海外用工专栏 | 全球劳动法对话之乌干达——劳动法规则与雇佣挑战全面解读

政务 2025-01-29 15:01 北京

我们有幸邀请到了来自安古阿里亚·布西库律师事务所（Angualia Busiku & Co. Advocates）的高级律师雷斯特·纳尔万加（RESTY NALWANGA），她深入解析乌干达的劳动法律法规、分享实际操作中的挑战与建议。

We had the privilege of inviting Resty Nalwanga, a senior lawyer from Angualia Busiku & Co. Advocates to give an in-depth analysis on Uganda's labor laws and regulations as well as share challenges and recommendations based on practical operations.

律典初探：法律框架与劳动法特点

The Characteristics of Legal Framework and Labor Law

乌干达的法律制度主要基于普通法，这是从英国殖民时期继承下来的。另外，还包含了由议会通过的成文法，还结合了适用于特定社区和族群的习惯法，只要这些习惯法不与成文法或宪法相冲突即可。

Uganda's legal system is primarily based on common law, inherited from the British colonial period. In addition, it includes statutory laws enacted by the parliament, and also incorporates customary laws applicable to specific communities and ethnic groups, as long as these customary laws do not conflict with statutory laws or the constitution.

就业法律和实践主要受到2006年《就业法》、2006年《职业安全与健康法》、2006年《劳资纠纷（仲裁和解决）法》及《工人赔偿法》及其相关条例的管辖。这些法律法规涵盖了劳动合同、工资待遇、工作条件及争议解决等多个方面，旨在平衡雇员和雇主的权利。

Employment laws and practices are mainly governed by the Employment Act of 2006, the Occupational Safety and Health Act of 2006, the Labour Disputes (Arbitration and Settlement) Act of 2006, and Workman Compensation Act, and their related regulations. These laws and regulations cover various aspects such as employment contracts, remuneration, working conditions, and dispute resolution, aiming to balance the rights of employees and employers.

雇佣关系管理中的挑战与风险

Challenges and Risks in Employment Relationship Management

1.不公平解雇、不支付法定福利或缺乏适当的工作场所安全措施等违规行为不仅可能导致法律纠纷，可能还会招致政府的严厉处罚。

Unfair dismissal, failure to pay statutory benefits, or lack of proper workplace safety measures not only can lead to legal disputes but also may result in severe penalties from the government.

2.工作许可证的规定同样不容忽视。如果未能遵守移民法的要求，可能会导致罚款、员工被遣返或是业务运作的中断。值得注意的是，腐败和官僚主义现象也可能为企业带来额外的风险。这些因素可能会增加企业在办理各类手续时的复杂性和不确定性，进而影响到日常运营效率。

The regulations on work permits should not be overlooked. Failure to comply with immigration law requirements may lead to fines, employee deportation, or disruption of business operations. It is worth noting that corruption and bureaucratic phenomena may also bring additional risks to enterprises. These factors may increase the complexity and uncertainty for enterprises in handling various procedures, thereby affecting daily operational efficiency.

3.乌干达劳动市场的另一显著特点是非正规就业现象普遍存在。许多工人在非正式部门工作，这不仅意味着他们可能对正式劳动合同的概念缺乏了解，也可能不清楚法律赋予他们的各项权利。因此，在这种情况下，确保遵守终止程序尤为重要。对于在非正规部门工作的员工而言，雇主应当特别注意依法行事，确保解雇或合同终止过程透明、公正，以避免潜在的法律纠纷。

Another significant feature of Uganda's labor market is the widespread existence of informal employment. Many workers are employed in the informal sector, which not only means they may lack understanding of the concept of formal employment contracts but also may be unclear about the rights granted to them by law. Therefore, in this case, ensuring compliance with termination procedures is particularly important. For employees working in the informal sector, employers should pay special attention to acting in accordance with the law, ensuring that the dismissal or contract termination process is transparent and fair to avoid potential legal disputes.

