Post: Brief To Parliament On The On-Going Mass Registration of Citizens Exercise Under The National Security Information System (NSIS) Project (Commonly referred to as the National Identity Card Project) by The Hon. Minister of Internal Affairs

Brief To Parliament On The On-Going Mass Registration of Citizens Exercise Under The National Security Information System (NSIS) Project (Commonly referred to as the National Identity Card Project) by The Hon. Minister of Internal Affairs

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29th July 2014

Rt. Hon Speaker, Hon. Members of Parliament, 1.0.



1.1. On Thursday 24th July 2014, the House directed the Minister of Internal Affairs to brief Parliament on the on-going mass registration of citizens’ exercise under the National Security Information System (NSIS) Project.

I am pleased to present the brief:

1.2. On 10th June 2013, Cabinet considered the matter of multiple registrations of persons by different institutions and decided that harmonization of related activities be made. Under the leadership of the Rt. Hon. Prime Minister, a Cabinet Sub- committee of Ministers whose ministries are involved in registering of persons was set up to look into the issue. Subsequently, a Multi-Sectoral National Technical Taskforce was set up under the leadership of the Permanent Secretary Ministry of Internal Affairs.

Membership of the Technical Taskforce included Chief Executives of institutions who are involved in registering persons and other supporting Ministries, Departments and Agencies (MDA’s). (List of participating institutions and supporting MDA’s is at ANNEX 1). The taskforce, whose terms of reference included consideration of harmonizing registration of persons was tasked to develop a strategy and the necessary budget.

The taskforce had a series of stakeholders’ engagements on the subject and carried out benchmarking studies to learn lessons from countries which had gone through the same exercise. Kenya, United Arab Emirates, South Africa, Ghana, Nigeria and Rwanda were among the countries the team benchmarked. One very good lesson the team learnt was that a multi-sectoral/multi-institutional approach to registering persons for the purpose of setting up a comprehensive


National Identification Register was the way to go.

This is anemerging excellent model of delivering Government initiatives. Details of the benchmarking studies are at ANNEX 2.

1.3. Hon Members, after thorough planning and benchmarking, the Taskforce presented its findings to the Ministerial Sub-Committee. On the 1st of November 2013, Cabinet approved a strategic and purposeful project of mass registration to be done in two Phases as indicated below. Cabinet approved the strategy, budget, roadmap, governance structures and the need for a harmonised law to govern the registration of persons. This strategic decision to register all her citizens and resident aliens will lead to the creation of a National Identification Register, which will be used by all Government Ministries, Departments and Agencies (MDA’s). The register will also be useful to private institutions.

The motivating factors for this Cabinet decision were:

a)   Minimize duplication of effort, waste of time and resources. We are doing this by harmonising registration processes and specifying the common data elements for all registrations. We have centralized data collection while arrangements for centralised access, use and management are ongoing.

b)  Stop unduly inconveniencing the public by going back to the same person for more or less the same information (names, parents’ names, gender, date of birth, place of residence, etc).

c)   Setting up a comprehensive database for creation of a National Identification System that will help us create a National Identity Register (NIR).

d)  The National Identity Card is slated to become the primary Identification document.

e)   Providing an integrated approach to transformation of government operations by creating a platform for e-Government.


In summary, Cabinet approved the Mass Enrolment Strategy with the following components:

  1. The Project Roadmap (ANNEX 3)
  2. The Multi-sectoral Governance Structure (ANNEX 4)
  3. The Scope
  4. The Budget

In additional while approving the roadmap, Cabinet considered interdependencies of other Government critical activity timelines like the National Housing and Population Census and the 2016 Electoral process. Furthermore, the strategy provided for making use of all existing Government structures for its implementation in order to make the most efficient use of available resources, both human and material.

1.4. Hon. Members, the implementation of a National Identification Register will yield numerous benefits to Government and the public since actions taken will then be based on reliable and verified data. It will enhance planning, the country’s security, reduction of crime, enhancement of financial and social development, good governance and enhance service delivery. As the House is aware, a National Identification Register is a prerequisite for implementation of e-Government initiatives. We therefore believe that we are on a correct path to transforming our country to a digitized one.

1.5. Hon Members, after Cabinet approved the Mass Enrolment Strategy, the National Implementation team embarked on the pre-enrolment activities which included

a)   Recruitment and training of all Project Staff from the National level down to the Parish level

b)  Setting up of National, Regional, District, Sub-county and Parish Administrative and IT Support structures.

c)   Deployment of staff to fill those structures


d)    Procurement of additional machinery and equipment, software and enrolment materials for mass enrolment.

e)    Publicity, Mobilisation and sensitization of the public to support and embrace the exercise. The mass enrolment strategy has been explained and we continue explaining it to various groups of people. We have explained it to the political, religious and cultural leaders; to many civil society organizations; and to the general public through cluster engagements, electronic and print media under the theme: My Country, My Identity. We have received overwhelming buy-ins from the citizens.

f)      Mobilisation of all necessary logistics e.g. vehicles to be used in the Mass Enrolment exercise.

g)    Preparation of the old set of equipment for upgrade and integration.

h)    Setting up of the project home and installation of machinery at Kololo.

i)      Setting up and operationalization of a solid regionalized structure to coordinate and supervise the project.

j)      Gazetting and establishing of Enrolment Centres across the county in accordance with the law (Section 36 of the Uganda Citizenship & Immigration Control Act Cap 66).

k)    Putting in place security mechanisms for the kits, other materials and project staff. Having security agencies directly participating in the exercise has helped.

1.6. Rt. Hon Speaker, on 13th April, 2014 H.E. The President launched a country wide Mass Enrolment Exercise in line with the strategy approved by Government. Notable from His Speech, the President:

a)   Encouraged all Ugandans to register

b)  Emphasized the usefulness of the National ID i.e. Enhancement of security, provision of social services, facilitation of free movement of people within the East African Community region etc.

c)   Authentication of true identities of people.

d)  He emphasized facilitation of access to financial services.



