mpango wa elimu kwa umma kuhusu bunge - Parliament of Tanzania
mpango wa elimu kwa umma kuhusu bunge - Parliament of Tanzania
mpango wa elimu kwa umma kuhusu bunge - Parliament of Tanzania
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MPANGO WA ELIMU KWA UMMA KUHUSU BUNGE<br />
___________________________<br />
MAHUSIANO BAINA YA BUNGE NA WANANCHI<br />
SERIKALI NA MAHAKAMA<br />
KWA MUJIBU WA KATIBA YA NCHI<br />
__________________________<br />
Na Mhe. Pius Msek<strong>wa</strong><br />
Spika <strong>wa</strong> Bunge<br />
_______<br />
UTANGULIZI<br />
Bunge la Jamhuri ya Muungano <strong>wa</strong> <strong>Tanzania</strong> limeund<strong>wa</strong> na Ibara ya 62 ya<br />
Katiba ya Jamhuri ya Muungano <strong>wa</strong> <strong>Tanzania</strong>; na madaraka yake<br />
yametamk<strong>wa</strong> bayana katika Ibara za 63 na 64 za Katiba hiyo. Ndiyo<br />
kusema k<strong>wa</strong>mba Bunge ni chombo cha Kikatiba, na linafanya kazi zake<br />
k<strong>wa</strong> mujibu <strong>wa</strong> masharti yaliyowek<strong>wa</strong> katika Katiba.<br />
K<strong>wa</strong> hiyo mtu yeyote mwenye nia na shauku ya kupata uele<strong>wa</strong> mzuri<br />
<strong>kuhusu</strong> Bunge letu na mwenendo <strong>wa</strong> shughuli zake, anashauri<strong>wa</strong><br />
kusoma k<strong>wa</strong> makini Ibara zote zinazohusika za Katiba ya Nchi, na<br />
hususan Sura ya tatu ya Katiba hiyo.<br />
SEHEMU YA KWANZA<br />
MAHUSIANO BAINA YA BUNGE NA WANANCHI:<br />
DHANA YA DEMOKRASIA YA UWAKILISHI.<br />
Ibara ya 8(1) ya Katiba ya Jamhuri ya Muungano <strong>wa</strong> <strong>Tanzania</strong> (baada ya<br />
hapa itataj<strong>wa</strong> k<strong>wa</strong> kifupisho tu cha Katiba) inatamka mahusiano yaliyopo<br />
baina ya Wananchi na Serikali yao k<strong>wa</strong> maneno yafuatayo:-<br />
“Jamhuri ya Muungano <strong>wa</strong> <strong>Tanzania</strong> ni nchi inay<strong>of</strong>uata misingi ya<br />
demokrasia na haki za jamii, K<strong>wa</strong> hiyo:-
(a)<br />
(b)<br />
(c)<br />
(d)<br />
Wananchi ndio msingi <strong>wa</strong> mamlaka yote, na Serikali itapata<br />
madaraka na mamlaka yake yote kutoka k<strong>wa</strong> Wananchi k<strong>wa</strong><br />
mujibu <strong>wa</strong> Katiba hii.<br />
Lengo kuu la Serikali litaku<strong>wa</strong> ni Ustawi <strong>wa</strong> Wananchi.<br />
Serikali ita<strong>wa</strong>jibika k<strong>wa</strong> Wananchi.<br />
Wananchi <strong>wa</strong>tashiriki katika shughuli za Serikali yao k<strong>wa</strong><br />
mujibu <strong>wa</strong> masharti ya Katiba hii.<br />
Ibara hiyo inaainisha kuwepo k<strong>wa</strong> misingi miwili ifuatayo:-<br />
(1) Msingi <strong>wa</strong> k<strong>wa</strong>nza ni k<strong>wa</strong>mba Serikali ya <strong>Tanzania</strong> itatokana<br />
na Wananchi wenyewe k<strong>wa</strong> njia ya kuchaguli<strong>wa</strong> nao katika<br />
uchaguzi huru na <strong>wa</strong> haki, ambao unashirikisha <strong>wa</strong>nanchi<br />
wote.<br />
(2) Msingi <strong>wa</strong> pili ni k<strong>wa</strong>mba katika mahusiano yao ya ka<strong>wa</strong>ida<br />
na Serikali <strong>wa</strong>liyoichagua, Wananchi <strong>wa</strong>ta<strong>wa</strong>kilish<strong>wa</strong> na<br />
<strong>wa</strong>jumbe <strong>wa</strong>chache, ambao vile vile <strong>wa</strong>tachaguli<strong>wa</strong> kutoka<br />
miongoni m<strong>wa</strong>o katika uchaguzi huru na <strong>wa</strong> haki.<br />
UFAFANUZI WA IBARA HIYO<br />
(1) Ibara ya (8)(1) (a) ina maneno yanayosema ku<strong>wa</strong> “Serikali itapata<br />
madaraka na mamlaka yake yote kutoka k<strong>wa</strong> <strong>wa</strong>nanchi” Maana<br />
ya maneno hayo ni ku<strong>wa</strong> madaraka na mamlaka ya Serikali<br />
yanatokana na ridhaa ya <strong>wa</strong>nanchi <strong>wa</strong>nayoitoa <strong>wa</strong>kati<br />
<strong>wa</strong>napoichagua Serikali hiyo. Na yale maneno mengine<br />
yanayosema “k<strong>wa</strong> mujibu <strong>wa</strong> Katiba hii” maana yake ni k<strong>wa</strong>mba<br />
utaratibu <strong>wa</strong> jinsi serikali itakavyochaguli<strong>wa</strong> na <strong>wa</strong>nanchi<br />
umeelez<strong>wa</strong> katika Ibara nyingine za Katiba. K<strong>wa</strong> mfano, Ibara ya<br />
38(1) inaeleza jinsi Rais <strong>wa</strong> Jamhuri ya Muungano<br />
atakavyochaguli<strong>wa</strong>, na Ibara ya 55 inaeleza utaratibu <strong>wa</strong> uteuzi <strong>wa</strong><br />
Ma<strong>wa</strong>ziri <strong>wa</strong> Serikali.<br />
(2) Maneno yaliyomo katika ibara ndogo za (c) na (d), k<strong>wa</strong>mba<br />
“Serikali ita<strong>wa</strong>jibika k<strong>wa</strong> <strong>wa</strong>nanchi” na k<strong>wa</strong>mba “<strong>wa</strong>nanchi<br />
<strong>wa</strong>tashiriki katika shughuli za Serikali yao k<strong>wa</strong> mujibu <strong>wa</strong> Katiba<br />
2
hii;” maana yake ni k<strong>wa</strong>mba kutaku<strong>wa</strong> na mfumo <strong>wa</strong> demokrasia ya<br />
u<strong>wa</strong>kilishi. Na sababu ya ku<strong>wa</strong> na demokrasia ya u<strong>wa</strong>kilishi iko<br />
<strong>wa</strong>zi, nayo ni k<strong>wa</strong>mba <strong>wa</strong>nanchi wote <strong>wa</strong> <strong>Tanzania</strong>, ambao ni zaidi<br />
ya millioni 30, ha<strong>wa</strong>wezi wote kushiriki moja k<strong>wa</strong> moja katika<br />
shughuli za Serikali, ambazo k<strong>wa</strong> ka<strong>wa</strong>ida hufany<strong>wa</strong> k<strong>wa</strong> njia ya<br />
vikao vinavy<strong>of</strong>anya maamuzi mbali mbali. Kutokana na hali hiyo,<br />
Katiba imeweka Chombo rasmi cha u<strong>wa</strong>kilishi <strong>wa</strong> <strong>wa</strong>tu, pamoja na<br />
kukipatia chombo hicho madaraka na mamlaka ya kufanya<br />
maamuzi katika vikao vyake k<strong>wa</strong> niaba ya <strong>wa</strong>nanchi wote. Chombo<br />
hicho ni Bunge la Jamhuri ya Muungano <strong>wa</strong> <strong>Tanzania</strong>.<br />
K<strong>wa</strong> hiyo Bunge ndicho chombo kinacho<strong>wa</strong><strong>wa</strong>kilisha rasmi <strong>wa</strong>nanchi<br />
wote katika mahusiano baina yao na Serikali yao <strong>wa</strong>liyoichagua. Ndiyo<br />
sababu, k<strong>wa</strong> mfano, Serikali haiwezi au haina mamlaka ya kutoza kodi ya<br />
aina yoyote mpaka k<strong>wa</strong>nza iwe imepata idhini ya Bunge iliyotole<strong>wa</strong> k<strong>wa</strong><br />
njia ya sheria iliyotung<strong>wa</strong> maalum k<strong>wa</strong> ajili hiyo kila m<strong>wa</strong>ka (The Finance<br />
Act).<br />
Hali kadhalika, Serikali haiwezi au haina mamlaka ya kutumia fedha<br />
zilizotokana na kodi hizo mbali mbali bila k<strong>wa</strong>nza kupata idhini ya Bunge<br />
iliyotole<strong>wa</strong> k<strong>wa</strong> njia ya sheria iliyotung<strong>wa</strong> maalum k<strong>wa</strong> ajili hiyo kila<br />
m<strong>wa</strong>ka (The Appropriation Act).<br />
Hali kadhalika, maneno yanayosema ku<strong>wa</strong> “Serikali ita<strong>wa</strong>jibika k<strong>wa</strong><br />
