Mama Amon
JF-Expert Member
- Mar 30, 2018
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I. Utangulizi
Tumefurahi kumsikia Waziri wa Ulinzi na Jeshi la Kujenga Taifa, Mhe. Innocent Bashungwa, akiongelea uzuri wa malengo ya uwekezaji katika Bandari za Tanzania.
Lakini Mhe. Bashungwa anapinga mtazamo kwamba mkataba wa Tanzania na Dubai unaongelea ubianafsishaji wa bandari.
Mara ya kwanza tulimsikia Spika Tulia Ackson akimkataza Profesa Kitila Mkumbo kutumia neno "ubinafsishaji" wakati wa mjadala wa Bunge tarehe 10 Juni 2023 kwa ajili ya kurasimisha mkataba huu. Profesa Mkumbo alikubaliana na Spika siku hiyo.
Wakati huo tulikaa kimya juu ya katazo hili kwa kuwa Spika Akson na Profesa Mkumbo sio wachumi kitaalua. Pia tulikuwa hatujaelewa kwaba kuna mkakati mpana wa Dubai kuiuia Tanzania mbui kwenye gunia.
Lakini Waziri Bashungwa ni mchumi mwenye shahada ya uzamili, na amefanya kazi Benki ya Dunia, taasisi ambayo ni kiranja mkuu wa ubinafsishahaji duniani.
Ushahidi kuhusu jambo hili ni nyaraka za World Bank(2012:2) zinazotofautisha kati ya ubinafsishaji kamili na ubinafsishaji nusu nusu kamma ifuatavyo:
"PPPs may refer to informal and short-term engagements of nongovernmental
organizations, the private sector and/or government agencies that join forces for a shared objective; to more formal, but still short-term private sector engagements for the provision of specific services, for example, annual outsourcing arrangements for janitorial services for a school or operations of the school cafeteria; to more complex contractual arrangements, such as build, operate, transfer regimes, where the private sector takes on considerable risk and remains engaged long term; or to full privatizations."
Mtaalam wa uchumi, Joseph E. Stiglitz(2002) aliandika kitabu, "Globalization and Its Discontents," kinachoeleza nafasi ya Benki ya Dunia katika mchakato wa ubinafsishaji duniani kote.
Kwa hiyo sasa ni wakati mwafaka wa kurekebisha dosari husika.
II. Tunachojua kuhusu maana na mipaka ya ubinafsishaji;
Kwa mujibu wa Savas (1987), "ubinafsishaji ni mchakato wa kuhamisha asilimia yote au asilimia kidogo ya umiliki wa rasilimali au taasisi zinazomilikiwa na serikali na kuziweka mikononi mwa wajasiriamali walioko kwenye sekta binafsi kwa ajili ya kuongeza kasi ya utendaji, tija na kuipunguzia serikali mzigo wa gharama za uendeshaji."
Kwa ufafanuzi zaidi tunaweza kurejea kazi ya E.S. Savas (1987), "Privatisation: The Key to Better Government (Chatham: Chatham House Publishing Inc)."
Kitabu hiki kinaonyesha kuwa mchakato huu unaweza kuhamisha asilimia yote au asilimia kidogo ya ummiliki wa haki zinazohusu matumizi (use ownership rights), au umiliki wa haki zinazohusu faida (fruits ownership rights), au umiliki wa haki zinazohusu uwezo wa kuuza kitu kinachomilikiwa (substantive ownership rights), au baadhi ya haya matatu, au yote matatu kwa pamoja.
Maoni yetu ni kuwa, kwa kuzingatia fasili hiyo hapo juu, na kutazama malengo ya mkataba wa awali kati ya Tanzania na Dubai, kinachoendelea kupitia mkataba huu ni mcchakato wa ubinafsishaji wa bandari. Ushahidi huu hapa;
Kwanza, ibara ya 2(1) ya mkataba huu inathibitisha haya kwa kusema yafuatayo:
Maneno ya msingi hapa ni "development, improvement, management and operation [of projects]."
Yaani "kuendeleza usanifu na ujenzi, uboreshaji, usimamizi na endeshaji [wa miradi]."
Pili, mmaneno haya yamerudiwa katika ibara ya 5(1) inayosokema kama ifuatavyo:
Na tatu, Sheria ya Ubinafsishaji Namba 18/2020 inatekelezwa kwa saada wa Kanuni za Ubinafsishaji, Toleo Na. 37/2020.