4.文化差异和工作场所的不同期望同样不容忽视，这对于外国雇主来说尤为关键。在乌干达，员工与雇主之间的关系往往包含了一定程度的非正式期望。例如，员工可能会期待雇主在个人紧急情况或贷款需求时提供支持，这种期望超出了传统雇佣关系的范畴。另外，准时性和沟通风格等方面的文化差异也会影响劳资关系。在乌干达，时间观念可能不像某些西方国家那样严格，而沟通方式可能更加注重人际关系和个人联系。

Cultural differences and different expectations in the workplace should not be overlooked, which is especially crucial for foreign employers. In Uganda, the relationship between employees and employers often includes a certain degree of informal expectations. For example, employees may expect employers to provide support in personal emergencies or loan needs, which goes beyond the scope of traditional employment relationships. In addition, cultural differences in punctuality and communication styles can also affect labor relations. In Uganda, the concept of time may not be as strict as in some Western countries, and communication methods may place greater emphasis on interpersonal relationships and personal connections.

5.技能差距和劳动力发展挑战也是乌干达劳动市场面临的重要问题。由于教育和培训资源的不均衡分布，部分劳动者可能不具备现代企业所需的技能，这影响了劳动生产率和企业的竞争力。

Skill gaps and labor development challenges are also important issues facing Uganda's labor market. Due to the uneven distribution of education and training resources, some workers may not possess the skills required by modern enterprises, which affects labor productivity and the competitiveness of enterprises.

招聘与就业歧视

Recruitment and Employment Discrimination

招聘过程中，公司应首先明确所需人员的工作描述，详细规定职位的具体职责和工作性质，确保每个岗位的要求清晰明确。值得注意的是，除非有明确且合理的理由，否则不应声明只雇用某一性别的候选人。这种做法可能会引起不必要的关注甚至法律风险。例如，在矿山作业中，考虑到体力要求和工作环境的安全性，可能会倾向于招聘男性工人；而在儿童护理领域，由于社会传统观念的影响，女性保姆较为普遍。即便如此，这些性别倾向也应基于实际工作需求而非刻板印象，并且应当遵循非歧视原则。

During the recruitment process, companies should first clearly define the job descriptions of the required personnel, specifying the specific responsibilities and nature of the positions to ensure that the requirements for each post are clear and explicit. It is worth noting that unless there are clear and reasonable grounds, it should not be stated that only candidates of a certain gender will be employed. This practice may attract unnecessary attention and even legal risks. For example, in mining operations, considering the physical demands and the safety of the working environment, there may be a tendency to recruit male workers; in the field of child care, due to the influence of social traditional concepts, female nannies are more common. Even so, these gender preferences should be based on actual job requirements rather than stereotypes and should follow the principle of non-discrimination.

在乌干达，企业要求新入职员工进行健康检查是一种常见且合理的人力资源管理实践。此类健康检查的主要目的在于确保工作环境的安全性与卫生标准，预防传染病的传播，保护全体员工的健康权益。这并非基于任何形式的偏见或歧视。同时，健康检查也有助于企业了解应聘者的整体健康状态，从而评估其是否适合特定工作岗位的要求，尤其是在那些对健康状况有特殊要求的职业领域。在某些情况下，如果员工患有特定疾病，提前知晓这些信息有助于公司在发生事故或紧急情况时采取适当的措施。

In Uganda, it is a common and reasonable human resource management practice for companies to require new employees to undergo health checks. The main purpose of such health checks is to ensure the safety and hygiene standards of the working environment, prevent the spread of infectious diseases, and protect the health rights of all employees. This is not based on any form of prejudice or discrimination. At the same time, health checks also help companies understand the overall health status of applicants, thereby assessing whether they are suitable for the requirements of specific job positions, especially in those occupational fields with special health requirements. In some cases, if employees suffer from specific diseases, knowing this information in advance can help the company take appropriate measures in the event of an accident or emergency.

