EMBARGO: NOT FOR PUBLICATION BEFORE 1300 HRS GMT 28JULY 1995
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26July1995
CONTINUING REFORMS SEEN ASCRUCIAL FOR REBUILDING THE ECONOMY
TRADE POLICY REVIEW OFUGANDA
Ravaged bylongperiods ofpolitical turbulence during the1970s andmid-1980s, Uganda has
spent much ofthepastdecade rebuilding itseconomy. With theimplementation ofacomprehensive
andambitious reform agenda, which began withtheEconomic Recovery Programme of1987 and
continued withtheRehabilitation andDevelopment Planof1993, Uganda isstarting again tocapitalize
onitsnatural assets andfavourable conditions forfarming andtourism.
According toaWTO Secretariat report, thereforms aresupported bymore discipline inpublic
expenditure, arationalized taxsystem, privatization ofanumber ofStateenterprises andthemaintenance
ofanexchange rateinlinewithmarket realities. Trade liberalization andinternal deregulation, including
thederestriction offarm prices, arealsoinjecting adegree ofcompetition intoUganda 'slimited
manufacturing andservices industries.
Virtually allquantitative restrictions havegone since theintroduction in1991 ofautomatic
licensing under anImport Certification System. Thecurrent "negative list"isconfined tobeer, soda
(softdrinks),carbatteries,usedcartyresandspecifiedtypesofcommunicationsandelectricalequipment.
Therestrictions protect local industries inthefirstfourcategories. Thelifting ofanimport banon
cigarettes in1994wasmade contingent onthebeneficiary company buying domestic leafforprocessing
abroad. Mirroring developments ontheimport side,thereport states thatmany export-related barriers
anddisincentives havedisappeared. In1990 export licensing requirements were replaced byaless
restrictive export certification system. Export taxes havealsobeenabolished.
Asaresult oftheUruguay Round, Uganda 'slevel oftariff bindings increased significantly
tocover aquarter ofalltariff lines(87percentofagricultural andfishery products and15percent
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ofindustrialproducts),althoughmanyboundratesremainhigherthantheappliedtariffs.Tariffscurrently
contribute about twofifths ofGovernment revenue, andefforts areunderway toshifttherevenue base
towards indirect andincome taxes. Inthisconnection, avalue-added taxistobeintroduced in1996.
Rehabilitation andmodernization oftheinfrastructure andofbasicbusiness services havebeen
given toppriority. TheGovernment hassought, inparticular, tomake thebanking sector moreefficient
andtoderegulate thetransport industry. Reforms intelecommunications mayfollow suit; inthis
connection, thereport notes thatthemodernization ofthebasictelecommunications network andreform
ofthepricing structure would beofsignificant benefit toUganda 'seconomy. Thesame applies to
electricity generation anddistribution, whose reliability seriously suffers from outdated equipment.
Thereport states thatUganda 'sInvestment Code, enacted in1991, reversed long-standing
antipathy towards foreign investment. Itintroduced standard provisions regarding investment incentives
(e.g.taxholidays), profit repatriation andprotection against expropriation ofassets. These provisions,
together withtherecent waveofprivatizations, arecreating newopportunities forbothlocalandforeign
investors.
UgandaparticipatesintheCommonMarketforEasternandSouthernAfrica(COMESA),which,
inDecember 1994, replaced thePreferential Trade AreaforEastern andSouthern African States (PTA).
TheCOMESATreaty,laysdownanambitiousliberalizationagenda,includingthecreationofafree-trade
areaby2000, acustoms union by2004and,eventually, aneconomic andmonetary union. According
tothereport, co-operation istobereinforced insuchareas ascustoms procedures, standardization,
anti-dumping andcountervailing measures, competition policy, capital movements andtheprevention
ofsmuggling. While halfofthecountry 'sexports, mainly coffee, aredestined fortheEuropean Union,
about onequarter goestoother COMESA members.
Thereport concludes thattrade policy and,inparticular, thecreation ofadomestic trading
environment inwhich anti-export biasisdiminished orabsent hasanimportant rôletoplayinUganda 's
future development. Enhanced international integration, based oncommitments under WTO and
COMESA, willhelpensure themomentum ofreform, spurresource efficiency, provide market potential
foremerging industries, andencourage long-term development oftradeandinvestment. Uganda 'srecent
performance testifies towhat liberalization andeconomic reforms canachieve rapidly inapoor,
devastated economy; continuation andconsolidation oftheprocess iscrucial intherebuilding ofthe
economic structure.
