiiza,  'ʹUganda  Relaxes  Coronavirus  Lockdown  Measures'ʹ  (The  New  Vision,  2020)  
<https://www.newvision.co.ug/new_vision/news/1518485/-­‐‑live-­‐‑coronavirus-­‐‑lockdown-­‐‑ugandas>  
accessed  12  May  2020.  

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Hurdles  in  the  administration  of  justice  

Even  then,  as  we  await  the  interventions  to  be  put  to  full  use,  currently,  access  to  justice  

has   been   greatly   hampered   by   the   pandemic.   Restricting   court   hearings   means,  

ultimately,  that  all  pending  matters  before  the  courts  had  to  be  adjourned  sine  die  until  

the   lockdown   is   lifted   and   courts   are   allowed   to   resume   normal   operations.     Save   for  

very  urgent  maters  that  would  require  party  to  first  obtain  a  certificate  of  urgency.    In  

addition  to  that,  because  the  Judiciary  does  not  work  in  a  vacuum  and  relies  on  other  

stakeholders   in   the   Justice   sector   (such   as   Police,   Prisons,   Directorate   of   Public  

Prosecutions)  for  it  to  be  effective  and  with  these  stakeholders  also  substantially  limited  

by  the  lockdown,  court  business  has  literally  ground  to  a  halt.  There  are  a  few  matters  

being  heard  by  the  courts.  

It  is  a  well-­‐‑established  principle  that  justice  shall  not  be  denied.  Article  126(2)  (b)  of  the  

Constitution  provides  that  justice  shall  not  be  delayed.  But  as  the  lockdown  continues,  

for  litigants  who  had  matters  before  court,  justice  is  delayed.  They  have  to  wait  until  the  

lockdown  is  lifted  for  their  matters  to  be  heard.  Even  then,  the  judiciary  which  has  for  

long   been   affected   by   case   backlog   which   will   no   doubt   ne   exacerbated   by   the  

lockdown.    

Relatedly,  the  lockdown  (and  pandemic  as  a  whole)  has  also  led  to  a  rise  of  novel  legal  

situations.   Some   parties   are   unable   to   execute   their   obligations   while   others   will   no  

doubt  use  this  as  a  cloak  to  hide  from  their  obligations.  For  the  aggrieved  party,  waiting  

until  the  world  is  declared  free  from  COVID-­‐‑19  for  him  or  her  to  get  a  remedy  is  justice  

denied.   Ominously,   there   are   also   increased   reports   of   domestic   and   gender   based  

violence   as   people   are   forced   to   stay   at   home.6   Studies   have   identified   that   isolations  

                                                                                                                       
6  The  Independent,  'ʹPolice  Records  328  Cases  Of  Domestic  Violence  During  COVID-­‐‑19  Lockdown'ʹ  (The  
Independent  Uganda:,  2020)  <https://www.independent.co.ug/police-­‐‑records-­‐‑328-­‐‑cases-­‐‑of-­‐‑domestic-­‐‑
violence-­‐‑during-­‐‑covid-­‐‑19-­‐‑lockdown/>  accessed  11  May  2020.  

  3  
and  extreme  social  distancing  protocols  tend  to  affect  the  mental  health  of  individuals  

and  may  be  a  contributing  factor  to  the  violence.7  The  victims  of  domestic  violence  are  

unable   to   obtain   justice   since   both   public   and   private   means   of   transportation   are  

prohibited   unless   one   has   a   special   car   sticker   from   the   Ministry   of   Works   and  

Transport.8  The  ban  on  transportation  means  that  even  if  a  litigant  has  a  matter  which  

the  courts  are  allowed  to  hear  in  this  period,  he  or  she  may  not  be  able  to  attend,  if  they  

do  not  have  the  special  sticker  for  “essential”  workers.    

Local  Council  Courts    

These  concerns  raise  questions  about  whether  justice  is  being  “done  to  all  irrespective  of  

their   social   or   economic   status”.9   But   they   also   present   opportunities   for   the   justice  

sector   to   transform   itself   into   a   “people-­‐‑centric”   institution.   Article   126(1)   of   the  

Constitution  provides  that    

“Judicial  power  is  derived  from  the  people  and  shall  be  exercised  by  the  courts  

established  under  this  Constitution  in  the  name  of  the  people  and  in  conformity  

with  law  and  with  the  values,  norms  and  aspirations  of  the  people.”  