一旦确定了合适的候选人，下一步就是进行面试、背景调查和验证。如果决定录用，应当提供工作邀约并与候选人协商就业条件，最终签订正式的雇佣合同。对于外籍员工来说，还需要为其申请工作许可证。

Once the suitable candidates have been identified, the next step is to conduct interviews, background checks, and verification. If a decision is made to hire, a job offer should be provided and employment terms should be negotiated with the candidates, ultimately leading to the signing of a formal employment contract. For foreign employees, it is also necessary to apply for a work permit for them.

薪酬福利

Compensation and Benefits

在乌干达，企业的薪酬结构通常包含多个方面，以确保员工的全面福利和激励。首先，薪水是员工的主要收入来源，应根据职位、经验和市场标准合理设定。此外，法定福利也是不可或缺的一部分，雇主必须提供国家社会保障基金（NSSF）、所得税预扣（PAYE）、带薪假期以及工伤赔偿等法定福利，以确保员工的基本权益。此外，为了吸引和保留优秀人才，企业还可以提供一系列非强制性的福利，例如医疗保险等。虽然这些额外福利并非法律强制要求，但它们往往成为企业竞争力的重要组成部分，有助于提升员工满意度和忠诚度。

In Uganda, the compensation structure of enterprises usually includes several aspects to ensure the comprehensive welfare and motivation of employees. First, salary is the main source of income for employees and should be reasonably set according to the position, experience, and market standards. In addition, statutory benefits are also an indispensable part, and employers must provide statutory benefits such as the National Social Security Fund (NSSF), Pay-As-You-Earn (PAYE) tax withholding, paid leave, and work injury compensation to ensure the basic rights and interests of employees. Moreover, to attract and retain outstanding talents, enterprises can also provide a series of non-mandatory benefits, such as medical insurance. Although these additional benefits are not legally required, they often become an important part of the enterprise's competitiveness, helping to improve employee satisfaction and loyalty.

支付NSSF（国家社会保障基金）是雇主的法律责任之一，旨在为员工提供社会保障。在某些情况下，如果发生工人事故，雇主还需承担相应的补偿责任。这些法定福利虽然是法律规定中的少数几项，但对于维护员工权益至关重要。作为雇主，必须确保按时足额支付这些费用，以履行其法律责任并保障员工利益。

Paying the NSSF (National Social Security Fund) is one of the legal responsibilities of employers, aimed at providing social security for employees. In some cases, if a worker's accident occurs, the employer also needs to bear the corresponding compensation liability. Although these statutory benefits are only a few items in the legal provisions, they are crucial for maintaining the rights and interests of employees. As an employer, it is necessary to ensure that these fees are paid in full and on time to fulfill its legal responsibilities and safeguard the interests of employees.

终止劳动合同与解雇

Termination of Employment Contracts and Dismissal

在乌干达，终止劳动合同和解雇员工的程序必须严格遵循法律和公司内部政策。

In Uganda, the procedures for terminating employment contracts and dismissing employees must strictly follow the law and internal company policies.

如果雇主考虑无理由终止劳动合同，他们有权这样做，但必须提供适当的终止通知或代替通知的付款。这种方式下，雇主不需要证明任何不当行为或绩效问题，只需遵守法律规定的通知期限，以避免被指控为不公平解雇。

If employers consider terminating an employment contract without cause, they are entitled to do so, but must provide appropriate notice of termination or payment in lieu of notice. Under this approach, employers do not need to prove any misconduct or performance issues, but must comply with the statutory notice period to avoid being accused of unfair dismissal.

然而，如果解雇的原因是基于不当行为（如盗窃）或绩效不佳，雇主必须首先核实这些指控。这通常需要进行正式的调查，并收集相关证据。一旦决定要基于员工的不当行为进行解雇，雇主必须为该员工举行内部听证会。听证会应当在公司内部办公室里进行，并由公司指定的人员主持，确保过程透明、公正。听证会的目的是让员工有机会解释自己的行为，提供证据反驳指控，或提出减轻处罚的理由。如果员工未能出席或拒绝参与，雇主仍需记录这一情况作为处理依据。经过听证会后，如果确认不当行为属实，雇主可以依法解雇员工，但必须有合理解释并记录在案。