Notes toEditors
1.TheWTO Secretariat 'sreport, together withareport prepared byUganda willbediscussed bythe
WTO Trade Policy Review Body (TPRB) on27and28July1995.
2.The WTO Trade Policy Review Body conducts acollective evaluation ofthefullrange oftradepolicies
andpractices ofeachWTO member atregular periodic intervals andmonitors significant trends and
developments which mayhaveanimpact ontheglobal trading system.
3.The tworeports, together witharecord oftheTPRB 'sdiscussion andoftheChairman 'ssumming
up,willbepublished induecourse asthecomplete tradepolicy review ofUganda andwillbeavailable
from theWTO Secretariat, Centre William, Rappard, 154ruedeLausanne, 1211 Geneva 21.
4.The reports cover developments ofallaspects ofUganda 'strade policies, including domestic laws
andregulations, theinstitutional framework, trade-related developments inthemonetary andfinancial
MOREPRESS/TPRB/12
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sphere, tradepractices bymeasure andtradepolicies bysector. Attached arethesummary observations
fromtheSecretariat andgovernment report. Fullreports willbeavailable forjournalists fromtheWTO
Secretariat onrequest.
5.Since December 1989, thefollowing reports havebeencompleted: Argentina (1992), Australia (1989
&1994), Austria (1992), Bangladesh (1992), Bolivia (1993), Brazil (1992), Cameroon (1995), Canada
(1990, 1992&1994), Chile (1991), Colombia (1990), Costa Rica(1995), Côted'Ivoire (1995), Egypt
(1992), theEuropean Communities (1991, 1993&1995), Finland (1992), Ghana (1992), Hong Kong
(1990 &1994), Hungary (1991), Iceland (1994), India(1993), Indonesia (1991 and1994), Israel (1994),
Japan (1990, 1992and1995), Kenya (1993), Korea, Rep.of(1992), Macau (1994), Malaysia (1993),
Mexico(1993),Morocco(1989),NewZealand(1990),Nigeria(1991),Norway(1991),Pakistan(1995),
Peru(1994), thePhilippines (1993), Poland (1993), Romania (1992), Senegal (1994), Singapore (1992),
South Africa (1993), Sweden (1990 &1994), Switzerland (1991), Thailand (1991), Tunisia (1994),
Turkey (1994), theUnited States (1989, 1992 &1994), Uruguay (1992) andZimbabwe (1994).
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TRADE POLICY REVIEW BODY
UGANDA
Report bytheSecretariat -Summary Observations
TheEconomic Environment
Between the1970s andmid-1980s, Uganda suffered longperiods ofpolitical turbulence -
amounting attimes tocivilwar-andpooreconomic management. By1986, theeconomy layinruins,
withremainingoperatorsdiscouragedbyrampantinflation,rigidpriceregulationandahighlyovervalued
currency.
Since therestoration ofpeace andinstitutional stability in1986/87, Uganda haspursued a
comprehensive andambitious reform agenda. With theEconomic Recovery Programme (ERP) of
1987 andtheRehabilitation andDevelopment Plan(RDP) of1993, theauthorities havebegun again
tocapitalize onthecountry 'snatural assets offertile soilsandamoderate climate andtorehabilitate
itsoncewell-developed infrastructure. However, despite strong growth since 1987, atanannual rate
ofaround 5percent, recorded percapita income remains among thelowest intheworld andmany
economic andsocial problems persist, notleastindealing withtheeffects ofAIDS.
Progress hasbeenmade inmany policy areas. Public expenditure hasbeen disciplined and
thetaxsystem rationalized; anumber ofStateenterprises divested andstripped ofmonopoly rights;
theexchange ratebrought intolinewithmarket realities and,later, allowed tofloat; andcurrency
surrender requirements abolished. Withtightening ofmonetary policy, inflation hassubsided andreal
interest rates haveturned positive. Expropriated assets arebeing returned toprevious owners and
newinvestorsattractedthroughliberalapprovalpractices.Tradeliberalizationandinternalderegulation,
including thederestriction offarmprices, arecontributing torestore balance intheincentive system,
andtoinject adegree ofcompetition intoUganda 'slimited manufacturing andservices industries.