<strong>wa</strong>nanchi”, maana yake ni k<strong>wa</strong>mba Serikali ita<strong>wa</strong>jibika k<strong>wa</strong> chombo<br />
hicho cha u<strong>wa</strong>kilishi <strong>wa</strong> <strong>wa</strong>nanchi, yaani Bunge. Ndiyo sababu Ibara ya<br />
63(2) ya Katiba inasema ku<strong>wa</strong> Bunge litaku<strong>wa</strong> na madaraka, k<strong>wa</strong> niaba ya<br />
<strong>wa</strong>nanchi, ya kusimamia na kuishauri Serikali ya Jamhuri ya Muungano<br />
<strong>wa</strong> <strong>Tanzania</strong> na vyombo vyake vyote katika utekelezaji <strong>wa</strong> majukumu<br />
yake k<strong>wa</strong> mujibu <strong>wa</strong> Katiba hii.”<br />
(3) Na yale maneno yanayosema ku<strong>wa</strong> “<strong>wa</strong>nanchi <strong>wa</strong>tashiriki katika<br />
shughuli za Serikali yao k<strong>wa</strong> mujibu <strong>wa</strong> masharti ya Katiba hii”<br />
maana yake ni hiyo hiyo, k<strong>wa</strong>mba <strong>wa</strong>nanchi <strong>wa</strong>tashiriki katika<br />
shughuli za Serikali yao kupitia chombo cha u<strong>wa</strong>kilishi <strong>wa</strong>o, yaani<br />
Bunge.<br />
Huo ndio utaratibu uliowek<strong>wa</strong> <strong>wa</strong> demokrasia ya u<strong>wa</strong>kilishi.<br />
Maana yake ni k<strong>wa</strong>mba katika mahusiano yake ya ka<strong>wa</strong>ida na<br />
3
Serikali yao, <strong>wa</strong>nanchi katika ujumla <strong>wa</strong>o <strong>wa</strong>ta<strong>wa</strong>kilish<strong>wa</strong> na<br />
Wa<strong>bunge</strong> <strong>wa</strong>o.<br />
SEHEMU YA PILI<br />
UHUSIANO BAINA YA BUNGE NA SERIKALI.<br />
<strong>Tanzania</strong>, iki<strong>wa</strong> ni m<strong>wa</strong>nachama <strong>wa</strong> Jumuiya ya Commonwealth, inafuata<br />
mfumo <strong>wa</strong> uta<strong>wa</strong>la unaoit<strong>wa</strong> “the parliamentary system <strong>of</strong> government,”<br />
ambao chimbuko lake ni Uingereza. Mfumo huo ndio msingi <strong>wa</strong> Katiba ya<br />
Jamhuri ya Muungano. Mfumo huu ni t<strong>of</strong>auti na mfumo mwingine<br />
unaoit<strong>wa</strong> “the Presidential system <strong>of</strong> government”, ambao chimbuko lake ni<br />
America.<br />
Katika mfumo <strong>wa</strong> <strong>Parliament</strong>ary system, Serikali inaku<strong>wa</strong> moja k<strong>wa</strong> moja<br />
ni sehemu ya Bunge. Ndiyo sababu Ibara ya 62(1) ya Katiba inatamka<br />
ku<strong>wa</strong> “Kutaku<strong>wa</strong> na Bunge la Jamhuri ya Muungano ambalo litaku<strong>wa</strong> na<br />
sehemu mbili, yaani Rais na Wa<strong>bunge</strong>” Ndiyo sababu vile vile Ibara ya<br />
62(3) ya Katiba inaainisha kama ifuatavyo:-<br />
“I<strong>wa</strong>po jambo lolote lahitaji kuamuli<strong>wa</strong> na kutekelez<strong>wa</strong> na sehemu zote<br />
mbili za Bunge, basi jambo hilo halitahesabi<strong>wa</strong> ku<strong>wa</strong> limeamuli<strong>wa</strong> au<br />
limetekelez<strong>wa</strong> ipasavyo ila mpaka liwe limeamuli<strong>wa</strong> na kutekelez<strong>wa</strong> na<br />
Wa<strong>bunge</strong> na vile vile na Rais, k<strong>wa</strong> mujibu <strong>wa</strong> madaraka yao <strong>kuhusu</strong><br />
jambo hilo.”<br />
Mfano mzuri <strong>wa</strong> jambo kama hilo ni mis<strong>wa</strong>da ya sheria. Mus<strong>wa</strong>da<br />
wowote hauwezi kukamilika na ku<strong>wa</strong> sheria ya nchi baada tu ya<br />
kupitish<strong>wa</strong> na Wa<strong>bunge</strong>. Inabidi vile vile mus<strong>wa</strong>da huo upate ridhaa ya<br />
Rais ndipo uhesabiwe ku<strong>wa</strong> ni sheria halali ya nchi.<br />
Eneo lingine linalothibitisha ku<strong>wa</strong> Serikali ni sehemu rasmi ya Bunge ni<br />
Ibara ya 55(4) ya Katiba, inayoweka sharti k<strong>wa</strong>mba: “Ma<strong>wa</strong>ziri na Naibu<br />
Ma<strong>wa</strong>ziri wote <strong>wa</strong>tateuli<strong>wa</strong> kutoka miongoni m<strong>wa</strong> <strong>wa</strong><strong>bunge</strong>.”<br />
Mfumo huu unalenga katika kulifanya Bunge na Serikali ku<strong>wa</strong> ni vyombo<br />
vinavyotegemeana, na k<strong>wa</strong> hiyo vinapas<strong>wa</strong> kufanya kazi zao k<strong>wa</strong><br />
4
mashirikiano mazuri, ili kuweza kufikia lengo la ku<strong>wa</strong>letea <strong>wa</strong>nanchi<br />
maendeleo katika nyanja mbali mbali za maendeleo na ustawi <strong>wa</strong> jamii.<br />
UMUHIMU WA KUUELEWA VIZURI MFUMO HUU<br />
Maelezo haya ya mfumo wetu, ambao unaifanya Serikali ku<strong>wa</strong> ni sehemu<br />
rasmi ya Bunge, yanatufikisha kwenye haja ya kueleza <strong>wa</strong>jibu <strong>wa</strong> Bunge<br />
<strong>wa</strong> kuiwezesha Serikali, iweze kutekeleza ipasavyo majukumu yake ya<br />
ku<strong>wa</strong>hudumia <strong>wa</strong>nanchi <strong>wa</strong>lioichagua.<br />
Maelezo yanahitajika k<strong>wa</strong> sababu zipo dalili zinazoonyesha ku<strong>wa</strong> <strong>wa</strong>jibu<br />
<strong>wa</strong> Bunge <strong>wa</strong> kuiwezesha Serikali haujaeleweka vizuri k<strong>wa</strong> baadhi ya<br />
<strong>wa</strong>nanchi. K<strong>wa</strong> mfano, <strong>wa</strong>po <strong>wa</strong>tu <strong>wa</strong>na<strong>of</strong>ikiri k<strong>wa</strong>mba kazi ya Bunge ni<br />
kutetea <strong>wa</strong>nanchi dhidi ya Serikali; na vile vile <strong>wa</strong>po wengine<br />
<strong>wa</strong>naotamani kuona Bunge linakataa baadhi ya mapendekezo ya Serikali,<br />
hususan kukataa bajeti ya Serikali, <strong>wa</strong>kiamini ku<strong>wa</strong> kitendo kama hicho<br />
ndicho kitaonyesha nguvu ya Bunge; yaani kitaonyesha k<strong>wa</strong>mba Bunge<br />
kweli lina nguvu ya kupambana na Serikali. Na <strong>wa</strong>sipoona hilo<br />
linafanyika, basi <strong>wa</strong>nazusha madai mengine k<strong>wa</strong>mba eti Bunge limeku<strong>wa</strong><br />
ni chombo cha kupiga muhuri tu kwenye mapendekezo yote ya Serikali,<br />
au k<strong>wa</strong>mba Bunge linaburuz<strong>wa</strong> tu na Serikali katika kupitisha mambo<br />
yake!<br />
Lakini k<strong>wa</strong> hakika hayo ni ma<strong>wa</strong>zo pot<strong>of</strong>u. Maelezo yatakay<strong>of</strong>uatia<br />
baadaye yatasaidia kulifafanua na kuliweka sa<strong>wa</strong> jambo hili, ambalo ni<br />
muhimu sana kikatiba.<br />
K<strong>wa</strong> kuanzia, ni vema nieleze k<strong>wa</strong>mba <strong>wa</strong>tu hao <strong>wa</strong>naotamani kuona<br />
bajeti ya Serikali inakatali<strong>wa</strong> na Bunge, ha<strong>wa</strong>jali hata kufikiria madhara<br />
makub<strong>wa</strong> yatakayosababish<strong>wa</strong> na tukio kama hilo.<br />
K<strong>wa</strong> mfano, M<strong>wa</strong>ndishi <strong>wa</strong> gazeti moja la kila siku la hapa nchini ali<strong>wa</strong>hi<br />
kuandika maneno yafuatayo mara baada ya bajeti ya Serikali kupitish<strong>wa</strong><br />
na Bunge:-<br />
5
“Hoja za Wizara ya Elimu, Afya, Maji, Ma<strong>wa</strong>siliano na<br />
Uchukuzi, na Utalii, ni kati ya hoja zilizokosole<strong>wa</strong> sana<br />
na Wa<strong>bunge</strong> <strong>wa</strong> CCM kiasi k<strong>wa</strong>mba kama siyo<br />