Kanuni namba 02 inasema kwamba ubinafsishaji unaweza kutekelezwa kwa kutumia mitindo ya ushirikiano wa kiuchumi ("partnership models") ifuatazo:
"(a) service and management contracts;
(b) design, build, operate and transfer;
(c) design, build, operate and maintain;
(d) build, operate and transfer;
(e) design, build and operate;
(f) design, build, finance, operate and maintain;
(g) build, own, operate and transfer;
(h) build, lease and transfer;
(i) build, transfer and operate;
(j) operation and maintenance;
(k) operation, maintenance and management; and
(l) lease, develop and operate."
Aya za (b), (g), (h), na (i) zinatumia neno "transfer," yaani "kuhamisha haki yauiliki," ambalo kwa maoni yetu halitambuliwi na mkataba unaojadiliwa hapa. Hivyo tunaziweka pembeni.
Hatimaye tunahitimisha kwamba mkataba unaojadiliwa hapa unaongelea ubinafsishaji kama unavyoeleweka chini ya aya za (a), (c), (d), (e), (f), (j), (l), na (l) hapo juu.
Lakini tunakubaliana na Waziri wa Ulinzi, Mhe. Bashungwa, kwamba malengo ya ubinafsishaji wa bandari yanawafaa, sio CCM pekee, bali umma wote wa Tanzania.
Na tunasisitiza kwamba nchini Tanzania ubinafsishaji unaratibiwa chini ya sheria ya ubia kati ya sekta ya umma na sekta binafsi ya mwaka 2010. Yaani, "The Public-Private Partnership Act No.10/2010, Chapter 103."
Ibara ya 6(3) ya sheria hii inataja maeneo 26 ya ushirikiano wa kiuhumi kati ya serikali na wawekezaji binafsi, yaanii:
- "Crop farming,
- Livestock,
- Poultry,
- Fisheries,
- Irrigation,
- roads,
- Bridges,
- Railways,
- Airports,
- Aviation,
- Shipping,
- Navigation,
- Energy,
- Buildings,
- Industry,
- Exploration,
- Mining,
- Education,
- Health,
- Environmental Conservation,
- Waste Management,
- Information Technology,
- Communication Technology,
- Trade,
- Sports, and
- Recreation."
Na katika sekta yoyote kati ya sekta hizi 26 ubinafsisiahji unaweza kufanyika kwa asilimia kidogo au asilimia zote mia moja.
Kwa hiyo, sio kosa la kisheria kwa serikali ya awamu ya sita chini ya Samia Suluhu Hassan, ambayo ni serikali ya CCM, kubinafsisha bandari kwa kutumia mbinu yoyote halali. Lakini bado kuna matatizo mahali fulani..
III. Matatizo; Mbinu chafu haziwezi kuzaa matokeo yasiyo na doa
Matatizo yanatokana na ukweli kwaba katika mchakato wa sasa serikali na baadhi ya viongoi wa CCM katika Kamati Kuu na Halmashauri Kuu wanatumia mbinu haramu ili kufanikisha malengo mazuri, jambo ambalo haliwezekani. Tutaeleza mambo manne.
Tatizo la Kwanza, kuna utata kwenye ibara ya 2(1), kuhusu aina na wigo wa mkataba wa Tanzania na Dubai juu ya ubinafsishaji unaokusudiwa. Maneno niliyoyapigilia msitari hapa chini yanahusika.
Maneno yenye utata na yanayoleta hofu kwa wananchi wakazi wa maeneo yaliyo jirani na maeneo yanayoguswa na mkataba ni haya;
"...areas of cooperation for the development, improvement, management and operation of SEA AND LAKE PORTS, SPECIAL ECONOMIC ZONES, LOGISTIC PARKS, TRADE CORRIDORS and other related strategic port infrastructure in Tanzania."
Maneno haya yakisomwa pamoja na maudhui ya awau ya pili ya utekelezaji wa mkataba kama yanavyoonekana kwenye Kiambatanisho Na. 01 yanazua utata na hofu kubwa. Sehemu ya Kiambatanisho hicho yenye kuongeza hofu ni hii hapa:
Majukumu ya bandari na miundombinu yake hutumia ardhi ambayo imefungamana na maisha ya kila siku ya wakazi walio jirani na uwekezaji wa aina hiyo.
Kuhusu ardhi hiyo, sheria tajwa ya ubia inasema yafuatayo katika ibara namba 13:
"13. Where, the project requires acquisition of land for its implementation, the acquisition shall be carried on in accordance with the Land Act, Village Land Act, the Land User Planning Act, Land Acquisition Act and any other relevant laws."
Hivyo, wananchi walioko katika mwambao wa Bahari ya Hindi na miambao ya maziwa kama vile Ziwa Nyasa, Ziwa Viktoria na Ziwa Tanganyika wanataka kusikia serikali inasema nini kuhusu ardhi zao, kwa kuzingatia matakwa haya ya kisheria.