Informal economic activities, inparticular small-scale cropproduction andlivestock farming,
currently represent about onethird ofGDP. While Uganda 'seconomic survival during theperiod
ofcivilwar,anditspresent recovery, owemuch totheresilience ofthese activities, theirintegration
intheformal sector could nowhelpmobilize under-utilized factors ofproduction andbroaden the
resource baseforfuture expansion.
Uganda inWorld Trade
Uganda 'sinternational trade isrelatively small andlopsided. Exports aredominated by
agricultural products, withcoffee contributing overhalfofmerchandise exports in1993. There has
beenadegree ofrecovery inother traditional areas, suchastea,cotton andtobacco, anddiversification
intonon-traditional products, including cereals andfish. Thistrend hasbenefited fromthereduction
ofpolicy distortions, moves towards regional trade integration and,untilrecently, improved relative
terms oftrade duetoadecline inworld coffee prices. About halfofUganda 'smerchandise exports
aretakenbytheEuropeanUnion,andmayqualifyforpreferentialtreatmentundertheLoméConvention;
anadditional quarter isdestined forother participants intheCommon Market forEastern andSouthern
Africa (COMESA), inparticular neighbouring Kenya andTanzania, whose share isgrowing rapidly.
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Merchandise imports havelargely exceeded exports, withdemand boosted byforeign donor
funding inrecent years; unrequited transfers represent over10percentofUganda 'sGDP. Reflecting
therehabilitationofinfrastructureandindustry,theimportbasketconsistsmainlyofmachinery,transport
equipment andothermanufactures. TheEuropean Union isbyfarthemostimportant source; however,
imports from Japan havegrown rapidly.
Paymentsfortechnicalassistanceandfortravel,educationalandmedicalserviceshavetranslated
intosignificant deficits inservices trade. Economic andpolitical stabilization is,however, helping
thetourist industry, which seeks toregain itsprevious rôleasUganda 'ssecond largest export earner.
Mirroringtheirimportanceastradingpartners,theEuropeanUnionand,increasingly,COMESA
countries areUganda 'sleading foreign investors. Starting from verylowlevels, commitments have
picked up,reflecting confidence inthecountry 'seconomic management, theabolition ofrestrictive
approval procedures and,possibly, thepulleffects ofincentives. Food processing, construction and
business services arethemain areas ofnewinvestment.
Legal andInstitutional Framework
TheRepublic ofUganda isheaded byanexecutive President, whochairs aCabinet ofMinisters
appointed byhim. Most members ofUganda 'slegislature, theNational Resistance Council (NRC),
wereelected byCounty Councils; about aquarter werenominated bythePresident. While theCabinet
hasoverall responsibility fortradepolicy formulation andimplementation, theNRCexercises itspowers
mainly through thepassing ofStatutes, including annual Finance Statutes specifying tariffs andtaxes.
Acomprehensive revision oftheConstitution isunderway.
Thechange inpolicy direction since1987hasaltered Uganda 'sinstitutional structure. Various
Statemarketing bodies, including intheareasofcoffee andcotton, havebeenstripped oftheirmonopoly
rights andreorganized exclusively withregulatory functions. Since 1993, outofover100State-owned
enterprises, 18have been privatized and11liquidated, andmany more arescheduled foreither
privatization orliquidation by1997.
Recent changes inbanking legislation areintended tostrengthen theBank ofUganda 'srôle
asmonetary authority andenhance itssupervisory functions overfinancial institutions. Theoperation
oftheUganda Revenue Authority (URA), setupin1993, isexpected toimprove revenue andtax
collection. Under theInvestment Code of1991, theUganda Investment Authority (UIA) operates as
aone-stop shopforinvestment approvals andincentives.
Trade Policy Features andTrends
UgandahasbeenaGATTcontractingpartysinceindependencein1962.ItratifiedtheMarrakesh
Agreement inSeptember 1994tobecome afounding member oftheWorld Trade Organization (WTO).