nidhamu ya chama, Ma<strong>wa</strong>ziri hao <strong>wa</strong>singeku<strong>wa</strong> na<br />
ziada isipoku<strong>wa</strong> kurudi kuandika hotuba mpya za<br />
makadirio ya Wizara zao.”<br />
Maneno hayo yanadhihirisha <strong>wa</strong>zi k<strong>wa</strong>mba m<strong>wa</strong>ndishi huyo hajui kabisa<br />
ni nini matokeo ya bajeti ya Wizara kukatali<strong>wa</strong> na Bunge. Yeye aliku<strong>wa</strong><br />
na ma<strong>wa</strong>zo pot<strong>of</strong>u k<strong>wa</strong>mba bajeti ya Wizara ikikatali<strong>wa</strong>, basi Waziri<br />
mhusika eti anakwenda kuandika hotuba nyingine!<br />
Usahihi <strong>wa</strong> jambo hili ni k<strong>wa</strong>mba kinachopitish<strong>wa</strong> na Bunge SIYO hotuba<br />
ya Waziri. La hasha. Kinachopitish<strong>wa</strong> na Bunge ni ki<strong>wa</strong>ngo cha fedha<br />
ambazo Wizara husika inaruhusi<strong>wa</strong> kuzitumia katika m<strong>wa</strong>ka <strong>wa</strong> fedha<br />
unaohusika. Kama ruhusa hiyo haikutole<strong>wa</strong> na Bunge, basi maana yake<br />
ni k<strong>wa</strong>mba Wizara hiyo italazimika kusimamisha shughuli zake zote,<br />
kutokana na kukosa fedha za kuendesha shughuli hizo. Ndiyo kusema<br />
k<strong>wa</strong>mba kama ni Wizara ya Elimu, italamizika kufunga shule na vyuo<br />
vyake vyote k<strong>wa</strong> m<strong>wa</strong>ka huo; na <strong>wa</strong>limu pamoja na <strong>wa</strong>fanyakazi wengine<br />
<strong>wa</strong> Wizara hiyo ha<strong>wa</strong>taweza kulip<strong>wa</strong> mishahara yao k<strong>wa</strong> m<strong>wa</strong>ka huo,<br />
k<strong>wa</strong> sababu ya Bunge kukataa kuidhinisha matumizi ya fedha za<br />
ku<strong>wa</strong>lipa mishahara.<br />
K<strong>wa</strong> maneno mengine, matokeo ya Bunge kukataa kupitisha bajeti ya<br />
Wizara siyo k<strong>wa</strong>mba Waziri atakwenda kuandika hotuba nyingine.<br />
Matokeo yake ni k<strong>wa</strong>mba Wizara hiyo haitaku<strong>wa</strong> na fedha za kufanyia<br />
kazi k<strong>wa</strong> m<strong>wa</strong>ka huo mzima. Hakuna M<strong>bunge</strong> yeyote mwenye akili<br />
timamu atakayeruhusu janga kub<strong>wa</strong> kama hilo litokee, hata kama<br />
hafungwi na nidhamu ya Chama!<br />
WAJIBU WA BUNGE WA KUIWEZESHA<br />
SERIKALI ILIYOPO MADARAKANI<br />
Tumekwisha kuona katika maelezo yaliyotangulia, k<strong>wa</strong>mba “lengo kuu<br />
la Serikali ni ustawi <strong>wa</strong> <strong>wa</strong>nanchi” (Ibara ya 8(1) (b) ya Katiba).<br />
Itakumbuk<strong>wa</strong> vile vile k<strong>wa</strong>mba kabla ya kila uchaguzi mkuu, Vyama<br />
vyote vya siasa vinavyoshiriki katika uchaguzi huo hutangaza sera zake<br />
katika vijitabu vinavyoit<strong>wa</strong> “Ilani ya Uchaguzi” Lengo la Ilani ya<br />
Uchaguzi ni kuainisha mambo yale ambayo Chama kinachohusika<br />
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kitayatekeleza endapo kitafaniki<strong>wa</strong> kupata ushindi utakaokiwezesha<br />
kuunda Serikali. Ndiyo kusema k<strong>wa</strong>mba Chama chochote<br />
kinach<strong>of</strong>aniki<strong>wa</strong> kupata ushindi katika uchaguzi mkuu na kuunda<br />
Serikali, kinaku<strong>wa</strong> na <strong>wa</strong>jibu usiokwepeka <strong>wa</strong> kutimiza ahadi zao<br />
<strong>wa</strong>lizozitoa k<strong>wa</strong> <strong>wa</strong>nanchi kupitia Ilani yao ya uchaguzi.<br />
Lakini njia pekee zilizopo k<strong>wa</strong> Serikali yoyote iliyopo madarakani za<br />
kuiwezesha kutimiza ahadi zilizotole<strong>wa</strong> katika Ilani yake ya uchaguzi, ni<br />
hizi zifuatazo:-<br />
(a)<br />
K<strong>wa</strong> kutunga sheria pale ambapo utekelezaji unahitaji sheria;<br />
na<br />
(b) K<strong>wa</strong> kutumia fedha zilizomo katika bajeti yake<br />
iliyoidhinish<strong>wa</strong> na Bunge.<br />
K<strong>wa</strong> hiyo k<strong>wa</strong> ku<strong>wa</strong> Bunge ndiyo mamlaka pekee yenye madaraka<br />
kikatiba ya kutunga sheria za nchi; na vile vile Bunge ndiyo mamlaka<br />
pekee yenye madaraka ya kuidhinisha utozaji <strong>wa</strong> kodi, pamoja na<br />
kuidhinisha matumizi ya fedha zinazotokana na kodi hizo; basi k<strong>wa</strong><br />
maana hiyo, Bunge linapotunga Sheria tuseme ya kupambana na rush<strong>wa</strong>,<br />
linaku<strong>wa</strong> limeiwezesha Serikali kuchukua hatua za kisheria za<br />
kupambana na tatizo hilo. Hali kadhalika, Bunge linapoidhinisha bajeti ya<br />
Wizara tuseme ya Maji, linaku<strong>wa</strong> k<strong>wa</strong> kweli limefanya kazi ya kuiwezesha<br />
Serikali kutekeleza sera yake ya ku<strong>wa</strong>patia <strong>wa</strong>nanchi maji safi na salama<br />
katika kipindi cha m<strong>wa</strong>ka huo <strong>wa</strong> bajeti. Ndiyo kusema basi k<strong>wa</strong>mba<br />
Bunge linapotunga sheria fulani, au linapoidhinisha bajeti ya Serikali;<br />
linaku<strong>wa</strong> limefanya kitendo cha kuiwezesha Serikali kutekeleza <strong>wa</strong>jibu<br />
<strong>wa</strong>ke k<strong>wa</strong> <strong>wa</strong>nanchi, kulingana na ahadi zilizotole<strong>wa</strong> katika Ilani yake ya<br />
Uchaguzi.<br />
Ndiyo sababu kanuni za uendeshaji <strong>wa</strong> shughuli za Bunge zinatoa<br />
kipaumbele cha k<strong>wa</strong>nza k<strong>wa</strong> shughuli za Serikali ziweze kujadili<strong>wa</strong><br />
k<strong>wa</strong>nza na kupitish<strong>wa</strong>, kabla ya kuingia kwenye shughuli zisizoku<strong>wa</strong> za<br />
Serikali, kama vile Hoja binafsi za Wa<strong>bunge</strong>, au mis<strong>wa</strong>da binafsi ya<br />
Wa<strong>bunge</strong>. Lengo la Kanuni hizo ni kuhakikisha k<strong>wa</strong>mba Bunge k<strong>wa</strong>nza<br />
limalize kazi yote ya kuiwezesha Serikali iweze kutekeleza <strong>wa</strong>jibu <strong>wa</strong>ke<br />
k<strong>wa</strong> <strong>wa</strong>nanchi <strong>wa</strong>lioichagua, k<strong>wa</strong> kuipitishia mis<strong>wa</strong>da yake ya sheria<br />
pamoja na Hoja zake nyingine zitakazoku<strong>wa</strong> zime<strong>wa</strong>silish<strong>wa</strong>. Baada ya<br />
7
hapo ndipo liendelee na kazi ya kushughulikia Hoja za Wa<strong>bunge</strong> binafsi<br />
kama zitaku<strong>wa</strong>po.<br />
K<strong>wa</strong> hiyo <strong>wa</strong>le wote <strong>wa</strong>naosikika <strong>wa</strong>kidai ku<strong>wa</strong> eti Bunge kazi yake ni<br />
kupiga tu muhuri k<strong>wa</strong> mapendekezo ya Serikali; madai yao hayo k<strong>wa</strong><br />
kweli yanatokana na kutokuele<strong>wa</strong> vizuri <strong>wa</strong>jibu huu <strong>wa</strong> Bunge <strong>wa</strong><br />
kuiwezesha Serikali iweze kutekeleza <strong>wa</strong>jibu <strong>wa</strong>ke ipasavyo k<strong>wa</strong><br />
<strong>wa</strong>nanchi <strong>wa</strong>lioichagua. Inaelekea vile vile k<strong>wa</strong>mba <strong>wa</strong>tu hao ha<strong>wa</strong>jui<br />
k<strong>wa</strong>mba mis<strong>wa</strong>da ya sheria ya Serikali hufanyi<strong>wa</strong> mabadiliko makub<strong>wa</strong><br />