Tatizo la Pili, kuna tatizo la kufanya mambo kana kwamba sheria na kanuni za nchi zinazoongoza ubinafsishaji hazipo. Aina ya ubinafsishaji unaokusudiwa na serikali haiko bayana.
Kanuni namba 02, katika Toleo Na. 37/2020, inasema kwamba ubinafsishaji unaweza kutekelezwa kwa kutumia mitindo 12 ya ushirikiano ("partnership models") kama ilivyotajwa hapo awali.
Katika kitabu chake , "Privatization and Public–Private Partnerships (New Jersey: Chatham House)," Savas (2000:246) amechanganua aina hizi za ubinafsishaji kama ifuatavyo:
Utofauti wake unaweza kuelezwa kwa njia ya mchoro kama ifuatayo;
Chanzo: R. Akbiyikli na D. Eaton (2003), “A comparison of PFI, BOT, BOO, AND BOOT procurement routes for infrastructure construction projects,” Research Institute for Built and Human Environment.
Mahali fulani waandishi wanasema yafuatayo;
"The emergence of public-private sector initiatives, such as Build-Operate-Transfer(BOT), Build-Own-Operate-Transfer (BOOT), Design-Build-Finance-Operate (DBFO)and Build-Own-Operate (BOO) for procuring infrastructure facilities provides governments with option of satisfying their infrastructure needs and demands by alternative means. Generally, such means involve a user-pays concept"
Katika muktadha huu, watu wanauliza swali halali lifuatalo: ndoa ya Tanzania na Dubai itasimama kwa kutumia miguu gani?
Tumefuatilia elimu inayotolewa kwa umma tangu Bungeni hadi majukwaani na tumeridhika kuwa Swali hili halijapatiwa jawabu kabisa.
Badala yake kuna kejeli, vijembe na matusi, kiranja mkuu akiwa ni Mwenyekiti wa UWT Mary Chatanda.
Tatizo la tatu ni kwamba, hatua za kikanuni zinazotajwa kwenye Kanuni za ubinafsishaji, Toleo Na. 37/2020, ibara ya 34-61, hazionekani kuzingatiwa na serikali.
Katika mhakato wa PPP kuna hatua muhimu zifuatazo; "pre-feasibility study, feasibility study and contrating," yaani "utafiti kabla ya utafiti wa awali, utafiti wa awali na kusaini mkataba na serikali."
Tafiti hizi ndio zinaiwezesha serikali kusema faida kwa kutaja tarakimu. Waziri Mbarawa ametufahamisha tangu tarehe 15 Julai 2023 kwamba mchakato wa kubinafsisha bandari zetu unahusu "solicited proposals/projects."
Kanuni zetu zinasema kuwa kuhusu aina hii ya ubinafsishaji hatua husika ni hizi hapa, kati ya zingine;
34. Procurement principles.
35. Methods of procurement of unsolicited projects.
36. Market sounding
37. Procurement of solicited project.
38. Bidding criteria of a private party.
39. Issuance of Pre-qualification documents.
40. Pre-qualification proceedings.
41. Participation of consortia.
42. Clarification of applications for pre-qualification.
43. Appointment of evaluation team.
44. Receipt, evaluation of applications for pre-qualification.
45. Approval of shortlist.
46. Contents of request for proposals.
47. Approval and issuance of request for proposals.
48. Further demonstration of fulfilment of qualification criteria.
49. Bid securities for solicited proposal.
50. Clarification and modification of bid documents.
51. Submission of bids.
52. Extension of time for submission of bids.
53. Evaluation of submitted proposal.
54. General evaluation criteria.
55. Financial evaluation criteria.
56. Evaluation of proposals based on criteria in bidding document.
57. Conduct of due diligence.
58. Preferred and reserve bidders.
59. Value for money report.
60. Approval of award of contract by Steering Committee.
61. Notice of intention to award contract.
Kanuni hizi ni sehemu ya sheria za nchi zinazoongoza ubinafsishaji, hata bila kujali sera za CCM zinasema nini.
Kwa mujibu wa Waziri, zote zimezingatiwa hadi sasa hadi kanuni ya 61 na ndio maana DP World walisaini IGA, na sasa wanao uhakika wa kusaini HGAs.
Lakini hakuna ushahidi huru wenye kuonyesha kuwa kuna tenda ya wazi iliyoanzisha mchakato huu.