Asaresult oftheUruguay Round, Uganda 'slevel oftariff bindings increased significantly
tocover aquarter ofalltariff lines(87percentofagricultural andfishery products and15percent
ofindustrial products), although many bound ratesremain higher thantheapplied tariffs. NewWTO
rulesanddisciplines mayresult inlegislative changes inareas suchascustoms valuation, preshipment
inspection, anti-dumping andcountervailing actions, safeguards, andtrade-related investment measures
(TRIMs). Accession tothePlurilateral Agreement onGovernment Procurement isunder study. In
services, Uganda 'sspecific commitments governing market access andnational treatment areconfined
totourism andsubject tocertain limitations; noexemptions from m.f.n. treatment havebeennoted
intheUruguay Round Schedule.
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UgandaparticipatesintheCommonMarketforEasternandSouthernAfrica(COMESA),which,
inDecember 1994, replaced thePreferential Trade AreaforEastern andSouthern African States (PTA).
TheCOMESA Treaty, signed byover20African States, laysdown anambitious liberalization agenda,
including thecreation ofafree-trade areaby2000, acustoms union by2004 and,eventually, an
economic andmonetary union. Co-operation istobereinforced insuchareas ascustoms procedures,
standardization, anti-dumping andcountervailing measures, competition policy, capital movements,
andprevention ofsmuggling.
Type andIncidence ofPolicy Instruments
Trade liberalization hasbeencentral toUganda 'sreform programme since 1987. Virtually
allquantitative restrictions havegonesince theintroduction in1991 ofautomatic licensing under an
Import Certification System, which allows certificate holders toimport allgoods notspecifically listed.
Thecurrent "negative list"isconfined tobeer, soda(softdrinks), carbatteries, usedcartyres and
specified types ofcommunications andelectrical equipment; therestrictions protect localindustries
inthefirstfourcategories. Thelifting ofanimport banoncigarettes in1994 wasmade contingent
onthebeneficiary company buying domestic leafforprocessing abroad.
Improvements were alsomade incustoms procedures, benefiting from theintroduction ofa
Taxpayer Identification Number andreview oftheCustoms andExcise Management Act. The
Government hopes tophase outtheexisting preshipment inspection (PSI) requirement andplans to
change thebasisofcustoms valuation fromthecurrent Brussels Definition totheWTO Valuation Code.
Continued concern hasbeenexpressed bysome localmanufacturers, however, about inefficiency in
customs treatment andsmuggling, duemainly toinsufficient staffing andinfrastructural bottlenecks.
Uganda hasnospecific safeguards law-although theGovernment plans tointroduce such
legislationbasedontheWTOSafeguardsAgreement-andprovisionsforanti-dumpingandcountervailing
actions havenotbeeninvoked foratleastadecade. There arenoimport deposit orsimilar obligations,
andimporters haveunlimited access toforeign exchange atmarket rates.
Given theimportance ofinfrastructure rehabilitation, government procurement practices may
haveastrong impact ontrade flows. Under current procurement procedures, some 80percentof
centralgovernmentpurchasingisinprinciplesubjecttoopentendering.Ugandansuppliersaregenerally
afforded apreferential margin of15to20percentoverimports. Significant purchases areeffected
viabilateral andmultilateral donors, andaretherefore subject totheirspecific criteria.
With non-tariff barriers disappearing, Uganda 'scustoms tariff isthedominant protective
instrument. After rationalization inrecent years, the1994/95 schedule hasfiveadvalorem ratesbetween
zeroand60percent. More than95percentofalltariff linesfallbetween 10and30percent, and
thesimple average ratestands at17.1percent. Preferential ratesonintra-COMESA imports, covering
thewhole product range, average 11.7percent. Higher tariffs areconcentrated insectors ofinterest
toUgandan producers suchasfarmproducts, fish,processed food, textiles andleather. Effective tariff
protection islikely tobereinforced through thewidespread useofdutyandtaxexemptions onbasic
inputs. Tariffs currently contribute about twofifths ofGovernment revenue; efforts areunderway
toshifttherevenue basetowards indirect andincome taxes. Inthisconnection, value-added taxis
scheduled forintroduction in1996.
Mirroring developments ontheimport side, many export-related barriers anddisincentives
havedisappeared. In1990 export licensing requirements were replaced byalessrestrictive export
certification system; export taxes havealsobeenabolished.