katika vifungu vyake <strong>wa</strong>kati <strong>wa</strong> kufikiri<strong>wa</strong> katika Kamati za Bunge, na<br />
baadaye mabadiliko hayo huidhinish<strong>wa</strong> na Bunge lenyewe, kabla ya<br />
kupitisha mis<strong>wa</strong>da hiyo ku<strong>wa</strong> ni sheria za nchi. Kama kazi hiyo inaweza<br />
kweli kuit<strong>wa</strong> ku<strong>wa</strong> ni kupiga tu muhuri, basi hayo k<strong>wa</strong> hakika ni<br />
matumizi mabaya ya lugha ya Kis<strong>wa</strong>hili!<br />
WAJIBU WA BUNGE WA KUISIMAMIA SERIKALI<br />
Kama ilivyoelekez<strong>wa</strong> katika Ibara ya 63(2) ya Katiba, <strong>wa</strong>jibu mwingine <strong>wa</strong><br />
Bunge pia ni:-<br />
“Kuisimamia na kuishauri Serikali na vyombo vyake vyote katika<br />
utekelezaji <strong>wa</strong> majukumu yake.”<br />
Lakini ni vema ikumbukwe k<strong>wa</strong>mba hatua hiyo ya utekelezaji inafuata tu<br />
baada ya hatua ya uwezesh<strong>wa</strong>ji ku<strong>wa</strong> imekamilika. Yaani uwezesh<strong>wa</strong>ji <strong>wa</strong><br />
Serikali unakuja k<strong>wa</strong>nza, halafu ndipo utekelezaji unafuata baada ya<br />
Serikali ku<strong>wa</strong> imewezesh<strong>wa</strong> kutekeleza hayo yaliyokusudi<strong>wa</strong>, ama k<strong>wa</strong><br />
kupitishi<strong>wa</strong> mis<strong>wa</strong>da ya sheria zinazohitajika; au k<strong>wa</strong> kupitishi<strong>wa</strong> bajeti<br />
yake.<br />
K<strong>wa</strong> mujibu <strong>wa</strong> masharti ya Ibara ya 63(3) ya Katiba, Bunge linasimamia<br />
utekelezaji una<strong>of</strong>any<strong>wa</strong> na Serikali k<strong>wa</strong> kutumia njia zifuatazo:-<br />
(a) K<strong>wa</strong> ku<strong>wa</strong>uliza Ma<strong>wa</strong>ziri mas<strong>wa</strong>li Bungeni <strong>kuhusu</strong><br />
utekelezaji una<strong>of</strong>any<strong>wa</strong> na Wizara zao;<br />
Kazi hii hufany<strong>wa</strong> na Wa<strong>bunge</strong> k<strong>wa</strong> ufanisi mkub<strong>wa</strong>, k<strong>wa</strong>ni kipindi cha<br />
mas<strong>wa</strong>li na majibu Bungeni hupe<strong>wa</strong> kipaumbele cha k<strong>wa</strong>nza kila siku<br />
asubuhi <strong>wa</strong>kati wote <strong>wa</strong> vikao vya Bunge.<br />
8
(b)<br />
K<strong>wa</strong> kujadili utekelezaji <strong>wa</strong> kila Wizara uli<strong>of</strong>any<strong>wa</strong> katika<br />
m<strong>wa</strong>ka uliotangulia, pamoja na kutoa ushauri una<strong>of</strong>aa<br />
kuzingati<strong>wa</strong> katika m<strong>wa</strong>ka <strong>wa</strong> fedha una<strong>of</strong>uata.<br />
Kutokana na ukub<strong>wa</strong> <strong>wa</strong> Bunge ulivyo, k<strong>wa</strong> maana ya idadi ya <strong>wa</strong><strong>bunge</strong><br />
ku<strong>wa</strong> ni kub<strong>wa</strong>, kazi hii haiwezi kufanyika k<strong>wa</strong> ufanisi katika vikao vya<br />
Bunge lenyewe. Kazi hiyo inaweza tu kufanyika k<strong>wa</strong> ufanisi katika vikao<br />
vya Kamati mbalimbali za Bunge ambapo, k<strong>wa</strong> sababu <strong>wa</strong>jumbe <strong>wa</strong> kila<br />
Kamati ni <strong>wa</strong>chache (ha<strong>wa</strong>zidi 30), <strong>wa</strong>naku<strong>wa</strong> na fursa nzuri zaidi ya<br />
kuchambua mambo yote yanayohusika k<strong>wa</strong> undani zaidi, na k<strong>wa</strong> hiyo<br />
kuweza kupata ufanisi mkub<strong>wa</strong> zaidi.<br />
SEHEMU YA TATU<br />
UHUSIANO BAINA YA BUNGE NA MAHAKAMA<br />
Ni bahati mbaya sana k<strong>wa</strong>mba mahusiano baina ya Bunge na Mahakama<br />
vile vile bado hayajaeleweka vizuri na baadhi ya <strong>wa</strong>tu. Majukumu ya<br />
Mahakama yameelez<strong>wa</strong> bayana katika Ibara ya 107A na 107B za Katiba,<br />
kama ifuatavyo:-<br />
“107A Mamlaka ya utoaji haki katika Jamhuri ya Muungano<br />
itaku<strong>wa</strong> mikononi m<strong>wa</strong> Idara ya Mahakama.”<br />
“107B Katika kutekeleza mamlaka ya utoaji haki, Mahakama zote<br />
zitaku<strong>wa</strong> huru, na zitalazimika kuzingatia tu masharti ya Katiba na<br />
Sheria za nchi.”<br />
Huo basi ndio mga<strong>wa</strong>no <strong>wa</strong> madaraka kikatiba baina ya Bunge na<br />
Mahakama. Yaani:-<br />
(a)<br />
Madaraka ya Mahakama ni kutoa uamuzi <strong>wa</strong> haki katika<br />
mashauri ya madai na mashauri ya jinai, k<strong>wa</strong> kuzingatia Katiba<br />
na sheria za nchi.<br />
9
(b)<br />
Madaraka ya Bunge ni kutunga sheria za nchi ambazo<br />
zitatumi<strong>wa</strong> na Mahakama katika shughuli zake za utoaji haki.<br />
K<strong>wa</strong> maneno mengine, Bunge pia ni chombo cha uwezeshaji k<strong>wa</strong><br />
Mahakama. Yaani Bunge linao <strong>wa</strong>jibu <strong>wa</strong> kutunga sheria<br />
zitakazoziwezesha Mahakama kutekeleza ipasavyo shughuli zake za<br />
utoaji haki. K<strong>wa</strong>ni bila Bunge kutunga sheria mbali mbali, Mahakama<br />
hazitaweza kutimiza <strong>wa</strong>jibu <strong>wa</strong>ke <strong>wa</strong> utoaji haki.<br />
Lakini zipo dalili zinazoonyesha k<strong>wa</strong>mba <strong>wa</strong>po baadhi ya <strong>wa</strong>tu ambao<br />
bado ha<strong>wa</strong>jaele<strong>wa</strong> vizuri mahusiano hayo ya kikatiba yaliyopo baina ya<br />
Bunge na Mahakama.<br />
Ushahidi <strong>wa</strong> ku<strong>wa</strong>po k<strong>wa</strong> hali hiyo ni mifano inayotole<strong>wa</strong> mara k<strong>wa</strong> mara<br />
k<strong>wa</strong>mba eti Bunge linaingilia uhuru na madaraka ya Mahakama. Mfano<br />
mmoja unaotole<strong>wa</strong> mara nyingi ni ule <strong>wa</strong> kesi ya Mchungaji Mtikila.<br />
Watu wenye fikra hizo <strong>wa</strong>nasema k<strong>wa</strong>mba Mahakama ilimpa Mchungaji<br />
Mtikila ushindi katika kesi yake ya kudai kuruhusi<strong>wa</strong> ku<strong>wa</strong>po k<strong>wa</strong><br />
<strong>wa</strong>gombea binafsi <strong>wa</strong> nafasi za U<strong>bunge</strong> na Urais, k<strong>wa</strong> madai k<strong>wa</strong>mba<br />
kuzuia <strong>wa</strong>gombea binafsi <strong>wa</strong>sishiriki katika chaguzi hizo ni kukiuka Ibara<br />
ya 21(1) ya Katiba. Lakini baada ya hapo, Bunge lilipitisha sheria<br />
nyingine ya kutengua uamuzi huo <strong>wa</strong> Mahakama. K<strong>wa</strong> hiyo <strong>wa</strong>nadai<br />
k<strong>wa</strong>mba kitendo hicho kiliku<strong>wa</strong> ni kuingilia uhuru na madaraka ya<br />
Mahakama.<br />
Ni vizuri kusema hapa k<strong>wa</strong>mba tunatambua ku<strong>wa</strong> <strong>wa</strong>tu <strong>wa</strong>naotoa maoni<br />
ya aina hiyo, <strong>wa</strong>nayo haki ya kuyatoa, k<strong>wa</strong> sababu haki ya kila mtu ya<br />
kutoa maoni yake inalind<strong>wa</strong> na Ibara ya 18(1) ya Katiba. Lakini ni vema<br />
pia <strong>wa</strong>jue k<strong>wa</strong>mba ma<strong>wa</strong>zo na maoni yao hayo yanakwenda kinyume<br />
kabisa na kusudio la Bunge lenyewe, ambalo lilipelekea kutung<strong>wa</strong> k<strong>wa</strong><br />
sheria hiyo.<br />
KUSUDIO LA BUNGE LILIVYOKUWA<br />