However, if the reason for dismissal is based on misconduct (such as theft) or poor performance, employers must first verify these allegations. This usually requires a formal investigation and the collection of relevant evidence. Once it is decided to dismiss an employee based on their misconduct, the employer must hold an internal hearing for that employee. The hearing should be conducted in a company office and presided over by a person designated by the company to ensure transparency and fairness in the process. The purpose of the hearing is to give the employee an opportunity to explain their actions, provide evidence to refute the allegations, or present reasons for mitigating the punishment. If the employee fails to attend or refuses to participate, the employer still needs to record this situation as the basis for handling. After the hearing, if the misconduct is confirmed to be true, the employer can legally dismiss the employee, but must have a reasonable explanation and record it.

为了避免不公平解雇的风险，雇主在解雇前必须确保所有程序都符合法律规定，并保留所有相关的文件和记录。如果雇主未经过适当程序就直接解雇员工，即使存在不当行为，这也可能受到不公平解雇的指控。在这种情况下，员工可能会向劳动办公室投诉或向工业法庭提起诉讼，要求赔偿。

To avoid the risk of unfair dismissal, employers must ensure that all procedures comply with the law and retain all relevant documents and records before dismissal. If an employer dismisses an employee without going through the proper procedures, even if there is misconduct, it may be subject to accusations of unfair dismissal. In this case, the employee may complain to the labor office or file a lawsuit with the industrial tribunal, demanding compensation.

需要注意的是，有时，雇主与员工之间的关系已经非常紧张，雇主希望尽快结束雇佣关系，如果雇主选择无理由终止合同，则可以通过支付离职通知来实现快速解雇，而无需详细说明原因。

It should be noted that sometimes the relationship between the employer and the employee is already very tense, and the employer wants to end the employment relationship as soon as possible. If the employer chooses to terminate the contract without cause, it can achieve a quick dismissal by paying the notice of departure without having to explain the reasons in detail.

争议解决

Dispute Resolution

在乌干达，企业应当首先建立内部的纠纷解决机制，以确保劳资纠纷能够迅速、公正地得到处理。这通常包括设立专门的部门或指定专人负责接收和处理员工投诉，通过内部调解来解决问题。如果内部机制无法有效解决纠纷，下一步可以向政府的劳工办公室（Labor Office）寻求帮助。劳工办公室将提供进一步的支持和指导，尝试通过调解或其他非诉讼手段解决问题。

In Uganda, companies should first establish internal dispute resolution mechanisms to ensure that labor disputes can be handled swiftly and fairly. This typically includes setting up a dedicated department or appointing specific individuals to receive and process employee complaints, and to resolve issues through internal mediation. If the internal mechanisms fail to effectively resolve the disputes, the next step is to seek assistance from the government's Labor Office. The Labor Office will provide further support and guidance, attempting to resolve the issues through mediation or other non-litigious means.

若劳工办公室的介入仍未能达成满意的解决方案，当事人可以选择向工业法庭（Industrial Court）提起诉讼。工业法庭是专门处理劳动争议的司法机构，能够对案件进行正式审理并作出裁决。根据乌干达的法律体系，如果对工业法庭的判决结果不满，还可以向上诉法院（Appeal Court）提出上诉，值得注意的是，法律并不允许进一步向最高法院（Supreme Court）或其他上一级法院提起上诉。这是因为法律假设，纠纷至此已经过多层内部和外部流程，经过这些层级后，纠纷已经得到了适当的处理。

If the intervention of the Labor Office still fails to reach a satisfactory solution, the parties may choose to file a lawsuit with the Industrial Court. The Industrial Court is a judicial body specializing in labor disputes, capable of formally adjudicating cases and rendering decisions. According to Uganda's legal system, if a party is dissatisfied with the judgment of the Industrial Court, they may appeal to the Court of Appeal. It is worth noting that the law does not allow further appeals to the Supreme Court or any higher courts. This is because the law assumes that by this point, the dispute has gone through multiple internal and external processes, and after these levels, the dispute has been appropriately handled.