2.1. Rt. Hon Speaker, the registration of persons is planned to be done in two phases. This is so given the varying mandates and demands of the participating institutions. Many of these institutions have to perform functions in line with set Constitutional timeframes which none of us want to breach.

a) In Phase one Hon Members, we are registering all citizens aged 16 years and above. This phase started on 14th April, 2014. During this Phase, the overall objective is that all citizens who will be registered during this phase will be issued with National Identification Numbers and National Identity Cards. In addition, it will enable us to respond to the requirements of the Uganda Bureau of Statistics (National Housing and Population Census) and of the Electoral Commission. The cards will be used to prove citizenship during the 2016 general elections. A detailed roadmap of phase 1 is illustrated at ANNEX 3.

b) Phase two Hon Members, will be implemented starting July 2016, after the 2016 general elections. We will register all citizens aged zero (0) years and above, anybody who will have missed phase 1 registration and resident foreign nationals. Citizens will be issued with National Identification Numbers; and those aged 16 years and above will be issued with National Identity Cards. Resident foreign nationals will be issued with Alien Identity Cards. A detailed roadmap of phase 2 is illustrated in ANNEX 3.

Hon Members will note that on commencement of Phase One, this exercise met a number of challenges. These included:

i. Inadequate number of kits due to delays in deliveries of additional equipment and upgrades. However, a decision to begin with the few kits was taken. Along the way, more kits were received. I am glad to report that the project is on course. Starting with the few kits led to an incremental approach which helped us manage technological challenges that came up. Solutions to technological challenges were easier to implement with few kits and even easier to pass on to the bigger numbers when all were delivered.

  1. Enrolment Officers had not gained enough experience with the kits.
  2. Supervision and coordination structures were not solid.
  3. The multi-sectoral approach to implementation had not taken root.
  4. Hard to reach areas presented a big challenge to the exercise.
  5. Stealing of kits. E.g. on the 15th April 2014, a kit was stolen from Kole District.
  6. Breakdown of kits
  7. General disbursement of resources to field staff. For example L.C.Is countrywide threatened to lay down their tools because of issues related to their pay.

Hon Members, we immediately re-organised to deal with the above-mentioned challenges. I am glad to report that at the moment because of the following interventions the project is on course;

  1. More kits were delivered and almost all the districts are now operating at the planned 100% kits distribution.
  2. Enrolment officers have since gained proficiency and there are now less problems due to adequate operator knowledge.
  3. We set up regional IT Support Centres and online real time technological response mechanisms to deal with all field IT related problems.
  4. We introduced a daily performance tracking mechanism for all Enrolment Officers (EOs) which helps us to identify those officers that need refresher training.
  5. We sensitized LCIs countrywide and published the allowance payment schedule for all staff involved in the exercise.


vi. We improved the coordination and supervision mechanism by dividing the country into more and smaller tactical and operational regional structures. We started with 9 regions but are now operating under 21 regions (ANNEX 5).

In addition, we created Regional, District, and Sub-county Committees with an in-built monitoring and evaluation mechanism that helps us manage this rather complex exercise as illustrated in the
For example, the District Coordination Committees are in touch with the exercise on a daily basis and hence the real time escalation and management of issues.              Where we had administrative challenges e.g. with Parish Chiefs, we enlisted Ministry of Local Government support to direct all Chief Administrative Officers to give the necessary support to the project.

vii. For the hard to reach areas, we set up a committee to map all hard to reach areas in the country and an additional facilitation was put in place to supplement activities of the hard to reach areas.

  1. Security of the kits was managed by requiring all Enrolment Centres to be guarded by Police Officers and storage of kits to be done at Police Stations/Posts.
  2. We have stuck together as one robust team committed to delivering this project under the guidance and stewardship of the Policy, Steering and Technical Committees.
  3. We stepped up sensitization and mobilisation.

Rt. Hon Speaker, allow me illustrate in detail how the enrolment under this project is being implemented.


The scope of the project as approved by Cabinet stated that we expected to register an estimated 18 million people who are 16 years and above using 8000 enrolment kits. The enrolment is being done at Parish level (process illustrated in ANNEX 6) with at least 1 kit at each Enrolment Centre. All citizens are expected to register where they reside or where they are born because of the following:

  1. Citizenship verification and proper identification
  2. To comply with Electoral Commission’s requirement for registration of voters that registration takes place where they reside or where they are born.

In this regard, it is also important to note that all those who have registered will receive their identification cards from where they have registered.

Critical to identification is capturing of proper personal data, quality photograph and biometric fingerprints. However, challenges have been met in capturing fingerprints and facial images because of the high quality standard required by International Civil Aviation Organisation (ICAO) Standards which we are strictly following.


This has been addressed by refresher training for Enrolment Officers to improve on operator capability and have sensitized the people turning up for registration to clean their hands before enrolling.

3.1. Enrolment of PWDs

We have come up with mechanisms of registering People with Disabilities and the Elderly. Where we are approached, we place mobile registration centres at their places of convenience. For example, we organised enrolment for the school of the blind in Soroti.

At the Enrolment Centres when a PWD appears for registration, our Enrolment Officers are under instruction to assist these people and give them priority for registration.

3.2. Enrolment Kits and Technology

  1. Hon Members, the exercise kicked off with a small number of registration kits, 20% in the first week increasing to 68% by the ninth week. Since then, all procured kits and software have been received and delivered. The current kits distribution is as indicated in Figure 1 below.


Figure 1

Summary of Progressive Kits Distributions in Districts

Week 1 2 3 4 5 6 7 8 9 14
Average%      kits
20% 20% 33% 44% 44% 44% 44% 44% 68% 97%



3% of kits are kept at HQ for rapid response to emergencies.

  1. In the course of mass registration, we sometimes experience equipment performance failure. The effect of this is two fold: –

a)   Enrolment does not take place until the equipment is repaired.

b)  The captured data is not transmitted to the centre at Kololo in

  1. This results in some data remaining in districts.


Therefore the figures presented here are those that have been received at the Centre. When all captured data in the districts is received, the overall picture of how the project is performing will change for the better.

c) We also encountered challenges of deploying old kits (HP) procured way back in 2010 whose performance and capacity therefore are not as good as the new kits (Dell).