Inaelekea k<strong>wa</strong>mba <strong>wa</strong>le <strong>wa</strong>naotoa maoni hayo ha<strong>wa</strong>kujipa muda <strong>wa</strong><br />
kuisoma hukumu yenyewe na kuzingatia maudhui yake, halafu<br />
<strong>wa</strong>kalinganisha maudhui ya hukumu hiyo na maudhui ya sheria<br />
iliyotung<strong>wa</strong> na Bunge baada ya hukumu hiyo kutole<strong>wa</strong>. Kama<br />
<strong>wa</strong>ngeisoma hukumu hiyo k<strong>wa</strong> makini, pamoja na kuisoma sheria hiyo<br />
inayohusika, <strong>wa</strong>ngegundua k<strong>wa</strong>mba kumbe sheria hiyo ilitung<strong>wa</strong> ili<br />
10
kutekeleza maelekezo yaliyoku<strong>wa</strong> yametole<strong>wa</strong> na Mahakama yenyewe<br />
kwenye hukumu yake hiyo, na <strong>wa</strong>la siyo kuitengua hata kidogo!<br />
Katika hukumu hiyo, Mahakama ilibaini ku<strong>wa</strong>po k<strong>wa</strong> mgongano baina ya<br />
Ibara mbili za Katiba <strong>kuhusu</strong> suala hili la mgombea binafsi. Mgongano<br />
wenyewe ni k<strong>wa</strong>mba <strong>wa</strong>kati Ibara ya 20(4) inapiga marufuku “mtu yeyote<br />
kulazimish<strong>wa</strong> kujiunga na Chama chochote,” Ibara za 39 na 67 za Katiba<br />
hiyo hiyo zinamzuia mtu yeyote asiweze kugombea Urais au U<strong>bunge</strong> bila<br />
ku<strong>wa</strong> ameteuli<strong>wa</strong> rasmi na Chama fulani cha siasa. Baada ya<br />
kuzungumzia mgongano huo, ndipo Mahakama ilipotoa kauli yake kama<br />
ifuatavyo, k<strong>wa</strong> lugha ya Kingereza:-<br />
“It is illogical for a law to provide that no person shall be<br />
compelled to belong to a political party, and in the same breath to<br />
provide that no person shall run for political <strong>of</strong>fice except<br />
through a political party. If it were the intention <strong>of</strong> the<br />
Legislature to exclude non-party citizens from<br />
participating in the government, it could have easily done<br />
so by removing the generality in Article 21(1).”<br />
K<strong>wa</strong> hiyo kilich<strong>of</strong>any<strong>wa</strong> na Bunge katika sheria iliyotung<strong>wa</strong> baada ya<br />
hukumu hiyo kiliku<strong>wa</strong> tu ni kuondoa hiyo “generality” katika Ibara ya<br />
21(1) kulingana na kauli iliyotole<strong>wa</strong> na Mahakama yenyewe.<br />
Ufafanuzi huu unaonyesha dhahiri k<strong>wa</strong>mba Bunge halikufanya kitendo<br />
chochote cha kuingilia madaraka ya Mahakama kama inavyodai<strong>wa</strong> na<br />
baadhi ya <strong>wa</strong>tu. Bunge lilitekeleza tu <strong>wa</strong>jibu <strong>wa</strong>ke <strong>wa</strong> kutunga sheria<br />
mpya ili kuondoa utata ulioku<strong>wa</strong>mo katika sheria ya a<strong>wa</strong>li, kama<br />
ulivyoku<strong>wa</strong> umeainish<strong>wa</strong> na Mahakama yenyewe.<br />
Mfano mwingine unaotole<strong>wa</strong> mara nyingi eti <strong>wa</strong> Bunge kuingilia uhuru<br />
na madaraka ya Mahakama, ni ile hukumu iliyotole<strong>wa</strong> katika kesi ya<br />
Ndyanabo ya mwezi February, 2002. Kilichotokea ni k<strong>wa</strong>mba baada ya<br />
Mahakama ya Rufaa kutoa hukumu yake hiyo ya mwezi Februari 2002,<br />
Serikali ilitangaza mus<strong>wa</strong>da mpya <strong>wa</strong> sheria mwezi Octoba 2002, wenye<br />
lengo na nia ya kuweka sheria mpya badala ya ile iliy<strong>of</strong>ut<strong>wa</strong> na<br />
Mahakama ya Rufaa. Baada ya kutangaz<strong>wa</strong> k<strong>wa</strong> mus<strong>wa</strong>da huo, madai<br />
mengine yalijitokeza k<strong>wa</strong> mara nyingine tena ya kudai ku<strong>wa</strong> eti Serikali<br />
na Bunge vinaingilia uhuru na madaraka ya Mahakama.<br />
11
Lakini majibu ya madai hayo ni sa<strong>wa</strong> na yale yaliyotole<strong>wa</strong> hapo juu<br />
<strong>kuhusu</strong> kesi ya Mtikila, nayo ni k<strong>wa</strong>mba kama <strong>wa</strong>le <strong>wa</strong>naotoa madai hayo<br />
<strong>wa</strong>ngeisoma k<strong>wa</strong> makini hukumu iliyotole<strong>wa</strong> na Mahakama ya Rufaa<br />
katika kesi hiyo, na vile vile <strong>wa</strong>kasoma k<strong>wa</strong> makini maudhui ya mus<strong>wa</strong>da<br />
uliotangaz<strong>wa</strong> na Serikali; <strong>wa</strong>ngegundua vile vile k<strong>wa</strong>mba mus<strong>wa</strong>da huo<br />
una madhumuni mazuri tu ya kuondoa kasoro zilizotaj<strong>wa</strong> katika hukumu<br />
hiyo ya Mahakama ya Rufaa.<br />
Kasoro kub<strong>wa</strong> iliyoainish<strong>wa</strong> na Mahakama k<strong>wa</strong>mba iliku<strong>wa</strong>po katika<br />
sheria ya a<strong>wa</strong>li, ni k<strong>wa</strong>mba ki<strong>wa</strong>ngo cha shs. millioni tano kiliku<strong>wa</strong> ni<br />
kikub<strong>wa</strong> mno kiasi cha ku<strong>wa</strong>zuia <strong>wa</strong>tu wengi <strong>wa</strong>sioku<strong>wa</strong> na uwezo<br />
mkub<strong>wa</strong> <strong>wa</strong> kifedha <strong>wa</strong>shindwe ku<strong>wa</strong>silisha malalamiko yao<br />
Mahakamani. Lakini Mahakama ya Rufaa haikuishia hapo, bali iliendelea<br />
kutoa kauli nyingine k<strong>wa</strong>mba k<strong>wa</strong> hakika dhamana ya shillingi mia tano<br />
ambayo iliwek<strong>wa</strong> tangu m<strong>wa</strong>ka 1971, iliku<strong>wa</strong> haina maana yoyote katika<br />
mazingira ya sasa. Maneno ya Mahakama ya Rufaa yanasema hivi k<strong>wa</strong><br />
lugha ya Kingereza:-<br />
“Bearing in mind the decline <strong>of</strong> the value <strong>of</strong> the shilling which has<br />
taken place since 1971 when the rules were made, it cannot be<br />
disputed that that sum is now too low to serve any useful or<br />
practical purpose in terms <strong>of</strong> providing security for costs, but it is<br />
not within the competence <strong>of</strong> this court, or <strong>of</strong> any other court for that<br />
matter, to amend the Rule.”<br />
K<strong>wa</strong> hiyo kilich<strong>of</strong>anyika katika mus<strong>wa</strong>da <strong>wa</strong> Serikali ni kuondoa tu<br />
kasoro hizo ambazo Mahakama ilizibaini. Mus<strong>wa</strong>da unaondoa kasoro<br />
hizo k<strong>wa</strong> kuongeza vifungu vipya ambavyo vinaipatia Mahakama uwezo<br />
<strong>wa</strong> ku<strong>wa</strong>punguzia ki<strong>wa</strong>ngo cha dhamana <strong>wa</strong>lalamikaji ambao <strong>wa</strong>na<br />
uwezo mdogo <strong>wa</strong> kifedha, na pia Mahakama zinape<strong>wa</strong> uwezo <strong>wa</strong><br />
ku<strong>wa</strong>samehe kabisa <strong>wa</strong>lalamikaji ambao ha<strong>wa</strong>na uwezo wowote <strong>wa</strong><br />
kifedha, <strong>wa</strong>silipe dhamana yoyote. Baada ya kufanya hivyo, mus<strong>wa</strong>da pia<br />
unazingatia kauli ile ya Mahakama k<strong>wa</strong>mba dhamana ya shillingi mia<br />
tano tu iliyowek<strong>wa</strong> m<strong>wa</strong>ka 1971 k<strong>wa</strong> sasa haina maana yoyote, lakini<br />
k<strong>wa</strong>mba Mahakama yenyewe haina mamlaka ya kubadilisha ki<strong>wa</strong>ngo<br />
hicho.<br />
K<strong>wa</strong> hiyo mus<strong>wa</strong>da <strong>wa</strong> Serikali unarejesha ki<strong>wa</strong>ngo cha dhamana ku<strong>wa</strong><br />