Kwa hiyo kanuni hii Zimekiukwa kwa asiliia 100 na watu wote ndani ya chama na serikali wamekaa kimya kwa sababu ya kubembeleza urafiki wa Kaizari.
"Ukipinga au kukosoa mkataba wa Tanzania na Dubai unapinga jambo la Mama," ndio kaulimbiu inayotumika kama nyenzo ya vitisho.
Hilo linakubalika kwenye dola ya Kisultani kama vile Dubai lakini Sio katika Tanzania ya Nyerere ambayo ni Jamhuri!
Na tatizo la nne ni kwamba, mkataba wa Tanzania na Dubai unapendekeza ubinafsishaji utakaoratibiwa chini ya mfumo wa kisheria wenye ngazi saba lakini baadhi ya ngazi zikiwa hazina sababu ya kuwepo. Kuna
- Katiba ya nchi;
- Mkataba wa ushirikiano wa kimataifa kwa sababu ya uwepo wa mradi mkubwa unaotekelezwa katika mataifa mengi (IGA)
- Mikataba ya miradi midogo inayotekelezwa ndani ya nchi moja tu (HGA)
- Sheria ya BUnge inayorasimisha IGA a HGA kwa kurekebisha na kukamilisha sheria za ndani ya nchi
- Sheria za nchi zilizotungwa na Bunge;
- Mikataba ya ukodishaji wa miundombinu na ardhi;
- State constitution
- IGA; Inter-governmental agreements for ross-border projects,
- HGA; Host government agreements for national projects,
- National statute to domesticate and accommodate IGA and HGA
- National statutes which form the basis of law and order
- Concessional and lease agreements
Pia hakuna sababu ya HGA wana domestication. Yaani, hatua ya 2-4 hapo juu hazihitajiki.
Mikataba ya IGA na HGA ingehitajika kama kuna mradi mmoja unaotekelezwa kwa mpigo katika nchi mbili za Tanzania na Dubai na hivyo kuibua suala la "maslahi ya pamoja" yanayolazimisha uwepo wa "mkataba kati ya wakuu wa nchi" yaani IGA/HGA.
Mfano mzuri wa IGA/HGA halali ni ile kati ya Tanzania na Uganda kuhusiana na mradi wa Bomba la Mafuta kutoka Hoima (Uganda) hadi Tanga (Tanzania).
Uganda inaagiza vifaa vya mradi kupitia bandari ya Tanzania, bomba linajengwa katika ardhi ya Uganda na Tanzania, na mafuta yake yatasafirishwa kupitia ardhi ya Tanzania kwenda nchi za nje.
Hapa kuna masuala kama vile "oil transit fee", "pipeline tarrif" na fidia ya ardhi na mali za wananchi kwa kutumia sheria zilizokubaliwa kwa pamoja kati ya serikali husika na watekeleaji wa radi. Hivyo, IGA na HGA ni muhimu na lazima.
Mradi wa Bomba la mafuta kutoka Hoima Uganda kupitia Tanga ya Tanzania hadi Bahari ya Hindi
Mfano mwingine mzuri ni mradi wa Bomba la mafuta kutoka Azerbaijan, kupitia nchi za Georgia na Uturuki hadi Bahari ya Mediterania.
Mradi wa Bomba la mafuta kutoka Azerbaijan, kupitia nchi za Georgia na Uturuki hadi Bahari ya Mediterania
Lakini hakuna maizngira kama haya kwenye suala la miradi yote inayohusu ujenzi, uboreshaji, usimamizi na uendeshaji wa bandari za Tanzania ndani ya mipaka ya Tanzania. Sheria etu haina mapengo yanayopaswa kuzibwa kwa kutumia IGA wala kunyanzi zinaopaswa kunyooshwa kwa kutumia HGA.
Badala yake, sababu pekee ya uwepo wake imetajwa kimafumbo kwenye ibara ya 23(4). Kinasoeka hivi;
Kisheria na kimantiki, kifungu hiki kinabatilisha kabisa vifungu vyote vya ibara hii, yaani 23(1)-23(3) kuhusu "duration and termination." Kwa hiyo huu ni mkataba wa milele.
Yaani, Dubai wanataka kutumia ulaghai kupata makazi ya kudumu nchini Tanzania kupitia mgongo wa DP World. Wanataka kuanzisha "ukoloni wa walowezi wa kiarabu" (Arab settler colonialism) nchini Tanania.
Kwa ujumla, kwa sababu ya ukuu wa katiba ya nchi katika suala la enzi ya kitaifa (national sovereignty) hakuna vifungu ya kikatiba wala sheria zinazolinda enzi ya kitaifa zinaopaswa kubadilishwa kwa ajili ya kuhalalisha IGA haramu.