To ensure that we are always on top of the technical challenges;

– The Technology Team at the Centre has been beefed up to rapidly respond to technical problems that are reported. Their actions ensure that equipment failure is rapidly attended to and that captured data does not stay long at the district before being transmitted to the Centre.

– The Situation Room at the Centre is continuously in touch with the regions and districts.          They provide online technical solutions to problems that are reported.

– There has been and will continue to be training and retraining of Enrolment Officers and Supervisors and I.T Field support teams to ensure that the whole team is always up to the task.

– Deployment of old kits to places connected to the National Power grid because they require constant charging.

We have come up with a daily Performance Tracking mechanism where we receive daily enrolments on a particular kit and a particular enrolment officer. This enables us to track performance and ensure targeted assistance to enrolment officers who need help.

Further, we have allowed a level of flexibility at local level with regard to kits distribution. Where the District Enrolment Officer determines that deployment of more kits to an area out of those available will help, this is done. The result has been that some areas are almost through. In cases where registration is almost complete, the kits are being deployed to areas where there are populations waiting to be registered.


Hon Members, the mass enrolment process at Parish level is in progress. Despite the challenges experienced at the beginning of the exercise, our Enrolment Officers have gained proficiency in using the kits and the computer enrolment software. The average enrolment per kit is now standing at 40 persons per kit per day as compared to what we had planned, 25 persons per kit per day with high performers registering up to 85 persons per kit per day.

Rt. Hon Speaker, implementation of the above initiatives has improved project performance. Mass enrolment as at the end of the 15th week stands at over 11.4 million persons (Please see table below. Detailed performance per District is given in the ANNEX 7). This does not include those registered but whose data has not reached the centre due to technical problems which problems are constantly being sorted out.

Rt. Hon. Speaker, based on performance of Week 13 (1,235,869), 14 (1,347,086), and 15 (1,263,045), we have now stabilised at that performance level and therefore expect similar performance in the remaining week 16 and 17. At the end of Week 17 (11th August 2014 end of Mass Enrolment), we expect to have a total enrolment of 14 million people. This will leave us with a balance of 4.2 million to hit the overall estimated target of 18 million people.

Hon Members, if we are to continue at Parish level, we would require an additional 3.26 weeks to capture the remaining 4.2 million people. However, in accordance with the approved roadmap, we shall continue registration for six months at Sub-county level during which period the remaining population shall be registered.

Considerations shall be made for exceptional areas for field outreach to Parish level as the case may be in areas which will still have high populations unregistered.


Mass Enrolment Performance as at Week 15


S/N REGIONS Est. Population
>= 16 years as of
Feb 2014 (18
Performance in
15 Weeks With
100% Kits
Reported in 15
Target for 16
Actual Kits
Actual % Kits
1 ARUA 1,501,823 1,314,095 680,014 45% 821,809 464 97%
2 GULU 554,588 485,264 276,373 50% 278,215 186 90%
3 KITGUM 533,773 467,052 211,807 40% 321,966 217 92%
4 LIRA 1,037,468 907,785 605,764 58% 431,704 428 93%
5 SOROTI 1,062,751 929,907 545,251 51% 517,500 351 90%
6 MOROTO 623,786 545,813 244,937 39% 378,849 166 89%
7 MBALE 884,028 773,524 552,970 63% 331,058 441 93%
8 BUKEDI 883,156 772,761 548,140 62% 335,016 380 93%
9 JINJA 1,780,697 1,558,110 1,367,861 77% 412,836 774 100%
10 LUWERO 571,915 500,426 366,904 64% 205,011 246 92%
11 KAMPALA 1,186,114 1,037,850 817,314 69% 368,800 600 100%
12 WAKISO 915,631 801,177 704,353 77% 211,278 404 100%
13 MUKONO 723,503 633,066 511,655 71% 211,848 336 100%
14 MITYANA 583,903 510,915 299,807 51% 284,096 302 100%
15 MASAKA 883,374 772,952 625,862 71% 257,512 448 100%
16 MBARARA 1,043,898 913,411 648,585 62% 395,313 506 100%
17 BUSHENYI 464,245 406,215 333,569 72% 130,676 178 92%
18 KIGEZI 687,541 601,598 463,367 67% 224,174 344 100%
19 KABAROLE 1,253,680 1,096,970 811,528 65% 442,152 592 94%
20 HOIMA 1,057,629 925,426 784,563 74% 273,066 388 100%
18,233,505 15,954,317 11,400,624 63% 6,832,881 7,550 97%


3.3. Emerging Issues

a)   Development of the enrolment software made use of names of Administrative Units given to us by the Electoral Commission. It has since emerged that a few errors were made in the naming and uploading of some Administrative Units names on the enrolment software. This matter was taken up with the Ministry of Local Government.

Naming of an Administrative Unit follows a legal authorized process. Where it has been found that the due process was not followed, the error has been rectified.

b)  A few people have suggested that due to the small number of kits used at the beginning, the deadline for registration at Parish Level should be extended.

It is true that registration of persons kicked off with a small number of kits. It is also true that the Enrolment Officers then did not have sufficient experience.

Since then, the situation has changed.

– We received and have deployed more kits (Figure 1).

– The Enrolment Officers are more proficient, enrolling a minimum of 33 persons per day per kit (the national average is 40) compared to the planned 25 persons per day per kit.

– We have intensified supervision and monitoring. The Technology Team is always ready to solve problems that crop up.

– Flexibility regarding kits distribution in an area has been allowed.

In light of all these initiatives, and the results we are receiving from the field, we believe it will not be necessary to extend the deadline for registration at Parish level. Already, there are areas where


registration is more or less complete. The few remaining will be able to register at Sub-county level. As planned, we intend to remain at Sub-county level up to February 2015 when the 2016 Electoral process will begin.

c)   A number of people have requested to be registered at their places of work. Similarly, those in the diaspora have requested to register at our missions abroad.

