Following allegations of existence of ghost soldiers on the army payroll, President Museveni set up a commission of inquiry in 2003 to investigate the claims and recommend appropriate remedies.

The Committee was set up by the High Command meeting held at UPDF GHQs, Bombo on 2nd - 3rd June 2003. The Committee started its work on 30th June 2003.

Hon. Amama Mbabazi(Chairman), Lt. Gen. Caleb Akandwanaho (Salim Saleh) (member) and Lt. Gen. David Tinyefuza (member).

• To investigate the existence of ghost soldiers.

• To inquire into the existence of interpersonal conflicts and cliques in the UPDF.

• To inquire into the following allegations of corruption:

* Maj Gen. James Kazini’s creation of a semi-autonomous Unit in the West Nile Region purposely to make money from border business.

* Undermining the chain of command of the UPDF for purposes of personal gain.

* The use of Bihanga Training School to train 7000 recruits, an inadequate place for the task, was motivated by financial gain.

The Committee was given a period of one month within which to complete the inquiry. However, because of the amount of the work involved, like travelling to upcountry units and summoning officers from operational areas, it has taken three and a half months to complete the task.

The Committee brought in the following as its support staff:

1. Lt Col Proscovia Nalweyiso - State House

2. Lt Col Ramadhan Kyamulesire - DLS UPDF

3. Maj. Julius Bakirana from CMI

4. Capt Timothy Kanyogonya from CMI

5. Lt Ssemuju Patrick from Political Commissariate

6. Lt Oscar Munanura from CMI

7. 2Lt Carol Basaliza from CMI

8. Pte Were Wange from DPU

9. Mr. Nuwamanya David from MOD (S/A)

10. Mr. Mugisha Paul from ESO (DDCI)

11. Ms. Jane Namirembe from ESO

12. Ms. Christine Nabirye from MOD

The Committee conducted interviews of selected persons from MOD/UPDF and other members of the public. It also received written submissions. The Committee also accessed documents with useful information on the subject of inquiry.
The hearings of the Committee were not public but members of the public were invited to submit relevant information through a hotline and an office at the International Conference Centre.

The Committee conducted its inquiry at UPDF GHQs in Bombo and also held sessions and made inspections in 2 Div HQs Mbarara, 507 Bde HQs Kasese, Bihanga Training School under COT, 4 Div HQs Gulu and 3 Div tactical HQs at Soroti.

The inquiry covers the following:

1. Origins of ghost soldiers.

2. Methods of creation and maintenance of ghost soldiers on the UPDF/Auxiliary Forces payroll.

3. Those involved in the creation and/or maintenance of ghost soldiers.

4. The extent of the phenomenon of ghost soldiers.

5. The impact of interpersonal conflicts and cliques on the force.

6. The specific allegations of corruption referred to.

1. Existence of ghost soldiers
Introduction

After extensive examination of the available data and the evidence gathered from several witnesses, the Committee has established that ghost soldiers exist in the UPDF and its auxiliary forces.

The Committee has further found that the phenomenon is so large that it covers all units of the army.
It has been further established that many officers of the UPDF are involved in this practice. The Committee endeavours to assess the impact of ghost soldiers on the management of the UPDF.

The burning of Republic House in 1989 laid the foundation for the phenomenon of ghost soldiers that to date plagues the UPDF. This resulted into the loss of most of the records relating to the management of strength. Since then, establishment of the actual strength of the army has been a nightmare. This state of affairs has been exploited by unscrupulous members of the forces, to the detriment of the army in particular and the country at large.

This situation was compounded by the 1990 massive desertion of officers and men of UPDF, then NRA, to RPA.

The ghost soldier problem is so grave that the former Army Commander Maj. Gen James Kazini told the Committee that
Uganda has no standing army and that it depends on the good politics of President Museveni and his ability to mobilise militias.

Q: But then how do you run the army? By magic or what?

Kazini: You know we have been running the army because of the good politics of the President. Because that is how LDUs come in. You get surprised, where is the army? ‘AC, fanya LDU, hapa, andika...Bunyoro/Buganda LDU...’ The Army has been surviving on the good will of the President and his good politics, with the people...Standing Army?.... Where is it?

AC: Another victim is likely to be 403 Brigade. Col. Mugisha has already told me that come and tell me when to close 15 BN
because it’s 250. Imagine from establishment of 736 it has come to 250! He himself Col. Mugisha has already declared a surplus of 11 million.

Q: From your paper (see exhibits 2 D) you knew who the ghosts were?

COS: Yes

Q: How did you know?

COS: I knew from reports received, even soldiers were reporting the existence of ghosts. It was common knowledge.

CM I: ...I am also aware of investigations into the existence of 273 ghosts which led to the suspension of the late Lt Col. Jacob Okot who had the money for some of them on his account... therefore I am saying that ghosts exist but I am not satisfied with the measures taken to address them...

Q: So what do you know aboutthe existence of ghost soldiers? That is, how they are created and the reasons they are created?
A/COS: ...in my mind as some one who has been in intelligence, I think it started way back at the burning of Republic House...

Q: The Committee would like to know from you whether you have ghosts in 4 Div?

Mugisha: Yes, I think there are some ghosts in the 4 Div units

Q: How are these ghosts created in the Division and who benefits? Which units are these in 4 Div with ghosts?  Mugisha: According to my findings on record I have 43 Bn, 49 Bn, there were some in 4 Div Garrison which we removed, 13
Bn, Alfa Bn. Our efforts produced over 20 million shillings which we have submitted to GHQs.

Q: Give us the units which are currently below strength in 4 Div?

Mugisha: Very many if not all.

Q: We would like you to tell us whether in your view there are ghost soldiers in 2 Div.

Mukasa: Ghost soldiers are there or were there. It is either way.

Q: Are there ghosts in your units?

Adda: Yes sir. The units under Camp Commandant have no ghosts. However in some units which were previously under Camp Commandant, ghosts were there e.g. MRC (Mubende Rehabilitation Centre)..... there was a committee under ACOS and a report is coming which established that there were ghosts.
The Committee found support for the testimony of ACOS when he asserted that ghosts started way back in 1989 when Republic House was burnt. For instance the Committee established that while NRA strength was estimated at 100,000 after the RIF exercise of 36,500, the strength remaining was 40,000 indicating
that ghosts were about 24,000. This exposes the massive existence of ghosts in the army by 1992-95.
The existence of ghosts was confirmed by all other respondents interviewed by the Committee.

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