工会与罢工

Trade Unions and Strikes

乌干达，工会主要服务于专业人士，如医生、教师以及大多数在政府工作的人员。这些工会是有组织的，罢工通常需要经过正式程序，包括获得警察的许可。然而，私营企业几乎没有这样的工会，尤其是在非正式雇佣关系较为普遍的情况下。由于一些公司采用非正式的雇佣形式，员工可能因情绪失控而自发罢工。当然，这种非正式的罢工不需要事先寻求许可。

In Uganda, trade unions mainly serve professionals such as doctors, teachers, and most employees in the public sector. These unions are well-organized, and strikes usually require formal procedures, including obtaining permission from the police. However, there are hardly any such unions in the private sector, especially where informal employment is prevalent. Due to some companies employing informal labor, employees may spontaneously go on strike out of emotional outbursts. Of course, such informal strikes do not require prior permission.

对于那些受雇于非正规部门的员工来说，他们的反应往往是即时和情绪化的。例如，如果付款出现问题或工作环境变得难以管理，他们可能会突然决定罢工，以表达不满。这类罢工往往缺乏预先规划和组织，更多是基于即时的情绪反应。相比之下，有组织的工会罢工，如教师或其他专业人士发起的罢工，则会遵循一定的程序，并且事前会有充分的准备和沟通。

For employees working in the informal sector, their reactions are often immediate and emotional. For example, if there are payment issues or the working environment becomes unmanageable, they may suddenly decide to strike to express their dissatisfaction. These strikes are often unplanned and unorganized, driven more by immediate emotional responses. In contrast, organized union strikes, such as those initiated by teachers or other professionals, follow certain procedures and are well-prepared and communicated in advance.

值得注意的是，在某些特定行业，如矿业或石油和天然气领域，尽管存在潜在的劳资纠纷，但尚未听说有建立工会的情况。这可能是由于这些行业的特殊性质，以及建立工会所需的组织和明确目标尚未形成。因此，在这些行业中，员工更倾向于通过其他方式来应对挑战，如直接与雇主沟通解决问题，而不是依赖工会组织罢工。

It is worth noting that in some specific industries, such as mining or the oil and gas sector, although there is potential for labor disputes, there have been no reports of union formation. This may be due to the unique nature of these industries and the lack of organization and clear goals required to form unions. Therefore, in these industries, employees tend to address challenges through other means, such as directly communicating with employers to resolve issues, rather than relying on unions to organize strikes.

出海乌干达的优势

Advantages of Investing in Uganda

首先，由于乌干达没有设定全国性的最低工资标准，这使得劳动力成本相对较低。因此，外国投资者可以根据当地市场条件灵活地与员工协商薪资水平，从而降低初期的人力成本投入。

Firstly, Uganda does not have a national minimum wage, which results in relatively low labor costs. Therefore, foreign investors can flexibly negotiate salary levels with employees based on local market conditions, thereby reducing initial labor cost investments.

其次，作为东非共同体（EAC）和东南非共同市场（COMESA）的一部分，乌干达为外国公司提供了进入更大市场的免税通道，促进了区域内的贸易和投资活动，增强了企业的市场竞争力。此外，为了吸引外资，乌干达政府提供了一系列激励措施，包括免税优惠、进口关税减免等。外国投资者还可以在不受重大限制的情况下自由汇回利润，进一步提高了投资的吸引力。

Secondly, as a member of the East African Community (EAC) and the Common Market for Eastern and Southern Africa (COMESA), Uganda offers foreign companies a tax-free gateway to a larger market, promoting regional trade and investment activities and enhancing corporate market competitiveness. In addition, to attract foreign investment, the Ugandan government provides a range of incentives, including tax exemptions and reductions in import tariffs. Foreign investors can also repatriate profits without significant restrictions, further increasing the attractiveness of investment.

最后，在乌干达，外国人可以自由参与任何行业的经营活动，不存在对国民有利的产业保护措施，这意味着所有行业都向外国资本开放，为外国企业提供了广阔的发展空间。

Lastly, in Uganda, foreigners are free to engage in business activities in any industry, with no industry protection measures favoring nationals. This means that all industries are open to foreign capital, providing foreign companies with vast opportunities for development.

