BACKGROUND Overview The United Nations Development Programme (UNDP), together with the Justice Law and Order Sector (JLOS), seek to contract a consultancy firm to develop tools and models to be comprised in a consolidated manual for strengthening corruption vulnerability self-assessment, responsiveness and accountability mechanisms for JLOS institutions. JLOS is comprised of 18 Government institutions that are responsible for the delivery of justice services (criminal and civil), and maintaining law and order. These also include key civil registries, law training, and regulatory bodies (www.jlos.go.ug ). The consultancy seeks to develop a manual for strengthening corruption prevention, control and response within JLOS institutions, in line with the JLOS anti-corruption strategy and tenets of good governance. The effectiveness of the proposed manual on corruption control requires a combination of complementary factors including; institutional leaders ability and willingness to act against corruption, existence of collective action within the institution and the sector as a whole, and strategic management of the underlying corruption incentives structure[1]. The manual will be comprised of ‘must have’ institutional recommended mechanisms, models, tools, and procedural requirements, while at the same time providing a step-by-step guidance for ensuring effective functionality. The model manual will be informed by the findings of various local and international mechanisms and practices, including the ongoing study on: “Comprehensive Assessment of Effectiveness of JLOS Anti-Corruption Mechanisms and Conducting a Corruption Vulnerability / Risk Mapping of JLOS Institutions” that will be completed in August 2019. The consultancy will be undertaken within the context of the Government of Uganda public service and institutional management framework. This effort is central to sustainable development and implements lessons from a 2017 Transformational Development Approach study in Mauritius. This is specifically anchored in the Global Agenda 2030, under SDG 16, that states that; promote peaceful and inclusive societies for sustainable development, provide access to justice for all and build effective, accountable and inclusive institutions at all levels. Overall, the intervention improves access to justice by strengthening governance within justice delivery institutions of government and is aligned to NDP II pillar on governance. It strategically contributes to the achievement of accountability undertakings under the JLOS Sector Development Plan (SDP) IV, and the National Anti-Corruption Strategy. This intervention seeks to contribute toward the improvement of institutional governance by strengthening internal institutional corruption control within JLOS, in line with the JLOS anti-corruption strategy and tenets of good governance. The Consultancy is expected to develop an anti-corruption tool kit for JLOS institutions comprised in a manual focusing on mechanisms, standards, procedures, and models among others. Background and Context The JLOS is comprised of 18 Government of Uganda institutions and its anti-corruption efforts are guided by various instruments including; the zero tolerance to corruption policy, national laws, the national anti-corruption strategies and the JLOS anti-corruption strategy. However, despite the existence of these high-level frameworks, many JLOS institutions continue to suffer internal accountability gaps, some of which have resulted in public perceptions of corruption. JLOS institutions are frequently cited as the most corrupt from both local and international surveys. The proportion of citizens who see most/all police officers as corrupt increased from 63% in 2012 to 71% by 2017, while that of judges and magistrates increased from 29% in 2012 to 43% by 2017 (Afro Barometer, 2018). In addition, the 2015 National Service Delivery Survey (NSDS) indicates that 75 percent of respondents ranked police as the most corrupt government institution followed by Local Governments (50%) and government health facilities (38%) and the Judiciary at 19% (Uganda Bureau of Statistics, 2016). Partly as a consequence, JLOS institutions remain perceived as the most corrupt public institutions in Uganda. Historically the JLOS Strategic Investment Plan (SIP) III (2012/13-2016/17) highlighted enhancing the fight against corruption as one of the key interventions. The strategy sought, among others, strengthen administrative and criminal anti-corruption enforcement, explore linkages with the Accountability Sector, improve efficiency of resource utilization and zero tolerance to corruption in resource management across all the member institutions. The primary tool of implementation of this key outcome was the 2012 JLOS Anti-Corruption Strategy (JACS) aligned to the National Anti-corruption strategy. The Strategy aimed at reducing corruption in the sector institutions, as well as building and strengthening the quality of accountability in the country as a whole. The current JLOS SDP IV (2017-2020) builds on the achievements of the JLOS SIP III and calls for the rollout of the implementation of the JACS as part of the process to enhance the efficiency and effectiveness of JLOS institutions in fighting corruption. One of the major undertakings of the JACS is the requirement that the JLOS institutions come up with institutional anti-corruption plans of action given the differences in contexts through which corruption manifests at institutional level. However, the 2017/2018 JLOS annual report indicated that only a few JLOS institutions have made attempts to domesticate and operationalize the strategy (JACS). Most institutions have committed to develop customized institutional anti-corruption action plans and operational frameworks but results are scarce. Many of the JLOS institutions such as the Judiciary, the Uganda Police Force, and the Uganda Human Rights Commission have domesticated the JACS by developing anti-corruption action plans. However, they have not implemented various activities of the JACS despite continuous efforts. For some institutions, this has led to a less systematic institutional approach to anti-corruption and no coherent reporting mechanism on implementation. Amidst these challenges and interventions, JLOS observes that corruption has a direct negative impact on the observance of human rights, rule of law, and ensuring that the delivery of justice services meets the human rights normative standards. Indeed, under the National Planning Authorities’ (NPA) Human Rights Based Approach Planning Tool for Sectors and Local Governments (2016), corruption is ear marked as one of JLOS’s key constraints that must be dealt with (p.52). The HRBA tool enjoins