ni shillingi millioni tano ili kutekeleza kauli ya Mahakama iliposema<br />
k<strong>wa</strong>mba ki<strong>wa</strong>ngo cha shillingi mia tano ni kidogo mno katika mazingira<br />
12
ya sasa, lakini mus<strong>wa</strong>da huo unaweka masharti mapya k<strong>wa</strong>mba shillingi<br />
millioni tano zitaku<strong>wa</strong> ni ki<strong>wa</strong>ngo cha mwisho juu, ili mlalamikaji yeyote<br />
asiyeku<strong>wa</strong> na uwezo <strong>wa</strong> kulipa ki<strong>wa</strong>ngo hicho a<strong>wa</strong>silishe hoja yake<br />
mahakamani ya kuomba kupunguzi<strong>wa</strong>, na mlalamiki<strong>wa</strong> naye apewe<br />
nafasi ya kupinga hoja hiyo. Halafu Mahakama itatoa uamuzi <strong>wa</strong><br />
ki<strong>wa</strong>ngo gani mlalamikaji atapas<strong>wa</strong> kulipa kama dhamana, baada ya<br />
kusikiliza hoja za pande zote mbili, yaani hoja za mlalamikaji, pamoja na<br />
hoja za mlalamiki<strong>wa</strong>.<br />
Maelezo hayo yanaonyesha <strong>wa</strong>zi k<strong>wa</strong>mba madhumuni halisi ya<br />
mus<strong>wa</strong>da huu ni kuondoa kasoro zilizotaj<strong>wa</strong> na Mahakama yenyewe<br />
k<strong>wa</strong>mba ziliku<strong>wa</strong>po katika sheria ya a<strong>wa</strong>li, ambazo zilisababisha sheria<br />
hiyo ifutwe.<br />
Kuhusu ki<strong>wa</strong>ngo hicho cha shillingi millioni tano kilifiki<strong>wa</strong> vipi, pengine<br />
ni vema kueleza hapa, k<strong>wa</strong> madhumuni ya kuweka kumbukumbu,<br />
k<strong>wa</strong>mba pendekezo la ki<strong>wa</strong>ngo hicho lilitole<strong>wa</strong> k<strong>wa</strong> mara ya k<strong>wa</strong>nza na<br />
Mheshimi<strong>wa</strong> Jaji Agustino Ramadhani, Makamu Mwenyekitti <strong>wa</strong> Tume<br />
ya Taifa ya Uchaguzi, katika makala yake iliyochapish<strong>wa</strong> katika jarida la<br />
BUNGE NEWS, Vol. 6, Aprili 1998, kama ifuatavyo:-<br />
“Needless to say that election petitions are a great bother and a<br />
<strong>wa</strong>ste <strong>of</strong> time, efforts and the meager resources <strong>of</strong> this Nation. So,<br />
we propose the following measures to be taken to minimize<br />
election petitions:-<br />
(a)<br />
(b)<br />
(c)<br />
…………….<br />
…………….<br />
Raise the amount <strong>of</strong> fees payable at the filling <strong>of</strong> a petition from the<br />
current very low sum <strong>of</strong> shs 500.00. Other jurisdictions like Ireland<br />
have imposed a fee which is the equivalent <strong>of</strong> shs 5,000,000/= “This<br />
could also be considered in our own case.”<br />
K<strong>wa</strong> hiyo katika busara zake, Bunge liliona ku<strong>wa</strong> inafaa kabisa<br />
kukubaliana na pendekeza hilo la Jaji Ramadhani, ndiyo sababu likaweka<br />
ki<strong>wa</strong>ngo hicho cha shillingi millioni tano.<br />
Lakini <strong>wa</strong>tu wengine <strong>wa</strong>sioiele<strong>wa</strong> sa<strong>wa</strong> sa<strong>wa</strong> taaluma hii, <strong>wa</strong>lidakia<br />
haraka haraka kudai eti k<strong>wa</strong>mba kutangaz<strong>wa</strong> k<strong>wa</strong> mus<strong>wa</strong>da huo<br />
yaliku<strong>wa</strong> ni “malumbano” baina ya Serikali na Mahakama.<br />
13
Usahihi <strong>wa</strong> jambo hilo ni k<strong>wa</strong>mba mus<strong>wa</strong>da huo <strong>wa</strong> Serikali unatekeleza<br />
tu azma ya kuondoa kasoro zilizoku<strong>wa</strong>po katika sheria ya a<strong>wa</strong>li ambayo<br />
ilifut<strong>wa</strong> na Mahakama. Mus<strong>wa</strong>da huo ulijadili<strong>wa</strong> kama ka<strong>wa</strong>ida Bungeni<br />
kuanzia tarehe 13 hadi 14 Novemba, 2002; na hatimaye ukapitish<strong>wa</strong> k<strong>wa</strong><br />
kauli moja ya “NDIYO.” Huu sasa unaku<strong>wa</strong> ni uthibitisho <strong>wa</strong> mwisho<br />
ambao unafutilia mbali mashaka ya aina yoyote yaliyoku<strong>wa</strong>po, (kama<br />
kweli yaliku<strong>wa</strong>po), k<strong>wa</strong>mba katika masuala ya kutunga sheria za Nchi,<br />
Bunge ndilo k<strong>wa</strong> hakika lenye kauli ya mwisho.<br />
KWA NINI LAWAMA ZOTE NI KWA BUNGE TU?<br />
Inashangaza sana kuona k<strong>wa</strong>mba <strong>wa</strong>tu ambao <strong>wa</strong>naku<strong>wa</strong> wepesi mno<br />
kulaumu Bunge katika jambo hili, <strong>wa</strong>naku<strong>wa</strong> bubu kabisa inapotokea<br />
sababu ya <strong>wa</strong>zi ya kulaumu Mahakama.<br />
K<strong>wa</strong> mfano, katika kesi ya Julius Ndyanabo v the Attorney General (2002),<br />
Mahakama ya Rufaa ilibadilisha maneno yaliyomo katika Katiba ya nchi,<br />
k<strong>wa</strong> kufuta neno “au” linalotangulia neno “duni” katika mstari <strong>wa</strong> saba<br />
<strong>wa</strong> Ibara ya 13(5) ya Katiba; na badala yake Mahakama ikaweka neno<br />
“na.”<br />
Hakuna asiyejua ku<strong>wa</strong> Mahakama yoyote haina uwezo <strong>wa</strong> kubadilisha<br />
maneno ya Katiba, k<strong>wa</strong> sababu uwezo <strong>wa</strong> kubadili Katiba umetole<strong>wa</strong> k<strong>wa</strong><br />
Bunge tu k<strong>wa</strong> mujibu <strong>wa</strong> Ibara ya 98(1) ya Katiba; na hata hivyo uwezo<br />
huo umetole<strong>wa</strong> k<strong>wa</strong> masharti magumu k<strong>wa</strong>mba badiliko lolote katika<br />
Katiba lazima liungwe mkono na kura za Wa<strong>bunge</strong> ambao idadi yao<br />
haipungui theluthi mbili ya Wa<strong>bunge</strong> wote; na katika maeneo mengine<br />
yaliyotaj<strong>wa</strong> katika kifungu cha (b) cha Ibara hiyo, badiliko la maeneo hayo<br />
lazima liungwe mkono na kura za Wa<strong>bunge</strong> ambao idadi yao haipungui<br />
theluthi mbili za Wa<strong>bunge</strong> wote kutoka <strong>Tanzania</strong> Bara, pamoja na theluthi<br />
nyingine mbili za Wa<strong>bunge</strong> wote kutoka <strong>Tanzania</strong> Zanzibar.<br />
Ndiyo kusema ku<strong>wa</strong> katika kesi hii, Mahakama ya Rufaa ilipuuza k<strong>wa</strong><br />
makusudi masharti hayo ya Katiba, badala yake ikajit<strong>wa</strong>lia madaraka ya<br />
kubadili Katiba kinyume kabisa na taratibu zilizowek<strong>wa</strong>. Lakini hakuna<br />
aliyeinyooshea mkono <strong>wa</strong> la<strong>wa</strong>ma Mahakama hiyo. Wale ambao ni<br />
wepesi sana kukosoa Bunge <strong>wa</strong>liku<strong>wa</strong> <strong>wa</strong>pi?<br />
14
SEHEMU YA NNE<br />
HAKUNA UTENGANISHO WA MADARAKA (Separation <strong>of</strong> powers)<br />
Maelezo yaliyotangulia pia yanaonyesha k<strong>wa</strong>mba k<strong>wa</strong> mujibu <strong>wa</strong> Katiba<br />
ya nchi yetu, ile dhana ya utenganisho <strong>wa</strong> madaraka baina ya mihimili<br />
mitatu ya Dola, yaani Serikali, Bunge na Mahakama; k<strong>wa</strong> kweli haipo.<br />
Badala yake, kilichopo ni maingiliano ya madaraka baina ya mihimili hiyo,<br />
kama mifano ifuatayo inavyoonyesha:-<br />
(1) Madaraka ya Serikali ya kuta<strong>wa</strong>la yameainish<strong>wa</strong> katika<br />
Ibara ya 34(3) ya Katiba, ambayo inaweka madaraka yote ya<br />
