Understanding Uganda's Lawmaking Process

In Uganda, a bill is a proposal for a new law or a proposal to change an existing law that is presented for debate before Parliament. The process of a bill becoming a law involves several stages, including readings, committee considerations, and approvals.

The first step is the First Reading, where a member of Parliament introduces the bill, followed by its referral to a committee for analysis and public input. After this, the bill returns to the plenary for the Second Reading, where the main principles, reasons, and benefits are outlined. The House then debates the bill, considering amendments, before approving it and moving to the Third Reading. Finally, Parliament passes the bill as an Act, and it is sent to the President for assent, becoming an Act of Uganda.

Bills are introduced in August House for examination, discussion, and amendment

Bills are introduced in the August House for examination, discussion, and amendment. This is the first reading of the bill, during which a member introduces the bill and provides copies for other members to refer to. The clerk then reads the title of the bill, after which it is sent to an appropriate committee for analysis before the second reading.

The committee responsible for the bill has 45 days to report back to the House on its findings. Any proposals to amend or include new clauses are presented to the committee, which will then scrutinize them along with the bill and produce a final report for the House.

During the second reading, the Vice-President, Minister, or private member outlines the main principles, reasons, and benefits of the bill, as well as a review of the most important clauses. The House then receives the committee report and the opposition response, and the debate is opened to other members and opposition parties. If the House accepts and adopts the committee report, the bill is considered read for the second time.

Following the second reading, the House proceeds to debate the bill at the committee stage or fix another date for discussion. The bill is examined in detail, considering one clause or sub-clause at a time, and it may be agreed to, amended, or rejected based on majority votes without altering the main principle of the bill.

There are two types of bills: government and private members' bills

In Uganda, a bill is a proposal for a new law or a proposal to change an existing law that is presented for debate before Parliament. There are two types of bills: government bills and private members' bills. A government bill is moved by a government minister, while a private members' bill is introduced by any other member of parliament. The key difference between the two is that the drafting of a private members' bill involves legal assistance from the Legal Department of the Government, as outlined in the Rules of Procedure No 111(2).

The process of a bill becoming a law in Uganda involves several stages, starting with the first reading, where a member introduces the bill and provides copies for reference by other members. The clerk then reads the title of the bill, and it is considered read for the first time. The bill is then sent to an appropriate committee for analysis before the second reading.

During the second reading, the Vice-President, Minister, or private member outlines the main principles, reasons, and benefits of the bill, along with a review of the most important clauses. The House receives the committee report and the opposition response, and the debate is opened to other members and opposition parties. If the House accepts and adopts the committee report, the bill is considered read for the second time.

The third reading of the bill is then moved upon a motion, and it is examined in detail, considering each clause or subclause, which may be agreed to, amended, or rejected based on majority votes without altering the main principle of the bill. The speaker assumes the chairmanship, presiding over the committee of the whole house. The bill then requires a specific quorum of parliament for passing, which is one-third of all MPs entitled to vote.

Once the committee of the whole house concludes its deliberations and agrees on the bill, it is considered for the third reading. The speaker puts forward the question that the bill be read for the third time. At this final stage, Parliament passes the bill as an Act of Parliament, and it is then sent to the President for assent, where it becomes an Act of Uganda.

A bill undergoes several stages before becoming an Act of Parliament

The committee then has 45 days to report back to the house on its findings regarding the bill. Any proposals to amend or include new clauses are presented to the committee, which will be scrutinised along with the bill to produce a final report to the house.

The second reading is moved by the Vice-President, a Minister, or a private member. At this stage, the main principles, reasons, and benefits of the bill are outlined, along with reviews of the most important clauses. The House will then receive the committee report and the opposition response, and the debate is opened to other members and opposition parties.

Once the House accepts and adopts the committee report, the bill is considered read for the second time. A motion for a second reading is then adopted, after which the House proceeds with the debate, examining the bill in detail, considering one clause or sub-clause at a time, agreeing, amending, or rejecting based on majority votes without altering the main principle of the bill.

The final stage is the third reading, where Parliament passes the bill as an Act of Parliament, and it is then sent to the President for assent, becoming an Act of Uganda.

A bill must be presented for a first, second, and third reading

The process of a bill becoming a law in Uganda involves several stages, including a first, second, and third reading.

The first reading is when a bill is introduced to Parliament. A member introduces the bill and provides copies for reference by other members. The clerk then reads the title of the bill, and it is considered read for the first time. The bill is then sent to an appropriate committee for analysis and consideration before the second reading. The first reading is typically a formality and takes place without debate.

The second reading is when the bill is returned to the plenary for further consideration. It is the first opportunity for Members of Parliament (MPs) to debate the main principles, reasons, and benefits of the bill, as well as review the most important clauses. The House will receive the committee report and the opposition response, and the debate is opened to other members and opposition parties. If the House accepts and adopts the committee report, the bill is considered read for the second time.

The third reading is the final chance for MPs to debate the contents of a bill. The debate is usually short and focused on what is included in the bill. After the third reading, the bill is passed as an Act of Parliament and sent to the President for assent, where it becomes an Act of Uganda.

A bill is sent to a committee for analysis before the second reading

In Uganda, a bill is sent to a committee for analysis before the second reading. This is an important stage in the consideration of a proposed law, as it is the window through which the public can formally contribute to law-making. The committee invites proposals from the general public and interested parties before returning the bill to the plenary for further consideration.

The committee stage is also when each clause and any amendments to the bill may be debated. The committee responsible for reviewing the bill has 45 days from the day of the first reading to report back to the house on its findings. During this time, the committee may invite non-legislators to give their views on the bill. These could include experts in the field, researchers, firms or entities involved in the sector touched by the bill, students, or even individuals with knowledge or interest in the subject.

For instance, during the consideration of the National Teachers Bill, 2024, the House committee invited 22 stakeholders and received memoranda from more than 20 entities, including the Ministry of Education, UNEB, NCDC, teachers' groupings, and unions. The committee may also visit other countries to interact with relevant groups, as was the case with the National Teachers Bill, where the committee visited Ghana and interacted with teachers' groupings.

The committee stage is meant to ensure that the final law or position reflects the views of as many people as possible and is based on proper research and correct information. Although the public can also give their views on bills during the second reading, this is less formal and may not be recorded.

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