Currently,   the   courts   of   judicature   are   the   Supreme   Court,   the   Court   of   Appeal,   the  

High  Court  and  subordinate  courts  created  by  Parliament.10  Currently,  the  only  active  

subordinate   courts   in   operation   are   the   Military   Courts   (Court   Martial)   created   under  

the  UPDF  Act11  and  the  Magistrates  Courts  created  under  the  Magistrates  Courts  Act.12  

                                                                                                                       
7    Jamie  Bartosch,  'ʹViolence  Linked  To  Isolation  And  Chronic  Health  Problems  -­‐‑  Uchicago  Medicine'ʹ  
(University  of  Chicago  Medicine,  2019)  <https://www.uchicagomedicine.org/forefront/community-­‐‑
articles/violence-­‐‑linked-­‐‑to-­‐‑social-­‐‑isolation-­‐‑hypervigilance-­‐‑and-­‐‑chronic-­‐‑health-­‐‑problems>  accessed  12  May  
2020.  
8  Supra  n1  

9  Article  126(2)(a)  Constitution    

10  Article  129(1)  of  the  Constitution  

11  2005  

12  Cap  16  Laws  of  Uganda    

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It  is  however  the  Magistrates  Courts  which  bear  the  load  of  the  dispute  resolution  since  

military   courts   are   primarily   criminal   courts   whose   jurisdiction   is   limited   to   the   few  

offences   of   the   UPDF   Act.   As   already   discussed,   Magistrates   Courts   are   not   fully  

operational   because   of   the   COVID19   pandemic.   The   online   option   is   also   limited   to  

courts  in  Kampala.  Yet  even  in  a  pandemic,  there  is  need  to  dispense  justice.  

It   is   for   this   reason   that   the   Government   should   fully   re-­‐‑operationalise   the   Local  

Council  Courts.  The  courts  are  established  in  a  hierarchical  manner  of  the  Local  Council  

I   (Village/Cell),   Local   Council   II   (Parish/Ward)   and   Local   Council   III   (Sub  

county/Division).13   Their   composition   and   structure   is   elaborately   provided   for   under  

the  Act.14    They  have  both  civil  and  criminal  jurisdiction  to  handle  matters  arising  from  

their  geographical  areas  of  authority.15  They  are  presided  over  by  the  elected  LC  official  

at  the  specific  level.  Because  they  are  considered  as  a  form  of  grassroots  justice,  they  are  

only  obliged  to  follow  the  fundamental  and  inalienable  principles  of  law.16  But  they  are  

not  to  be  bogged  down  in  formal  rules  of  procedure.    

Because   LC   courts   handle   disputes   amongst   residents,   they   tend   to   uphold   the  

fundamental   of   ensuring   that   the   parties   are   reconciled.17   LC   Courts   are   generally   not  

adversarial   in   nature   and   as   such   focus   on   obtaining   a   resolution   for   both   parties.   LC  

courts   are   also   easily   accessible   at   the   grassroots   level   since   their   geographical  

jurisdiction   is   limited   to   specific   localities.   Unlike   for   example   the   Magistrate’s   Court  

which  sometimes  serves  an  entire  district,  the  LC  Courts  are  very  many  and  well  spread  
                                                                                                                       
13  S.3  Local  Council  Courts  Act  states  that  “There  is  established  a  local  council  court  at  every  village,  
parish,  town,  division  and  sub-­‐‑county  level.”  
14  Part  III  of  the  Local  Council  Courts  Act  2006    

15  S.9  of  the  Local  Council  Courts  Act  provides  that  “…the  jurisdiction  of  a  local  council  court  shall  extend  

only  to  causes  and  matters  arising  within  the  territorial  area  of  the  council  for  which  the  court  is  
established  and  to  causes  and  matters  arising  elsewhere  if  the  defendant  or  accused  is  ordinarily  resident  
within  that  area.”  
16  Such  as  the  non-­‐‑derogable  right  to  a  fair  hearing  under  Article  28  and  44  of  the  Constitution  

17  S.13  Local  Council  Courts  Act  provides  that  the  Local  Council  Court  may  order  reconciliation,  

declaration,  compensation,  restitution,  costs,  apology,  or  attachment  and  sale  

  5  
across  the  nation.  The  accessibility  of  courts  is  not  only  for  the  litigants  but  witnesses  as  

well.  Operationalising  LC  Courts  would  also  help  to  reduce  on  case  backlog  within  the  

formal   judicial   system   since   they   have   jurisdiction   to   handle   civil   cases   of   debts,  

contracts,   assault,   battery,   conversion,   damage   to   property,   trespass.18   They   also   have  

jurisdiction   to   handle   cases   governed   by   customary   law19, causes   and   matters   arising  

out   of   infringement   of   bye-­‐‑laws   and   Ordinances   duly   made   under   the   Local  

Governments   Act20,   matters   specified   under   the   Children   Act21,   matters   relating   to  

land22.  