We are cognizant of the fact that one of the main objectives of the exercise is to come up with a National Citizenship Register that will be used for various purposes (service delivery, determination of true

identities of people, security etc).               This requires citizenship
verification which is best done where one resides or where one originally comes from, not at the place of work.

All citizens have therefore been encouraged to register where they reside or where they originally come from.

d)  People are complaining that there are no enrolment forms at registration centres, this may be true in some cases however, and our Monitoring and evaluation mechanisms have revealed that these forms are being hoarded by unscrupulous people who are selling them for personal financial gain.

The vice is prevalent mainly in Kampala, Wakiso and some border areas like Busia and Buliisa. In Busia, for example, a Somali bought a registration form, successfully registered and he was intercepted and arrested in Arua. Those who sold him the form have been taken to court.

e)   It has also come to our attention that in almost all districts of Uganda, prevalent of cult i.e. 666 and Enjiri sects whose religious beliefs do not support registration for issuance of National ID and Number. They believe that is Satanic and have therefore shunned the exercise.


We have on several occasions looked out for their leadership to persuade them and sensitize them about this exercise but some have still resisted registration. As Members are aware under the current National ID Regulations, “Any person who fails without reasonable excuse to apply for registration as a citizen or as the case may be to take reasonable steps or fails to apply for a National Identity Card, commits an offence and is liable to a fine or 3 months imprisonment or both.” We may revert to charging those who are not complying.

Hon Members, we are continuing to manage these emerging issues as they come.

In view of the above, we are very grateful to H.E The President, the Rt. Hon Prime Minister and all other leaders who have led by example by going to their respective places of origin to register. In same vein, I call upon all Hon Members who have not yet registered to go in their respective constituencies and register.

Hon Members, I wish to emphasize the fact that the current exercise is NOT a one-off. It is true that after February 2015, registration of those aged 16 years and above will stop to enable the 2016 Electoral process to go ahead. Registration of all persons (from age zero upwards) will resume after swearing in of the new Government in 2016. Those in the diaspora will therefore be able to register anytime they come home, either during the period between now and February 2015 or after the new Government is sworn in.


Rt. Hon. Speaker, you are aware that National Identification numbers and National Identity Cards are to be issued to citizens of Uganda only. Identifying and verifying Uganda citizens is a big challenge. Identifying and verifying Uganda citizenship is not an easy yet all those we are enrolling must as of necessity be identified and verification of their Uganda citizenship claims must be made in accordance with the set criteria under the 1995 Constitution. In some districts, the citizenship challenge is more prominent than in others.

This task is quite complex given a number of reasons;

  1. The Cross border communities; it is extremely difficult to identify those strictly belonging to Uganda and those of her neighbours. These include; the Pokot, Karimojong, Itesot, Bagisu, and Basamia along the Eastern border, in the south, we have the Haya, Banyarwanda and Twa, the western border has the Bakonjo, Bamba, Alur, and Lugbara, the northern border has the Madi, Lugbara, Kakwa, Kuku and Acholi.
  2. The refugee problem and the lack of proper management of it since 1962. There is a general public outcry about the influx of Refugees for example who have settled in very easily. These have even acquired land and maybe occupying political and public offices.
  3. We are working closely with the responsible office under the Office of the Prime Minister to compare the existing data base of refugees with our database to weed out refugees who may have applied for national identity cards. District that host refugee camps and transit points have been sensitized with a clear message sent out that refugees are ineligible to enroll during this mass enrolment exercise.
  4. Many illegal immigrants from neighboring countries have also settled in Uganda overtime.

Hon. Members, with all the above in mind, we adopted a multi-prolonged Citizenship Verification strategy as illustrated below.

a) Parish Citizenship Verification Committee; these are composed of the Parish Chief/Elder, LC 1 Village Chairperson and the Parish Internal Security Officer. Their main role is to identify the citizen from the community where he/she resides and or is born and endorse their comments on the enrolment form. The applicant is then enrolled


by the enrolment officer and data sent to Kololo central processing system. However, we have reports of infiltration by foreigners and this is being associated to the PVC’s not doing what they were expected to do and in some cases, some of the members of this committee are alleged to be non Ugandans especially in border areas.

b)Central Citizenship Verification Team at Kololo; this has a team of experts who have been recruited from the general public and some are seconded to the project from Immigration Directorate, MOD, ISO, Police and Prisons Service to process enrolled data. During this process, biometric identification of applicants is done to ensure that there are no multiple registrations and citizenship approval is done. Those whose citizenship is queried, the system sends back a feedback report and further clarifications may be sought from that person.

c)  Sub-county Review Committee; this is composed of Immigration, Sub-county Chief, and GISO. This is where reviews of those whose citizenship is queried or in doubt are handled with a more detailed report from this committee to the centre in Kololo.

d)National Review Committee; this committee is constituted by the Minister of Internal Affairs and will handle cases that the sub-county committee totally rejects after their review.

The general guidance however is that citizenship verification shall be continuous. Where evidence becomes available that a person issued with a National ID is not a citizen, the law provides for the cancellation and revocation of the card. This remains a safeguard to the challenges presented by citizenship verification process and is the fall back provision.

4.1. Naturalization of Some Communities

Rt. Hon. Speaker, since the 14th of April when we started implementation, we have come across various communities in various parts of the country


that openly acknowledge to have come from neighboring countries. These have since lived, and have generations born in Uganda. The cases in point are as follows;

Case Study: Malagori Community

This community is resident in Jeeja village, Kigumba sub-county in Kiryandongo district. It is alleged that they came to Uganda in 1956 on invitation of the Omukama Kabalega from Kenya and have since lived here with their families. They are estimated to be 5500 people. This community wanted to register directly but have been advised to use lawful methods only and this is through Naturalisation.

We have met this community twice and have sensitized them about the exercise, the laws on Uganda citizenship and have expressed willingness to apply to be naturalized under our laws. The Directorate of Citizenship and Immigration Control put in place modalities of fast tracking their applications for Naturalisation through Hoima Regional Immigration office after which, we shall register them and issue them with national identity cards.

Hon. Members, many other communities like the Alur Community in Panyamul, in West Nile qualify for this kind of citizenship and we encourage them to formalize their legal citizenship status before they get registered for ID purposes under this exercise.