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Coffee remains aspecial case. Exporters must beregistered, andshipments aresubject to
"indicative" prices andquality controls. TheGovernment hasreserved theright torestrain export
volumes "inlinewiththedemands ofinternational obligations", inparticular theCoffee Retention
Scheme agreed tobymajor producing countries in1993. ACoffee Stabilization Tax,introduced in
1994, isintended toeaseupward pressure ontheexchange rateresulting from coffee price increases
and,thus, improve conditions forother exporting orimport-competing sectors.
TheInvestment Code enacted in1991reversed long-standing official antipathy towards foreign
investment andintroduced standard provisions regarding investment incentives (e.g.taxholidays), profit
repatriation andprotection against expropriation ofassets. These provisions, together withtherecent
wave ofprivatizations, arecreating newopportunities forbothlocal andforeign investors. Afew
constraints remain, however. Foreign investment issubject toprior, although nearautomatic, approval
andhigher qualification levels fortaxincentives apply toforeign investors thantoUgandans. Moreover,
therégime contains sectoral preferences forforeign investment indesignated Priority Areas.
Sectoral Policy Patterns
Small-scale coffee growing andsubsistence farming wereamong thefewactivities thatemerged
largely unscathed fromUganda 'sslideintopolitical andeconomic disarray. However, otheragricultural
production, particularly oftea,cotton, andtobacco, hasresponded swiftly totherehabilitation
programme. Toencourage product diversification andpromote foodself-sufficiency, many farmsectors
havebeengranted above-average tariffprotection onfinalproducts, combined withfreeentryforinputs
(fertilizers, pesticides, seeds, agricultural machinery andtools).
Pastimport-substitution policies formanufacturing havelargely -onpaper atleast -been
abandoned. Uganda 'ssmall industrial sector accounts forsome6percentofGDP. Itscurrent mainstays
arefarm-based processing industries suchascoffee, beverages (beer andsoda), textiles andleather.
Asinagriculture, theGovernment hassought toenhance industrial efficiency through deregulation,
privatization andtrade liberalization. Again, however, acombination ofhightariffs andduty
exemptions -or,insome cases, import bansunder thenegative list-isgeared topromoting selected
"infant" industries andmaymaintain substantial effective protection. Inaddition, under theInvestment
Code, theUIAmaygrant investment incentives conditional upon theuseoflocal inputs orexport
performance.
Whiletheincentiveschemeisintendedtobroadentheregionalandsectoralpatternofproduction,
itscontinuing imbalances maydiscourage activities which could perform better inamore neutral
environment. Theplanned reform ofthetaxsystem could provide scope forfurther, broader-based
tariff cutsandhelpreduce suchrisks.
Rehabilitation andmodernization oftheinfrastructure andofbasicbusiness services havebeen
given toppriority. TheGovernment hassought, inparticular, tomake thebanking sector more efficient
andderegulate thetransport industry. Reforms intelecommunications mayfollow suit; inthis
connection, modernization ofthebasictelecommunications network andreform ofthepricing structure
would beofsignificant benefit toUganda 'seconomy. Thesame applies toelectricity generation and
distribution, whose reliability seriously suffers from outdated equipment.
Trade Policies andForeign Trading Partners
Autonomous trade andinvestment liberalization hasbeen akeytoUganda 'seconomic
performance since themid-1980s. Ithashelped toattract foreign donors andinvestors andcreate the
conditions forrapid economic recovery. Toimprove theresource baseforcontinued expansion,
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investment flows would needtobecomplemented byenhanced domestic capital formation. Although
theprincipal macroeconomic conditions areinplace -fiscal prudence andalow-inflation environment -
private savings haveremained low. However, withconfidence growing inUganda 'seconomic and
institutional stability, thisislikely tochange.
Trade policy and,inparticular, thecreation ofadomestic trading environment inwhich anti-
export biasisdiminished orabsent hasanimportant rôletoplayinUganda 'sfuture development.
Enhanced international integration, based oncommitments under WTO andCOMESA, willhelpensure
themomentum ofreform, spurresource efficiency, provide market potential foremerging industries,
andencourage long-term development oftradeandinvestment. Uganda 'srecent performance testifies
towhat liberalization andeconomic reforms canachieve rapidly inapoor, devastated economy;
continuation andconsolidation oftheprocess iscrucial intherebuilding oftheeconomic structure.
