When did Allen Kagina hand over assets?
On 30 December 2024, the former Executive Director of the now-dissolved Uganda National Roads Authority (UNRA), officially handed over the agency’s assets, offices, and tools of service to the Ministry of Works and Transport. The ceremony, held at the Ministry’s headquarters in Kampala on Monday, symbolized the culmination of the government’s controversial decision to mainstream UNRA into its parent ministry under the Rationalization of Government Agencies and Public Expenditure (RAPEX) policy.
The tools of service were received by the Minister of State for Works, Musa Ecweru, and the Ministry’s Permanent Secretary, Bageya Waiswa. Kagina was accompanied by former UNRA board members, directors, and senior managers, marking a formal end to the agency that once oversaw the development and maintenance of Uganda’s expansive national road network.
The End of UNRA: Policy and Politics
The dissolution of UNRA is part of a larger government initiative under the RAPEX policy, aimed at streamlining the operations of public agencies, eliminating redundancy, and reducing costs. The policy seeks to merge and mainstream agencies with overlapping or duplicative functions, optimizing public expenditure.
UNRA’s functions have now been integrated into the Ministry of Works and Transport, specifically under the newly established Department of National Roads. The decision to dissolve UNRA has been polarizing, with stakeholders raising concerns about its impact on the efficiency and effectiveness of Uganda’s road sector management.
Initially, Parliament rejected the government’s proposal to dissolve the roads authority, citing its critical role in managing and maintaining a road network valued at trillions of shillings. In April 2024, the Parliament’s Physical Infrastructure Committee released a report advocating for UNRA’s retention as a semi-autonomous agency.
The report highlighted UNRA’s achievements, noting that its specialized and efficient management of the road sector was instrumental to the country’s development. It cautioned that mainstreaming UNRA into the Ministry of Works and Transport would likely recreate the inefficiencies that led to the agency’s establishment in 2006.
“The role of UNRA in the management, development, and maintenance of national road infrastructure is critical to the performance of the Works and Transport sector and the country’s development aspirations,” the report stated. It further warned that dismantling UNRA could necessitate future reforms to recreate the agency, negating the intended cost-saving benefits of RAPEX.
President Museveni’s Stand on Rationalization
Despite the strong pushback from Parliament and other stakeholders, President Yoweri Museveni remained steadfast in his position. He described semi-autonomous government agencies like UNRA as “parasitic,” arguing that they duplicated roles and drained resources. On December 18, 2024, the President assented to the Uganda National Roads Authority (Repeal) Act, 2024, alongside eight other RAPEX-related bills, sealing UNRA’s fate.
The Transition: Challenges and Uncertainties
The dissolution of the roads authority and the integration of its functions into the Ministry of Works and Transport come with significant logistical and operational challenges. With the national road network being one of the largest and most critical public assets, managing it under the Ministry’s broader framework raises questions about capacity, efficiency, and accountability.
To ensure continuity, the Ministry has announced that critical UNRA staff, including those overseeing weighbridge operations, ferry services, and ongoing projects, will be offered temporary three-month contracts. This measure aims to maintain essential services as the Ministry transitions into its expanded role.
However, analysts have expressed concerns about whether the Ministry’s current structure and resources can effectively manage the extensive portfolio. Unlike UNRA, which operated as a specialized agency, the Ministry’s functions encompass broader mandates, including policy formulation, regulation, and monitoring, in addition to the newly inherited operational responsibilities.
Looking Ahead: A Strategic Shift or a Step Backward?
The dissolution of the roads authority represents a significant shift in Uganda’s approach to managing its road infrastructure. While the RAPEX policy promises cost savings and streamlined operations, the decision to disband a specialized agency like UNRA has sparked debates about the trade-offs between efficiency and fiscal prudence.
Proponents of the move argue that consolidating functions under the Ministry will eliminate duplication and save billions in administrative costs. Critics, however, warn that this decision could undermine the gains made in road infrastructure development over the past decade.
As Uganda embarks on this new chapter, the success of this transition will largely depend on the Ministry’s ability to adapt to its expanded role, retain critical expertise, and uphold the standards of road infrastructure management. For now, stakeholders will closely monitor the impact of this decision on the country’s development trajectory and the efficiency of its transport sector.
Only time will tell whether this strategic shift was a necessary reform or a costly misstep.
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