4.2. Dual Citizenship

Hon. Members are aware that this country allows for dual citizenship. This is the simultaneous acquisition of two nationalities and one of which is Ugandan. However, there are regulations governing this status and those who want to be recognized as such must formerly apply to the National Citizenship and Immigration Board and if granted they are issued with a Certificate of Dual Citizenship.


Hon. Members, the challenge here is that there is a general feeling that since the law allows dual citizenship; one simply states that he/she is a dual national and some hold two passports illegally. This is illegal and for purposes of the National Identification Register, we strictly apply the legal requirement since there are offices of the state that holders of dual citizenship must not hold.


5.1. Hon. Members, implementing the exercise has not been without challenges. These are continuously being identified and solutions found to resolve them. Below are some of the challenges and actions we have taken to fix them:

Challenges Action Taken
Delay in acquisition of kits and upgrading of the old kits Started with minimum number of kitscountrywide on 14/6/2014.    We are
now at an average kits distribution of 97% in all districts.
Partial   deliveries  to   districtsgreatly affected the budget Plans are underway to deal with anticipated budget overruns
Enrolment Officers trained in April may need refresher training due to a time lag of 2 months Re-training strategies at regions anddistrict   level   in   place.     We   are
continuously training and retraining.
Politicizing the exercise; wrong perception that the enrolment is solely for electoral purposes –        Intensified sensitization-        National, Regional and District

structures     established      to

  1. Availability    of   reliable   power
    in districts
–          Procure more generators forDistricts   to   run   servers   at
District Headquarters.

–      Engaged the Ministry of Energy

and          Mineral     Development to


help us ensure more reliablepower    supply    to     District
Malfunctioning of kits due to poor power supply –        Set up mobile technical teamsto fix faults.

–   Increased number of technical
support staff.

Cases of some administrative Units names missing in the enrolment system (some citizens had refused to register) –        Working with MOLG to resolveAdministrative Units issues

–   Sensitizing    affected   persons
that the issue of names of

administrative   units    will   be
resolved later.

–   Where MOLG has clarified, the
software has been updated.

–       The important point is that the

exercise               is    about      registering

persons         to         enhance
democracy, good governance and service delivery.

Extortion of money from the public by unscrupulous people –        Sensitized the public-       Police   and   Intelligence   has

been   instructed   to    be    on

Some          Parish       VerificationCommittees      and     Enrolment
Officers not being on duty for the planned 10 hours a day, 7 days a week
–       Stepped       up     supervisionthrough     Regional,     District
Coordination Committees, Sub-county and Parish.

–   Some have been dismissed and


5.2. Rt. Hon Speaker, the exercise has presented us not only with challenges but also opportunities. There are numerous opportunities we are reaping. These include among others:

  1. The exercise has become popular and has the support of the political, cultural, religious leadership and the media
  2. The emerging potential of the multi-sectoral approach to service delivery has been clearly demonstrated under this exercise
  3. Pride and sense of ownership by Ugandans
  4. Vigilance by most Ugandans and the security benefits coming along with the exercise.

The vigilance Rt. Hon Speaker and Members, has enabled us to apprehend and deal with wrongdoers e.g. those discouraging others from registering (cults), those extorting money from the public by selling registration forms and asking for money to be registered, those asking for money from the handicapped and the elderly (despite our instructions for these to be assisted free of charge by the Registration Officers and the Local Leadership), those attempting to steal our equipment etc.

Hon Members, I wish to make it clear that the ongoing registration at Parish level, which registration started on 14th April 2014 will go on up to 11th August 2014. After this, registration/enrolment centres will shift to Sub-counties. Registration of the 16+ who will have missed registration at Parish level will go on at Sub-County level up to 27th February 2015 when all registration will stop in order not to interfere with the 2016 Electoral Process. It must however be noted that registration of births and deaths will go on all the time.

Hon. Members, we have adopted new Strategies to enable us complete the exercise;

a)   Re-deployment of enrolment kits from areas where the exercise has been completed like Mitooma, Buvuma, Nakapiripirit and Kayunga to areas where they still have big populations to capture.

b)  Adopting mobile registration centres to look for places with high numbers of unregistered people

c)   Use of LC’s registers to locate unregistered citizens.

d)  Starting continuous registration at Sub-county level immediately after 11th August 2014. This will run up to February 2015. We believe that during this period, all the remaining Ugandans will be registered.

I wish to state Hon Members, that arrangements/structures are being put in place to ensure continuity of the registration of persons. In the event that one misses the Phase One and Phase Two registrations, he/she will still be registered using the structures being set up. NO one will be disfranchised. All citizens will be registered, either during Phase One, or in case they miss it, during the continuous registration process that will be

put in place at sub-county level after Phase One.                 The idea and
commitment is to always have an up-to-date register of persons in Uganda. The current exercise is therefore NOT a one-off. It is building a platform for setting up a live register of persons at all times. This will be achieved by the continuous registration of all births and deaths whenever they occur.


Hon Members, in light of the above, Cabinet approved The Registration of Persons Bill 2014.

The Bill was printed and gazetted on the 18th 2014, in the Uganda Gazette NO 41 vol CVII and will soon be introduced in Parliament for debate and enactment.

The object of this Bill is to harmonize and consolidate the law on registration of persons, to provide for registration of individuals, to


establish a national identification register, to establish a national identification and registration Authority, to provide for the issuance of National identification cards and aliens identification cards and other related matters.


In conclusion Hon Members, let me once again take this opportunity to thank you Hon Members and the entire public for fully embracing the exercise. People are enthusiastically presenting themselves for enrolment. The Hon Members’ public support of the exercise during the Regional sensitization meetings held at the beginning of the exercise, presenting them for registration, constant monitoring of the progress of this exercise has greatly helped. I call upon all of us to continue doing so.

Rt. Hon Speaker, we are aware that the exercise is complex; with a number of challenges. We are however, 100% certain that THAT WE SHALL RUN THE LAST MILE.

Rt. Hon. Speaker, I beg to move. Thank you.