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TRADE POLICY REVIEW BODY
UGANDA
Report bytheGovernment ofUganda -Summary Extracts
Overview
Uganda which became independent inOctober 1962 isanEastAfrican country whose post-
independent history hasbeencharacterised bycivilstrife andpolitical instability. However, withthe
coming intopower oftheruling National Resistance Movement Government, theruleoflaw,peace
andstability havebeenrestored.
About 90percentofthe17million population ofUganda liveinruralareas where theydepend
directly onagricultural andrelated activities forlivelihood. Atthemoment thecountry relies heavily
oncoffee andafewprimary commodities foritsexports. Inorder towiden (expand) theexport base,
theGovernment ofUganda hasembarked onanambitious Export Diversification Programme topromote
thenon-traditional crops.
Since May1987, theGovernment ofUganda hasbeenpursuing boldmacro-economic policies
andimplementing anEconomic Recovery Programme aimed atachieving economic stabilization in
theshort-term andsustained growth inthemedium tolongterm.
Asaresult ofthese measures, Uganda 'seconomy registered anaverage annual growth of
5.7percentforthelastsixyears. Overthisperiod, percapita incomes roseby2.8percentperannum.
However average percapita stillremains verylowatUS$170.
TheEconomic Recovery Programme (ERP) aimed atthree major objectives:
(a) Restoring economic stability byreducing inflation through fiscal management and
monetary performance;
(b) Accelerating growth inproduction forexport through priceliberalization, deregulation
ofeconomic activity andencouraging saving andinvestment;
(c) Expanding social andeconomic infrastructure toincrease productivity, reduce poverty
andimprove standards ofliving ofthepopulace.
Uganda 'seconomy wasdevastated bypolitical andcivilconflict extending overtwodecades
between 1966-1985. When theNRM came topower in1986, itembarked uponstructural adjustment
programmes aimed atreviving theeconomy asquickly aspossible.
DuetoGovernment 'sdetermination inpursuing sound macro-economic policies andthe
implementation ofstructural reforms, inflation hasbeen brought under control, there hasbeen
improvement inthebudgetary deficit andasubstantial riseinprivate transfers totheeconomy. Uganda
hasmadegoodprogressineconomicrecoveryasGovernmentmovesfromrehabilitationtodevelopment.
TheGovernment hasmade great efforts toprovide anattractive andappropriate environment
forforeigndirectinvestmentthroughrealisticpolicies.Government'sactiontoreturnover2,500foreign
expropriated properties hassparked offmajor rehabilitation investments witharesultant expansion
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ofemployment andincome opportunities. Thismove hasrekindled business enthusiasm andrestored
confidence andsecurity totheaspiring investors.
Efforts havealsobeenmade tobroaden hecountry 'staxbasewithout discouraging savings
andinvestment. Inorder tostreamline andenhance taxcollection ataxbody known astheUganda
Revenue Authority (URA) wasestablished in1991 andsince itsinception, ithasmade remarkable
success inrevenue collection.
Priority objectives inthetradesector havefocused onaplantoregain Uganda 'sprevious peak
export levels andsetting thestage forenhancing export volumes andearnings withaviewtoachieve
aselfsustaining export sector. Tothiseffect, measures thathavebeenadopted include therehabilitation
ofthetraditionalexportsectorandthepromotion,developmentandexpansionofnon-traditionalproducts;
promotion ofsustainable industrialisation; promotion andfacilitation oftheefficient marketing of
agricultural produce; adoption ofamarket-determined exchange ratesystem; trade andmarketing
liberalisationincludingremovaloflicensingandpricecontrols.Othermeasuresaretariffandtaxreforms
andtherehabilitation oftheessential infrastructure.
Although theabove measures haveledtosome improvement intheperformance oftheexport
sector, Uganda stillhasanarrow export base. Thegovernment hastherefore, mounted avigorous
export andinvestment promotion drivetoexpand theexport basethrough diversification andpenetrating
intonewmarkets.
While themarket improvement intheeconomy willcertainly enhance thesuccess ofthiseffort,
amore liberalized andopenmultilateral trading system resulting fromtheUruguay Round Agreements
willnodoubt contribute agreat dealtotheattainment ofUganda 'sobjectives. Itisforthisreason
thatUganda fulfilled allthenecessary conditions tobecome anoriginal member oftheWTO.
END