Conclusion    

Over   90%   of   Ugandan   people   experience   one   or   more   serious   justice   need(s)   that   are  

difficult  to  resolve.      Majority  of  Ugandan  seek  information  and  advice  from  their  social  

network  and  the  local  council  courts.  Formal  legal  sources  are  used  as  well  but  to  a  less  

extent.23   9   out   of   10   Ugandan   citizens   who   needed   access   to   justice   in   the   recent   past  

from  both  formal  and  informal  systems  have  had  their  justice  needs  unmet  because  of  a  

myriad  of  factors.   24  In  regards  to  the  formal  justice  system,  a  third  of  the  people  in  the  

nation  do  not  even  have  access  to  the  courts.25    

If  there  is  any  lesson  to  be  learned  from  this  pandemic,  especially  for  Uganda,  it  is  that  

grassroots   systems   can   be   effective   when   operationalised.   Currently,   the   LC   officials  

                                                                                                                       
18  S.10(1)(b)  &  Second  Schedule  to  the  Local  Council  Courts  Act  
19  S.10(1)(b)  &  Third  Schedule  to  the  Local  Council  Courts  Act  
20  S.10(1)(c)  Local  Council  Courts  Act  

21  S.10(1)(d)  Local  Council  Courts  Act  

22  S.10(1)(e)  Local  Council  Courts  Act  

23
 HIIL  Report  on  Justice  needs  in  Uganda  2016.  
24  Johanna  Piest,  'ʹHow  Innovation  Can  Lead  To  Better  Access  To  Justice  For  The  Ugandan  People'ʹ  (Justice,  

Law  and  Order  Sector,  2016)  <https://www.jlos.go.ug/index.php/com-­‐‑rsform-­‐‑manage-­‐‑directory-­‐‑

submissions/services-­‐‑and-­‐‑information/press-­‐‑and-­‐‑media/latest-­‐‑news/item/545-­‐‑how-­‐‑innovation-­‐‑can-­‐‑lead-­‐‑
to-­‐‑better-­‐‑access-­‐‑to-­‐‑justice-­‐‑for-­‐‑the-­‐‑ugandan-­‐‑people>  accessed  12  May  2020.  
25  ibid.  

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have   been   effective   in   the   distribution   of   food   to   the   vulnerable   poor   within   the  

Kampala   Metropolitan   Area.   Because   they   are   residents   of   their   own   localities,   they  

know   who   is   in   urgent   need   of   food.   The   National   Taskforce,   no   matter   how   well  

intentioned  it  is,  would  not  have  been  able  to  effectively  execute  the  distribution  of  food  

within   Kampala.   In   addition,   they   have   been   resourceful   in   providing   information   to  

the  formal  security  structures  about  new  entrants  to  their  areas,  who  may  be  potential  

carriers  of  the  Corona  Virus.  They  have  been  able  to  execute  these  duties  smoothly  and  

alongside   their   other   day   to   day   executive   tasks.   There   is   no   reason   as   to   why   they  

should  be  retooled  and  placed  at  the  frontlines  of  grassroots  justice.  Their  structures  are  

already  in  existence  and  they  do  not  even  need  permanent  buildings  to  operate.26  

It  is  therefore  recommended  that  the  Justice  Law  and  Order  Sector  Leadership,  together  

with   the   Ministry   of   Justice   and   Constitutional   Affairs   and   Local   Government   should  

reconsider  re-­‐‑operationalising  the  Local  Council  Courts.    

The writer is Magistrate Grade one, Courts of Judicature Uganda / Email: [email protected]

                                                                                                                       
26
 S.8(1)  of  the  Local  Council  Act  provides  that  “A  local  council  court  may  be  held  at  a  designated  place  within  the  
limits  of  its  jurisdiction  for  the  convenient  and  speedy  discharge  of  its  business.”  

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