uta<strong>wa</strong>la una<strong>of</strong>any<strong>wa</strong> na Serikali ya Muungano mikononi<br />
m<strong>wa</strong> Rais.<br />
Lakini <strong>wa</strong>kati huo huo Ibara ya 37 ya Katiba inakabidhi madaraka ya<br />
utekelezaji <strong>wa</strong> shughuli za Rais <strong>wa</strong>kati hayupo nchini, na Makamu <strong>wa</strong><br />
Rais naye pia hayupo, madaraka ya Rais yanakabidhi<strong>wa</strong> k<strong>wa</strong>nza k<strong>wa</strong><br />
Spika <strong>wa</strong> Bunge, na kama naye pia hayupo nchini, madaraka hayo<br />
yanakwenda k<strong>wa</strong> Jaji Mkuu <strong>wa</strong> Mahakama ya Rufani. Lakini ha<strong>wa</strong> ndio<br />
Viongozi Wakuu <strong>wa</strong> mihimili ile mingine, yaani Bunge na Mahakama.<br />
K<strong>wa</strong> maana hiyo, mihimili hiyo mingine pia imepe<strong>wa</strong> na Katiba madaraka<br />
ya kuendesha uta<strong>wa</strong>la <strong>wa</strong> nchi katika nyakati hizo zilizotaj<strong>wa</strong> kwenye<br />
Ibara hiyo ya 37 ya Katiba. Ndiyo kusema k<strong>wa</strong>mba mihimili yote mitatu<br />
inashirikish<strong>wa</strong> katika kuendesha uta<strong>wa</strong>la <strong>wa</strong> Nchi, na siyo mhimili<br />
Serikali peke yake.<br />
(2) Madaraka ya kutunga sheria za nchi yamewek<strong>wa</strong> mikononi<br />
m<strong>wa</strong> Bunge, k<strong>wa</strong> mujibu <strong>wa</strong> Ibara ya 64 ya Katiba.<br />
Lakini Mahakama vile vile inayo madaraka ya kutunga sheria nyingine<br />
zinazoit<strong>wa</strong> “case law.” Mbali na hizo, Mahakama pia zinao uwezo <strong>wa</strong><br />
kufuta sheria fulani, au vifungu vya sheria fulani iliyotung<strong>wa</strong> na Bunge,<br />
endapo itaonekana ku<strong>wa</strong> vinakiuka Katiba. Ni vema ijulikane k<strong>wa</strong>mba<br />
kitendo cha kufuta sheria, au kufuta vifungu vya sheria, ni kitendo cha<br />
kushiriki katika utungaji <strong>wa</strong> sheria, k<strong>wa</strong> sababu madaraka ya kutunga<br />
sheria yanajumuisha pia madaraka ya kurekebisha sheria yoyote iliyopo,<br />
pamoja na kufuta kabisa sheria yoyote iliyopo. Ndiyo kusema k<strong>wa</strong>mba<br />
kila mara Mahakama zinapochukua hatua hizo, k<strong>wa</strong> hakika zinashiriki<br />
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moja k<strong>wa</strong> moja katika utungaji <strong>wa</strong> Sheria za Nchi, na zimeruhusi<strong>wa</strong><br />
kufanya hivyo na Katiba.<br />
K<strong>wa</strong> hiyo hapa vile vile hakuna utenganisho <strong>wa</strong> madaraka baina ya<br />
vyombo hivyo, k<strong>wa</strong>ni vyombo vyote viwili vinashirikish<strong>wa</strong> katika eneo la<br />
kutunga sheria.<br />
Hali kadhalika, Bunge linapopitisha mus<strong>wa</strong>da <strong>wa</strong> sheria, mus<strong>wa</strong>da huo<br />
hauwezi ku<strong>wa</strong> sheria halali ya nchi mpaka hapo utakapopata ridhaa ya<br />
Rais, ambaye ndiye Kiongozi Mkuu <strong>wa</strong> Serikali. K<strong>wa</strong> hiyo mhimili<br />
Serikali pia unashiriki katika kutunga sheria. Hakuna utenganisho <strong>wa</strong><br />
madaraka baina ya vyombo hivyo.<br />
(3) Madaraka ya Utoaji Haki<br />
Ibara ya 107A ya Katiba inaweka madaraka ya utoaji haki nchini mikononi<br />
m<strong>wa</strong> Idara ya Mahakama.<br />
Lakini Rais, aki<strong>wa</strong> ndiye Kiongozi Mkuu <strong>wa</strong> Serikali, pia amepe<strong>wa</strong><br />
madaraka ya kushiriki katika shughuli za utoaji haki, k<strong>wa</strong> sababu<br />
amepe<strong>wa</strong> uwezo <strong>wa</strong> kufuta adhabu ya kifo k<strong>wa</strong> mtu aliyehukumi<strong>wa</strong> kifo<br />
na Mahakama, na vile vile amepe<strong>wa</strong> uwezo na madaraka ya kutoa<br />
msamaha k<strong>wa</strong> <strong>wa</strong>tu <strong>wa</strong>liohukumi<strong>wa</strong> kifungo na Mahakama. K<strong>wa</strong> hiyo<br />
mhimili Serikali pia inashiriki katika shughuli za utoaji <strong>wa</strong> haki. Ndiyo<br />
kusema k<strong>wa</strong>mba hakuna utenganisho <strong>wa</strong> madaraka baina ya vyombo<br />
hivyo.<br />
Mifano hii inasaidia kuonyesha <strong>wa</strong>zi k<strong>wa</strong>mba maingiliano haya ya<br />
madaraka yanafuta ile dhana ya utenganisho <strong>wa</strong> madaraka unaodai<strong>wa</strong><br />
ku<strong>wa</strong>po baina ya mihimili mitatu ya Dola katika mfumo tulio nao <strong>wa</strong><br />
“parliamentary system <strong>of</strong> government.” Nafasi ya dhana hiyo kutumika<br />
inapatikana tu katika mfumo <strong>wa</strong> uta<strong>wa</strong>la unaoit<strong>wa</strong> “Presidential system <strong>of</strong><br />
government,” ambao chimbuko lake ni Marekani.<br />
KILICHOPO NI TARATIBU RASMI ZA VYOMBO VYA DOLA<br />
KUDHIBITIANA ILI KUZUIA MATUMIZI MABAYA YA<br />
MADARAKA.<br />
(Checks and balances)<br />
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Hali kadhalika, hakuna mhimili hata mmoja ulio na madaraka juu ya<br />
mwenzake. Ukweli ni k<strong>wa</strong>mba kila mhimili una kauli ya mwisho katika<br />
eneo lake la madaraka.<br />
K<strong>wa</strong> mfano, Serikali ina kauli ya mwisho katika masuala ya uta<strong>wa</strong>la.<br />
Lakini endapo Serikali itakosea, inaweza kusahihish<strong>wa</strong> na Mahakama.<br />
Kukosea k<strong>wa</strong> Serikali kunaweza kutokea k<strong>wa</strong> mujibu <strong>wa</strong> dhana ya<br />
kisheria inayoit<strong>wa</strong> “the doctrine <strong>of</strong> ultra vires” Dhana hiyo inaizuia Serikali<br />
au chombo chochote cha Serikali kisifanye jambo lolote ambalo<br />
limekataz<strong>wa</strong> na sheria fulani, au kuchukua hatua yoyote ambayo<br />
haikusimama kwenye msingi <strong>wa</strong> sheria fulani. K<strong>wa</strong> hiyo endapo Serikali<br />
itafanya kosa lolote k<strong>wa</strong> mujibu <strong>wa</strong> dhana hiyo, basi yaweza kukosole<strong>wa</strong><br />
na Mahakama endapo mtu yeyote atapeleka malalamiko yake huko.<br />
Bunge nalo k<strong>wa</strong> upande <strong>wa</strong>ke lina kauli ya mwisho katika eneo lake la<br />
madaraka, yaani eneo la kutunga sheria. Lakini endapo Bunge litakosea<br />
likatunga sheria ambayo inapingana na Ibara fulani ya Katiba, laweza<br />
kukosole<strong>wa</strong> na Mahakama k<strong>wa</strong> njia ya mahakama kuifuta sheria hiyo<br />
iliyopingana na Katiba.<br />
Hata hivyo, Bunge bado litabaki na madaraka yake ya kutunga sheria<br />
nyingine mpya badala ya hiyo iliy<strong>of</strong>ut<strong>wa</strong>, likilenga katika kuondoa<br />
mapungufu yaliyosababisha Mahakama kufuta ile sheria ya a<strong>wa</strong>li. Lakini<br />
k<strong>wa</strong> mujibu <strong>wa</strong> dhana hiyo ya kudhibitiana na kusahihishana, Bunge<br />
laweza pia kutumia madaraka yake ya kutunga sheria, likatunga sheria<br />
mahsusi ambayo inasitisha utekelezaji <strong>wa</strong> hukumu fulani ya Mahakama.<br />
Hii ni k<strong>wa</strong> sababu Bunge ndilo lenye madaraka ya mwisho katika eneo la<br />
kutunga sheria, yaani Bunge lina “legislative supremacy.”<br />