The table below lists the participating and supporting institutions which participated in the development of the mass enrolment strategy and budget. They are also participating in the implementation of the project.

Participating Institution Roles
Ministry of Internal Affairs General Coordination and supervision
Directorate of Citizenship &Immigration Control Providing citizenship verification expertise
Ministry of Information & National Guidance Mass mobilisation and sensitisation
Ministry of Information and Communication Technology ICT Policy framework and guidance
National Information Technology Authority Project Quality IT Assurance
Electoral Commission Providing staff andinstitutional infrastructure
Uganda Registration Services Bureau Human resources and technical input in data collection
Uganda Bureau of Statistics Provides planningstatistics and enrolment analysis
Ministry of Local Government Supporting theadministration of the


project at localgovernment level and the Administrative Units
Uganda Police Law and order, security of equipment and human resources.
Uganda Prisons Service Human resources
Uganda People’s Defence Forces Human resources and security
Internal Security Organisation. Security and Intelligence support



The table below indicates lessons learnt from benchmarking studies undertaken to inform the formulation of a Ugandan Mass Enrolment Strategy – a Country-wide Enrolment Model

Country Observations Lessons learnt
South Africa   With a population ofapproximately 50million.

  They registered 224,000
citizens from Oct, 13. They plan to issue citizens with identity cards in a period of 3-5 years.

  EffectiveCoordination and supervision were emphasised.
Ghana   They had a region byregion mass enrolment exercise with registration centres as close to people as possible.

  Enrolment was undertaken
by the National Identification Authority. Support documents were key; if one didn’t have, a relative under oath had to identify him/her.

  Incorporated theapproach of centres close to people at Parish level.

 We propose the creation of a similar Authority.

 We implemented Parish verification Committees to identify citizens correctly.

UAE   A single government entityis in place for identity provision and to serve multiple strategic objectives.

  Government seeks to save

This is in line with our Multi-Sectoral strategy and the future of our National Identification System when fully established.


billions spent through duplication and hope that these efforts will revolutionalise public services and support the creation of a digital economy.
Kenya Their Election management overhaul failed due to technological problems. Emphasised good planning, coordination and supervision.
There was limited time for them to test the system which had been developed. Good project management practices were recommended.
Many poll workers were poorly trained to use the new technology.



Analysis of the Phase One roadmap:

  1. Mass enrolment is planned to be done at all parishes in the country for a period of 4 month (April – August, 2014). Movement of kits within a parish is allowed; and the timetable for the movement is drawn by the parish supervisor in consultations with the Sub-county Supervisor.
  2. Mass Enrolment at Parish level is planned to end on 11thAugust 2014 to give way for the planned National Population Census activities to take place ; and continuous enrolment will continue from Sub-counties thereafter until 27th February, 2015
  3. Data processing will commence in August 2014; to allow start of card production.
  4. Card issuance will begin in September 2014 at Sub-county level. A one month card issuance exercise at Parish level will be organized in March 2015.
  5. Continuous updating of captured data (e.g. births, deaths, movements, etc) will continue at Sub-county level without time limit.
  6. Raw data will be submitted to EC to prepare their voters register
  7. Phase 1 of the exercise is planned to end April 2015.


Analysis of the Phase Two roadmap:

i. Phase Two will commence after completion of the 2016 General Elections Process.


  1. Similar sequencing of activities performed in phase 1 will be implemented in phase 2
  2. Phase 2 will end in July 2017
  3. On completion of phase 2, a transition strategy from project to operations mode will be put in place to ensure registration continuity so as to always have an up-to-date register of persons. The register will be useful for purposes indicated above i.e. planning, identity authentication, security, provision of social services etc.



The mass enrolment strategy provisioned for the governance structure indicated below. It has been operationalized. Clear roles and responsibilities were defined.

Figure 1: Governance Structure

In 2 weeks of mass enrolment, it was established that there was a critical need to incorporate a coordination and supervision structure to complement the above governance structure.

The coordination and supervision structure below was set up and operationalized. Regional Coordination Committees (RCC) were personally inaugurated by the National Coordinator. District Coordination Committees (DCC) were inaugurated by RCC; while Subcounty committees were inaugurated by DCC. Roles and responsibilities of each committee were clearly stipulated. These committees have helped fixing all localized challenges and concerns.




Below is the process similar to that at an Enrolment Center.

The National Identity Card is going to change lives of Ugandans; life will never be the same in Uganda with the implementation of a National Identification System.



Detailed Performance per District


S/N REGIONS DISTRICTS Est. Population >= 16 years as of Feb 2014 (18Million) Expected
Performance in
15 Weeks With
100% Kits
Provisional Enrolments Reported in 15 Wks %Performance                                                  Actual

Overall                       Remaining                                     Kits

Target for 16                     Distibuted



Actual %
1 Arua KOBOKO 134,152 117,383 66,351 49% 67,801 50 100%
MARACHA 108,542 94,974 78,263 72% 30,279 54 80%
YUMBE 286,938 251,071 88,834 31% 198,104 56 100%
MOYO 238,334 208,543 48,920 21% 189,414 28 100%
NEBBI 183,846 160,865 115,074 63% 68,772 82 100%
ZOMBO 116,279 101,744 62,896 54% 53,383 50 100%
ARUA 433,732 379,515 219,676 51% 214,056 144 100%
1 Arua SUB_TOTAL 1,501,823 1,314,095 680,014 45% 821,809 464 97%
2 Gulu GULU 219,481 192,046 118,581 54% 100,900 96 100%
AMURU 93,830 82,101 59,449 63% 34,381 40 80%
NWOYA 33,020 28,893 20,384 62% 12,636 18 80%
ADJUMANI 208,257 182,224 77,959 37% 130,298 32 100%
2 Gulu SUB_TOTAL 554,588 485,264 276,373 50% 278,215 186 90%
3 Kitgum KITGUM 136,658 119,576 60,799 44% 75,859 70 100%
LAMWO 96,445 84,390 35,136 36% 61,309 29 80%
PADER 132,081 115,571 57,836 44% 74,245 52 100%
AGAGO 168,589 147,515 58,036 34% 110,553 66 100%
3 Kitgum SUB_TOTAL 533,773 467,052 211,807 40% 321,966 217 92%
4 Lira OTUKE 46,860 41,003 28,645 61% 18,215 50 80%