JLOS to adopt and implement anti-corruption measures, with a view of enhancing the quality of public service delivery. The Manual will therefore serve as one of the functional tools for institutional development and promotion of the rule of law through strengthening internal accountability. This intervention and operational strengthening tool for the JLOS institutions inter-alia draws on experiences of the Organization of Economic Cooperation and Development’s (OECD) recommended integrity management frameworks and recommended standards developed by the International Standards Organization (ISO) in support of Sustainable Development Goal (SDG) 16 (2030 Global Agenda). As noted before, JLOS institutions primarily contribute to the national realization of SDG 16 that inter alia calls for access to justice for all and building effective, accountable and inclusive institutions at all levels that embrace good governance. Governance here means the system by which an institution is managed, directed, controlled and held accountable to achieve its core purpose over the long term. Various ISO standards[2] have been developed to guide institutional reform, development and standardization. Indeed, JLOS is supporting its institutions such as the URSB to build capacity and commence their implementation. The Uganda Registration Services Bureau (URSB) has commenced the journey to be certified for ISO 9001:2015 that focuses on quality management systems. By December 2018, a team of 42 URSB staff was trained in ISO 9001:2015 quality management system where participants were equipped with knowledge on quality concepts, benefits of quality management principles and ISO 9001:2015 requirements. This specifies requirements for a quality management system when an organization: a) Needs to demonstrate its ability to consistently provide products and services that meet customer and applicable statutory and regulatory requirements, and b) Aims to enhance customer satisfaction through the effective application of the system, including processes for improvement of the system and the assurance of conformity to customer and applicable statutory and regulatory requirements. All the requirements of ISO 9001:2015[3] are generic and are intended to be applicable to any organization, regardless of its type or size, or the products and services it provides. This Manual is expected to glean some of the lessons from countries that have implemented these standards and recommend better practices for institutional consideration. This consultancy provides JLOS an opportunity to leap toward embracing the ISO 37001 on anti-bribery management Systems (ABMS). This is the most prominent standard, that is aligned to SDG 16 and helps promote peace, justice and strong institutions by increasing transparency and accountability. The extent of the application of these guidelines depends on the size, structure, nature and complexity of the organization. In addition, drawing from the UNDP supported benchmarking study of Mauritius, Uganda needs to embrace international standards such as ISO that enable it fully implement the Transformational Development Approach (TDA). If Uganda’s governance systems are to be ISO certified as demonstrated by public institutions in Mauritius, then this is a critical phase to start. However, there is no concrete blue print or model documentation on how other institutions can emulate the good practice and apply within their own context. The JLOS in partnership with the UNDP Rule of Law and Constitutional Democracy (RLCD) Programme is conducting this activity under output target four which seeks to inter alia achieve strengthened institutional capacities to be more efficient, effective and sustainable in governance and public service delivery. The specific activity result contributes to; “access to justice and human rights promotion and protection enhanced”. Further, this contributes to the national performance on SDG 16. Indicators 16.5 – 16.6 that call for substantial reduction in bribery and ensuring effective, accountable and transparent institutions at all levels The UNDP is supporting this study through the RLCD Programme to inform reforms aimed at improving good governance and public service delivery within the context of the JLOS Sector Development Plan IV and the JLOS Anti-Corruption Strategy. In addition, the study findings will contribute to the broader Government of Uganda anti-corruption efforts and initiatives of promoting good governance within the broader context of NDP II and Uganda Vision 2040 development framework. Problem Statement The JLOS is pitted by service delivery challenges that are among others caused by actual and perceived prevalence of corruption. Despite numerous anti-corruption and governance reform interventions, this situation has persisted in a number of JLOS institutions. Achievements realized so far do not necessary match the reforms implemented and the targets aspired by JLOS. Public perception remains and satisfaction is far from excellence, a pursuit that the Sector needs to achieve. Therefore, this consultancy is conceived to develop tools and models comprised in a manual for strengthening institutional corruption vulnerability self-assessment, responsiveness and accountability mechanisms for JLOS institutions. This is expected to provide standardized diagnostic approaches to corruption vulnerability while at the same time guiding detection, deterrence, remediation, and sanctioning. It is against this background that the JLOS Sector and the UNDP seek to engage a Consultancy firm with a multi-disciplinary team to undertake this assignment. The Consultancy will also be expected to develop practical models for institutional anti-corruption and integrity mechanisms in line with the 2018 Uganda Zero Tolerance to Corruption Policy. Overall Objective of the Consultancy To develop a manual for strengthening procedural and management systems of corruption prevention, control and response for JLOS institutions. Specific objectives of the Consultancy 1. Develop an institutional anti-corruption management manual, spelling out procedures and system models of prevention, detection, deterrence, sanctioning and remediation of corruption. 2. Develop a model integrity and ethical promotion framework for JLOS institutions, annexed to the manual. 3. Develop checklists for prevention, detection, deterrence, sanctioning and remediation of corruption by JLOS institutions annexed to the manual. 4. Develop referral pathways focused at both inter and intra institutional / sectoral corruption control by JLOS institutions for criminal and administrative action, annexed to the manual. Study Area Good governance, access to justice, rule of law, and accountability. | 