Mfano halisi <strong>wa</strong> matumizi ya madaraka hayo ni Bunge la Uingereza<br />
lilipopitisha sheria inayoit<strong>wa</strong> “The <strong>wa</strong>r damages act, 1965.” Sheria hiyo<br />
ilipiga marufuku utekelezaji <strong>wa</strong> hukumu moja iliyoku<strong>wa</strong> imetole<strong>wa</strong> na<br />
Mahakama ya juu kuliko zote za nchini Uingereza ambayo ni House <strong>of</strong><br />
Lords, katika kesi ya Burmah Oil Co. Ltd. v Lord Advocate (1965) A.c. 75.<br />
Watu <strong>wa</strong> Uingereza <strong>wa</strong>liele<strong>wa</strong> na kukubali k<strong>wa</strong>mba Bunge lao hilo<br />
liliku<strong>wa</strong> limetumia madaraka yake ipasavyo, na hakuna aliyedai k<strong>wa</strong>mba<br />
Bunge hilo limeingilia madaraka ya Mahakama za Uingereza. Ni vema<br />
ieleweke k<strong>wa</strong>mba Ma<strong>bunge</strong> yote yaliyomo katika mfumo ambao chanzo<br />
chake ni Uingereza, iki<strong>wa</strong> ni pamoja na Bunge la <strong>Tanzania</strong>, pia yanayo<br />
17
madaraka kama hayo; na matumizi ya madaraka hayo (pale inapobidi)<br />
siyo kuingilia uhuru <strong>wa</strong> mahakama, bali ni utekelezaji <strong>wa</strong> dhana ya<br />
kudhibitiana na kusahihishana. (Checks and balances) baina ya mihimili ya<br />
Dola, kama mfano huo <strong>wa</strong> Uingereza unavyoonyesha.<br />
Hata hivyo, pamoja na k<strong>wa</strong>mba Bunge letu linayo madaraka hayo,<br />
halija<strong>wa</strong>hi hata mara moja katika historia yake, kuyatumia vibaya<br />
madaraka hayo. K<strong>wa</strong>ni, kama alivyosema Baba <strong>wa</strong> Taifa hayati M<strong>wa</strong>limu<br />
Julius K. Nyerere katika hotuba yake Bungeni tarehe 28 Juni, 1962.<br />
“There is a distinction between the availability <strong>of</strong> given<br />
powers, and the practical use <strong>of</strong> such powers.”<br />
Mwisho, Mahakama nazo k<strong>wa</strong> upande <strong>wa</strong>ke, zinao utaratibu <strong>wa</strong>ke <strong>wa</strong><br />
kusahihishana, ambao ni k<strong>wa</strong>mba Mahakama katika ngazi fulani ikikosea,<br />
yaweza kusahihish<strong>wa</strong> na Mahakama ya ngazi ya juu yake, k<strong>wa</strong> utaratibu<br />
<strong>wa</strong> kukata rufani, au k<strong>wa</strong> taratibu nyingine zilizopo ndani ya mfumo <strong>wa</strong><br />
Idara ya Mahakama. Mfano mzuri ni pale Mahakama ya Rufaa tarehe<br />
8/11/2002 ilipotengua hukumu ya Mahakama Kuu, iliyoku<strong>wa</strong> imetole<strong>wa</strong><br />
m<strong>wa</strong>ka 1996 na Jaji Samatta, aliyeku<strong>wa</strong> <strong>wa</strong>kati huo ni Jaji <strong>wa</strong> Mahakama<br />
Kuu.<br />
Katika kesi hiyo, Mahakama Kuu mnamo m<strong>wa</strong>ka 1996 ilibatilisha uamuzi<br />
<strong>wa</strong> Rais <strong>wa</strong> kumstaafisha mtumishi mmoja <strong>wa</strong> Serikali k<strong>wa</strong> manufaa ya<br />
<strong>umma</strong>, k<strong>wa</strong> hoja k<strong>wa</strong>mba hakuna kipengele chochote katika Katiba ya<br />
Jamhuri ya Muungano kinachotoa madaraka k<strong>wa</strong> Rais kustaafisha<br />
mtumishi k<strong>wa</strong> manufaa ya <strong>umma</strong>.<br />
Mahakama ya Rufaa k<strong>wa</strong> busara zake iliona k<strong>wa</strong>mba Mahakama Kuu<br />
iliku<strong>wa</strong> imekosea kisheria k<strong>wa</strong> kushikilia ku<strong>wa</strong> hakuna kipengele cha<br />
Katiba kinachoruhusu mtu kustaafish<strong>wa</strong> k<strong>wa</strong> manufaa ya <strong>umma</strong>; na iliona<br />
pia k<strong>wa</strong>mba Jaji <strong>wa</strong> Mahakama Kuu aliku<strong>wa</strong> amekosea kisheria alip<strong>of</strong>anya<br />
tathmini ya madaraka ya Rais ya kumstaafisha mtumishi huyo k<strong>wa</strong><br />
manufaa ya <strong>umma</strong> k<strong>wa</strong> mujibu <strong>wa</strong> Ibara ya 36(2) ya Katiba; pamoja na<br />
kifungu cha 19(3) cha Sheria ya Utumishi Serikalini, namba 16 ya m<strong>wa</strong>ka<br />
1989. K<strong>wa</strong> hiyo Mahakama ya Rufaa ikaamua kuisahihisha Mahakama<br />
Kuu k<strong>wa</strong> kutengua hukumu yake hiyo ya 1996, iliyoku<strong>wa</strong> imetole<strong>wa</strong><br />
kimakosa.<br />
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S<strong>wa</strong>li linalodai majibu ni je, Mahakama ya Rufaa ikikosea, itasahihish<strong>wa</strong><br />
na nani?<br />
H I T I M I S H O<br />
Maelezo yaliyotole<strong>wa</strong> katika makala hii yana lengo la kuonyesha<br />
mahusiano yaliyopo k<strong>wa</strong> mujibu <strong>wa</strong> Katiba ya Nchi baina ya Bunge na<br />
<strong>wa</strong>nanchi; baina ya Bunge na Serikali; na baina ya Bunge na Mahakama.<br />
K<strong>wa</strong>nza, maelezo hayo yameonyesha k<strong>wa</strong>mba mahusiano baina ya<br />
<strong>wa</strong>nanchi na Serikali yao yanatekelez<strong>wa</strong> kikatiba kupitia chombo cha<br />
u<strong>wa</strong>kilishi <strong>wa</strong>o, yaani Bunge. K<strong>wa</strong> hiyo Serikali ina<strong>wa</strong>jibika k<strong>wa</strong><br />
<strong>wa</strong>nanchi kupitia Bunge; na <strong>wa</strong>nanchi <strong>wa</strong>nashiriki katika shughuli za<br />
Serikali pia kupitia k<strong>wa</strong> <strong>wa</strong><strong>wa</strong>kilishi <strong>wa</strong>o Bungeni.<br />
Pili, maelezo hayo vile vile yanaonyesha k<strong>wa</strong>mba Bunge ni chombo cha<br />
uwezeshaji, k<strong>wa</strong> Serikali, na vile vile k<strong>wa</strong> Mahakama, k<strong>wa</strong> maana ya<br />
k<strong>wa</strong>mba k<strong>wa</strong> kutumia madaraka yake ya kutunga sheria, au kupitisha<br />
bajeti ya Serikali, Bunge linaiwezesha Serikali kutimiza <strong>wa</strong>jibu <strong>wa</strong>ke k<strong>wa</strong><br />
<strong>wa</strong>nanchi, na vile vile k<strong>wa</strong> kutumia madaraka yake ya kutunga Sheria za<br />
Nchi, linaziwezesha mahakama kutimiza <strong>wa</strong>jibu <strong>wa</strong>ke <strong>wa</strong> kutoa haki k<strong>wa</strong><br />
mujibu <strong>wa</strong> sheria hizo.<br />
Mwisho, maelezo hayo yanaonyesha k<strong>wa</strong>mba ile dhana ya utenganisho<br />
<strong>wa</strong> madaraka baina ya mihimili mitatu ya Dola, haipo kikamilifu katika<br />
mfumo <strong>wa</strong> uta<strong>wa</strong>la unaoit<strong>wa</strong> “parliamentary system <strong>of</strong> government.” Badala<br />
yake kuna maingiliano makub<strong>wa</strong> ya madaraka miongoni m<strong>wa</strong> mihimili<br />
hiyo.<br />
Isipoku<strong>wa</strong> k<strong>wa</strong>mba kilichopo ni taratibu rasmi za vyombo vya Dola<br />
kudhibitiana au kusahihishana, ili kuzuia matumizi mabaya ya madaraka.<br />
Utenganisho <strong>wa</strong> madaraka ambao ni kamilifu unapatikana tu katika<br />
mfumo <strong>wa</strong> uta<strong>wa</strong>la unaojulikana kama “Presidential System <strong>of</strong> Government,”<br />
ambao chimbuko lake ni Marekani, na siyo katika mfumo <strong>wa</strong><br />
“parliamentary system <strong>of</strong> government,” ambao ndio msingi <strong>wa</strong> Katiba ya<br />
Jamhuri ya Muungano <strong>wa</strong> <strong>Tanzania</strong>.<br />
19