S/N REGIONS DISTRICTS Est. Population >= 16 years as of Feb 2014 (18Million) Expected
Performance in
15 Weeks With
100% Kits
Provisional Enrolments Reported in 15 Wks %Performance                                                  Actual

Overall                       Remaining                                     Kits

Target for 16                     Distibuted



Actual %
ALEBTONG 116,388 101,840 70,261 60% 46,127 20 100%
OYAM 197,904 173,166 96,645 49% 101,259 72 100%
LIRA 219,045 191,665 127,098 58% 91,947 96 100%
KOLE 117,260 102,603 65,600 56% 51,660 42 100%
APAC 179,486 157,051 103,320 58% 76,166 84 100%
AMOLATAR 67,675 59,216 53,968 80% 13,707 32 80%
DOKOLO 92,849 81,243 60,227 65% 32,622 32 80%
4 Lira SUB_TOTAL 1,037,468 907,785 605,764 58% 431,704 428 93%
5 Soroti BUKEDEA 98,298 86,011 67,063 68% 31,235 32 80%
SOROTI 176,435 154,381 88,681 50% 87,754 66 100%
KABERAMAIDO 102,112 89,348 67,677 66% 34,435 35 80%
AMURIA 217,847 190,616 71,577 33% 146,270 50 100%
KUMI 135,677 118,718 66,448 49% 69,229 52 100%
NGORA 82,278 71,993 54,211 66% 28,067 32 80%
SERERE 152,896 133,784 67,041 44% 85,855 52 100%
KATAKWI 97,208 85,057 62,553 64% 34,655 32 80%
5 Soroti SUB_TOTAL 1,062,751 929,907 545,251 51% 517,500 351 90%
6 MOROTO NAKAPIRIPIRIT 89,471 78,287 48,689 54% 40,782 34 80%
AMUDAT 64,188 56,164 27,765 43% 36,423 16 80%
MOROTO 86,855 75,998 30,964 36% 55,891 30 100%
NAPAK 118,677 103,842 24,185 20% 94,492 24 100%
ABIM 33,020 28,893 26,599 81% 6,421 14 80%


S/N REGIONS DISTRICTS Est. Population >= 16 years as of Feb 2014 (18Million) Expected
Performance in
15 Weeks With
100% Kits
Provisional Enrolments Reported in 15 Wks %Performance                                                  Actual

Overall                       Remaining                                     Kits

Target for 16                     Distibuted



Actual %
KOTIDO 146,575 128,253 44,626 30% 101,949 24 100%
KAABONG 85,000 74,375 42,109 50% 42,891 24 80%
6 MOROTO SUB_TOTAL 623,786 545,813 244,937 39% 378,849 166 89%
7 MBALE SIRONKO 126,959 111,089 97,626 77% 29,333 80 100%
BULAMBULI 68,656 60,074 55,643 81% 13,013 54 80%
KAPCHORWA 60,810 53,208 32,270 53% 28,540 21 80%
KWEEN 53,399 46,724 28,990 54% 24,409 16 80%
BUKWO 38,360 33,565 28,453 74% 9,907 32 100%
MBALE 247,598 216,648 170,446 69% 77,152 132 100%
BUDUDA 94,811 82,959 49,225 52% 45,586 36 100%
MANAFWA 193,436 169,256 90,317 47% 103,119 70 100%
7 Mbale SUB_TOTAL 884,028 773,524 552,970 63% 331,058 441 93%
8 Bukedi PALLISA 178,724 156,383 115,819 65% 62,905 76 100%
KIBUKU 89,689 78,478 55,743 62% 33,946 30 80%
BUDAKA 89,253 78,096 63,337 71% 25,916 35 80%
BUSIA 154,857 135,500 90,207 58% 64,650 70 100%
TORORO 258,713 226,374 152,798 59% 105,915 120 100%
BUTALEJA 111,920 97,930 70,236 63% 41,684 48 100%
8 Bukedi SUB_TOTAL 883,156 772,761 548,140 62% 335,016 380 93%
9 JINJA JINJA 272,226 238,198 210,920 77% 61,306 124 100%
MAYUGE 227,001 198,626 183,477 81% 43,524 100 100%
NAMUTUMBA 104,728 91,637 91,319 87% 13,409 50 100%


S/N REGIONS DISTRICTS Est. Population >= 16 years as of Feb 2014 (18Million) Expected
Performance in
15 Weeks With
100% Kits
Provisional Enrolments Reported in 15 Wks %Performance                                                  Actual

Overall                       Remaining                                     Kits

Target for 16                     Distibuted



Actual %
KAMULI 237,898 208,161 169,452 71% 68,446 104 100%
LUUKA 121,183 106,035 91,655 76% 29,528 56 100%
BUYENDE 129,684 113,473 97,764 75% 31,920 40 100%
IGANGA 244,546 213,978 197,334 81% 47,212 112 100%
KALIRO 108,651 95,069 86,728 80% 21,923 48 100%
BUGIRI 212,507 185,943 149,735 70% 62,772 88 100%
NAMAYINGO 122,273 106,989 89,477 73% 32,796 52 100%
9 JINJA SUB_TOTAL 1,780,697 1,558,110 1,367,861 77% 412,836 774 100%
10 LUWERO LUWERO 214,577 187,755 129,514 60% 85,063 102 100%
NAKASONGOLA 79,118 69,228 49,616 63% 29,502 29 80%
NAKASEKE 96,009 84,008 69,928 73% 26,081 37 80%
KIBOGA 85,112 74,473 50,072 59% 35,040 36 100%
KYANKWANZI 97,099 84,962 67,774 70% 29,325 42 100%
10 LUWERO SUB_TOTAL 571,915 500,426 366,904 64% 205,011 246 92%
11 Kampala KAMPALA CENTRAL 94,484 82,673 102,242 108% -7,758 101 100%
NAKAWA 289,009 252,883 187,696 65% 101,313 128 100%
RUBAGA 301,759 264,040 171,229 57% 130,530 121 100%
MAKINDYE 244,001 213,501 190,364 78% 53,637 129 100%
KAWEMPE 256,861 224,753 165,783 65% 91,078 121 100%
11 Kampala SUB_TOTAL 1,186,114 1,037,850 817,314 69% 368,800 600 100%
12 Wakiso WAKISO I 809,596 229,835 77% 184,666 196 100%