访谈后记

Reflection

用开放的心态与访谈者沟通，总是能学到很多，也让自己的思维更多元一些，比如，在提到诉讼解决方式是，乌干达法律并不允许进一步向最高法院（Supreme Court）或其他上一级法院提起上诉。这是因为法律假设，纠纷至此已经过多层内部和外部流程，经过这些层级后，纠纷已经得到了适当的处理。在我们国家，劳动争议有协商、调解、仲裁，法院阶段一审和二审，当仍然会有再审、检察院抗诉等多种其他救济路径。这里不去评价好坏，而是每项制度最终都是价值的选择。

Communicating with the guests with an open mind is always enlightening and broadens one's perspective. For instance, when discussing the dispute resolution method, it is noted that Ugandan law does not permit further appeals to the Supreme Court or any higher courts. This is because the law presumes that by this stage, the dispute has undergone multiple internal and external processes, and after these levels, the dispute has been appropriately resolved. In contrast, in China, labor disputes go through negotiation, mediation, arbitration, and court stages including first and second instance trials, while there are still other remedies such as retrial and prosecutorial appeal. Here, we do not evaluate the pros and cons, but rather recognize that each system is ultimately a choice of values.

嘉宾简介

Guest Profile

雷斯特·纳尔万加（Resty Nalwanga）律师持有坎帕拉国际大学法学一等荣誉学位，并被认定为杰出学生。此外，她完成了法律发展中心提供的法律实践研究生文凭课程。在专业领域内，纳尔万加女士精于公司法及商业法，能够熟练解决相关法律事务中的复杂问题。她为知识产权事宜（包括版权和商标法及其实施）、破产、劳动法、外国投资以及移民法等领域提供专业的顾问服务。纳尔万加女士以其专业知识和实践经验，为乌干达的海内外客户提供高效且精准的法律咨询。

Resty Nalwanga holds a first class honors degree in law from Kampala International University, where she was distinguished as an exceptional student. She has also obtained a Post Graduate Diploma in legal practice from the Law Development Centre. Her dedication to mastering the intricacies of the legal profession is evident in her expertise in Corporate and Commercial law, where she has become a trusted advisor on matters ranging from intellectual property including copyright and trademark law and practice, insolvency, employment law, foreign investments and immigration law. With her professional knowledge and practical experience, Ms. Nalwanga offers efficient and precise legal consultations to both domestic and international clients in Uganda.

乌干达简介

乌干达，这个被称为“非洲明珠”的国家，以其自然美景、丰富文化和热情人民而闻名。从法律和商业的角度来看，它是一个充满活力和发展潜力的地方。作为东非的一个战略要地，乌干达是区域贸易中的关键参与者，其地理位置使其成为进入更广阔市场的门户。

Uganda, often referred to as the "Pearl of Africa," is celebrated for its breathtaking natural landscapes, rich cultural heritage, and warm, hospitable people. From a legal and business standpoint, Uganda presents itself as a dynamic and promising environment. Strategically located in East Africa, Uganda plays a pivotal role in regional trade, serving as a crucial gateway to a wider market.

作者：程阳高级合伙人

劳动团队北京

chengyang@lantai.cn

程阳，毕业于中国政法大学，兰台律师事务所高级合伙人，管委会委员，兰台劳动团队牵头合伙人。多年来一直深耕在企业合规与劳动人事法律领域，擅长将法律思维与管理思维有机融合，为客户提供具有操作性、前瞻性的法律建议。工作之余，著有《人力资源合规管理全书》，带领兰台劳动团队出版了《劳动纠纷实战解析》《劳动疑难问题操作指引》《第一本法律日志书：HR每天学点劳动法》等书籍，统筹负责兰台律师事务所出版的《企业法律顾问实务操作全书》的撰写，主笔劳动法律部分，在多家媒体报纸等媒体上发表专业文章，全面负责“兰台劳动”微信公众号运营，公众号坚持每天发布专业文章。

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