Kufikiri vingineyo ni sawa na kubuni Mchakato wa ubinafsishaji ambao hautokani na sheria wala kanuni za ubinafsishaji katika Jamhuri ya Muungano wa Tanzania.
Tutakuwa tunalazimishwa kuendesha nchi ya Tanzania kwa kutumia kanuni za IGA na HGA zinazotakiwa na serikali ya Dubai kwa faida ya Dubai.
Jambo hili ni kuuza uhuru na enzi ya utaifa wetu, maana hakuna mradi wowote unaotekelewa nchini Dubai kwa faida ya Tanania.
Hivyo, tutaongelea kwa ufupi juu ya Mikataba ya ukodishaji wa ardhi na bandari (concessional and lease agreements) ambayo haina tatizo.
Mikataba hii humpatia mkodishaji haki za muda mrefu mwekezaji kutumia rasilimali za serikali mwenyeji, ikiwemo haki ya uendeshaji, jukumu la kubuni na kujenga miundobinu, na jukumu la uwekezaji wa mtaji wa kifedha.
Hapa serikali mwenyeji hupaswa kubaki na haki zinazohusiana na umiiliki wa msingi (substantive ownership). Katika utaratibu huu wa ubinafsishaji wakati wote wa mkataba wa utekelezaji wa mradi serikali mwenyeji hubaki kama mlinzi anayekaa nje ya uzio akisubiri kulipwa "kodi ya pango" (concession fee).
IV. Hitimisho na mapendekezo
Kwa ujumla, sheria ya ubinafsishaji na kanuni zake vinaanzisha mfumo murua wa kisheria unaosimamia ubia wa watu au kampuni binafsi katika miradi ya Serikali kupitia mikataba maalum.
Ubia huo una lengo la kutekeleza marekebisho ya kiuchumi na kijamii nchini kwa lengo la kusaidia kukuza uchumi na kupunguza umaskini.
Watanzania wanataka kusikia viongozi wa chama na serikali wakiongea maneno yanayoakisi sheria na kanuni hizi. Bado kazi hii haijafanyika.
Mhe. Bashungwa na wenzake ambao ni wataalam wa uchumi na sheria wanaweza kuziba pengo hili kwa kiasi kikubwa. Tunawaomba wajitahidi kufikiri nje ya sanduki la kivyama maana Tanzania ni kubwa kuliko vyama.
Kwa ujumla, tunahimiza serikali kuheshimu sheria na kanuni za ubinafsishaji zilizopo kwa kuzingatia vifungu vyote vya kanuni zetu kuhusu jabo hili.
Na kwa kuwa katika ubinafsishaji wa bandari zetu hatuhitaji ikataba ya IGA wala HGA, ule mkataba wa IGA ubatilishwe kimkakati ama kwa kuach ufe ndani ya miezi 12 au kwa kulitaka Bunge lifute uammuzi wake. Kisha DP World wafuate utaratibu wa kawaida unaofuatwa na wawekeaji binafsi baki.
Mawazo yetu ni hayo tu kwa sasa. Na video-clip ifuatayo hapa chini inahitimisha mawazo yetu vizuri zaidi.
Tunamtakia Mhe. Bashungwa uchapa kazi bora na ufanisi katika siasa za kitaifa, hasa katika kutekeleza majukumu yake kama mshauri wa Rais.
V. Marejeo
- E.S. Savas (1987), Privatisation: The Key to Better Government (Chatham: Chatham House Publishing Inc).
- E.S. Savas (2000), Privatization and Public–Private Partnerships (New Jersey: Chatham House).
- Joseph E. Stiglitz (2002), Globalization and Its Discontents (New York: Norton)
- R. Akbiyikli na D. Eaton (2003), “A comparison of PFI, BOT, BOO, AND BOOT procurement routes for infrastructure construction projects,” Research Institute for Built and Human Environment.
- URT(2010), The Public-Private Partnership Act No.10/2010 (Chapter 103)
- URT(2020),The Public Private Partnership Regulations, Government Notice No.37/2020
- URT(2022), The Intergovernmental Agreement between the United Republic of Tanzania and the Emirate of Dubai Concerning the Economic and Social Partnership for the Development and Improving Performance of Sea and Lake Ports in Tanzania, dated 25th October 2022
- World Bank(2012), World Bank Group Support to Public-Private Partnerships: Lessons from Experience in Client Countries, FY02–12.
Ubinafsishaji holela mwiko!
Mama Amon Team for Empowerment (MATE),
"Sumbawanga Town"
Sumbawanga.
17 Julai 2023.