S/N REGIONS DISTRICTS Population >=16 years as of
Feb 2014 (18
Performance in
15 Weeks With
100% Kits
Provisional Enrolments Reported in 15 Wks %Performance                                                  Actual

Overall                       Remaining                                     Kits

Target for 16                     Distibuted



Actual %
WAKISO II 395,095 162 100%
MPIGI 106,035 92,781 79,423 75% 26,612 46 100%
12 Wakiso SUB_TOTAL 915,631 801,177 704,353 77% 211,278 404 100%
13 Mukono KAYUNGA 172,512 150,948 128,244 74% 44,268 82 100%
MUKONO 288,682 252,597 189,390 66% 99,292 126 100%
BUIKWE 223,731 195,765 154,606 69% 69,125 98 100%
BUVUMA 38,578 33,756 39,415 102% -837 30 100%
13 Mukono SUB_TOTAL 723,503 633,066 511,655 71% 211,848 336 100%
14 Mityana MITYANA 155,075 135,691 85,053 55% 70,022 96 100%
MUBENDE 312,984 273,861 121,335 39% 191,649 144 100%
BUTAMBALA 43,373 37,952 42,858 99% 515 30 100%
GOMBA 72,470 63,411 50,561 70% 21,909 32 100%
14 Mityana SUB_TOTAL 583,903 510,915 299,807 51% 284,096 302 100%
15 MASAKA KALUNGU 84,458 73,901 66,636 79% 17,822 36 100%
SSEMBABULE 113,010 98,884 91,762 81% 21,248 70 100%
BUKOMANSIMBI 72,252 63,221 53,043 73% 19,209 30 100%
MASAKA 134,914 118,050 118,766 88% 16,148 92 100%
KALANGALA 56,450 49,394 31,706 56% 24,744 24 100%
RAKAI 246,508 215,694 179,032 73% 67,476 122 100%
LYANTONDE 43,591 38,142 34,364 79% 9,227 18 100%
LWENGO 132,190 115,666 50,553 38% 81,637 56 100%


S/N REGIONS DISTRICTS Est. Population >= 16 years as of Feb 2014 (18Million) Expected
Performance in
15 Weeks With
100% Kits
Provisional Enrolments Reported in 15 Wks %Performance                                                  Actual

Overall                       Remaining                                     Kits

Target for 16                     Distibuted



Actual %
15 MASAKA SUB_TOTAL 883,374 772,952 625,862 71% 257,512 448 100%
16 MBARARA KIRUHURA 170,223 148,945 116,348 68% 53,875 74 100%
IBANDA 137,530 120,339 83,227 61% 54,303 60 100%
MBARARA 254,245 222,465 177,793 70% 76,452 126 100%
ISINGIRO 225,257 197,100 128,174 57% 97,083 126 100%
NTUNGAMO 256,643 224,562 143,043 56% 113,600 120 100%
16 MBARARA SUB_TOTAL 1,043,898 913,411 648,585 62% 395,313 506 100%
17 BUSHENYI BUSHENYI 132,408 115,857 77,359 58% 55,049 54 100%
SHEEMA 117,042 102,412 76,370 65% 40,672 34 80%
BUHWEJU 50,675 44,340 37,371 74% 13,304 24 100%
RUBIRIZI 65,387 57,213 51,180 78% 14,207 24 80%
MITOOMA 98,734 86,392 91,289 92% 7,445 42 100%
17 BUSHENYI SUB_TOTAL 464,245 406,215 333,569 72% 130,676 178 92%
18 KIGEZI RUKUNGIRI 166,627 145,799 100,243 60% 66,384 80 100%
KANUNGU 133,171 116,524 110,337 83% 22,834 62 100%
KABALE 262,636 229,807 164,240 63% 98,396 128 100%
KISORO 125,106 109,468 88,547 71% 36,559 74 100%
18 KIGEZI SUB_TOTAL 687,541 601,598 463,367 67% 224,174 344 100%
19 KABAROLE KYENJOJO 194,852 170,496 104,753 54% 90,099 86 100%
KASESE 394,391 345,092 238,289 60% 156,102 172 100%
KABAROLE 220,026 192,523 179,709 82% 40,317 126 100%
KAMWENGE 174,582 152,760 107,575 62% 67,007 102 100%


S/N REGIONS DISTRICTS Est. Population >= 16 years as of Feb 2014 (18Million) Expected
Performance in
15 Weeks With
100% Kits
Provisional Enrolments Reported in 15 Wks %Performance                  Actual

Overall                     RemainingKits

Target for 16            Distibuted



Actual %
KYEGEGWA 81,297 71,135 55,820 69% 25,477 27 80%
NTOROKO 46,098 40,335 30,357 66% 15,741 21 80%
BUNDUBUGYO 142,434 124,630 95,025 67% 47,409 58 100%
19 KABAROLE SUB_TOTAL 1,253,680 1,096,970 811,528 65% 442,152 592 94%
20 HOIMA HOIMA 300,561 262,991 167,573 56% 132,988 108 100%
KIBALE 346,767 303,421 193,085 56% 153,682 130 100%
KIRYANDONGO 167,063 146,180 141,755 85% 25,308 50 100%
MASINDI 199,865 174,882 215,578 108% -15,713 78 100%
BULIISA 43,373 37,952 66,572 153% -23,199 22 100%
20 HOIMA SUB_TOTAL 1,057,629 925,426 784,563 74% 273,066 388 100%
TOTAL 18,233,505 15,954,317 11,400,624 63% 6,832,881 7,550 97%


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