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Special Report on the JLOS House Project

An artistic impression of the Uganda Police Headquarters (Source: JLOS) An artistic impression of the Uganda Police Headquarters (Source: JLOS)


The JLOS House Project is a three-in-one Justice, Law and Order Sector (JLOS) infrastructure development project aimed at strengthening good governance principles by enhancing the ability of JLOS institutions to coordinate and offer better services. The project is expected to contribute to enhanced transparency, accountability and ethics in a purpose built office park and civic centre. 

The JLOS House complex is intended to improve the productivity of the public service; facilitate the growth of the private sector through the provision of timely public services; reduce the costs of public administration through integration of services and sharing of common services such as ICT conference facilities and asset/ facilities management. Further, the one-stop centre will introduce modern concepts of office management and incorporate environmental concepts of green and intelligent technology in the design and construction of public buildings. The one-stop centre will free resources in rent and efficiency savings to build a functional justice system in Uganda.



The project involves the design, procurement, construction, commissioning and maintenance of 74,000 sq. metres of rentable office space comprising of:–

The JLOS Towers and High Court which shall be located on plot 98-102 Katalima Road in Naguru on 5 acres of land owned by the Justice Law and Order Sector (JLOS) through the Uganda Land Commission. JLOS Towers and High Court will accommodate the headquarters of JLOS institutions including the Ministry of Justice and Constitutional Affairs, Ministry of Internal Affairs, Uganda Human Rights Commission, Uganda Prison Services, URSB, TAT, ULRC, JSC, DPP, JLOS secretariat. The facility will also provide for the Criminal, Anti-Corruption, International Crimes, Civil, Family and Land Divisions of the High Court. The towers shall be green and intelligent buildings which shall serve as a one-stop service centre for JLOS Services.

The Police Headquarters to accommodate all the police directorates at plot 40-96 Katalima Road Naguru Kampala next to the JLOS house complex. The police headquarters shall be a green and intelligent building that will increase police productivity and improve quality of policing services. The Police Headquarters shall be constructed on 5.9 acres of land owned by Uganda Land Commission restricted to Uganda Police Force. The Project site is located in Kampala City 5.2 km East of the centre of Kampala City.

The Appellate Courts and headquarters of the Judiciary at High Court grounds in Kampala to accommodate the Court of Appeal/Constitutional Court, the Supreme Court and the headquarters of the Judiciary.  The Appellate Courts Complex shall be located at the High Court grounds in Kampala at Plot 1, The Square in the Central Business District of Kampala city. It will involve maintaining and refurbishment of the existing building and ensuring that the new buildings blend with the existing ones.



The JLOS House project was conceived out of the need to provide a one-stop centre for JLOs institutions in recognition of the fact that the different JLOS institutions are scattered over dispersed locations in Kampala. Several of these locations are in parts of the City that are inaccessible, yet the mandates of the institutions are complementary and require close proximity for communication, cooperation and coordination. The institutions are also located in rented premises that are not designed for the provision of JLOS services and are inaccessible to the public.

It is expected that the JLOS House Project will support the efforts to integrate the services provided by the different institutions to create a conducive working environment. The project will also enhance accessibility to JLOS services by the general public, especially the poor and marginalised and enhance the inter-linkages between the services.

The huge cost of renting various premises for JLOS institutions further compounds the challenges that the Sector faces. The annual rental expense for JLOS institutional headquarters stands at USD 8.5 million. Despite this huge cost, there is still inadequate space for staff requirements and limited space for storage. There is also virtually no space to adequately handle clients. It is in light of these challenges that the Sector conceived and approved the JLOs House project in 2005.    

The overall goal of the project is to promote the rule of law through enhanced independence and public trust in JLOS institutions in line with the national vision of transforming Uganda from a peasant to a middle income status by 2040.  

The objective of the project is to provide office accommodation for the JLOS institutions as a one-stop service Centre in order to facilitate and improve service delivery and increase access to JLOS services. Specifically:

a) To provide office accommodation (JLOS Towers) and a purpose built High Court through green and intelligent buildings as a one-stop service centre to facilitate and improve service delivery and increase access to JLOS services.

b) To provide a green and intelligent building that will increase police productivity and improve quality of policing services (Police Headquarters). 

c) To provide for a purpose-built Judiciary headquarters and Appellate Courts that will promote access to judicial services


The project is expected to enhance operational efficiency, promote coordination among JLOS agencies and reduce the high cost of rent and align JLOS infrastructure to business processes while deepening public access to JLOS services.

The Justice, Law and Order Sector through the Public Private Partnership modality has identified an investor to build and operate the JLOS House project structures. Currently negotiations are ongoing between JLOS and the preferred bidder over the project scope and financing aspects. It is expected that these negotiations will be concluded in 2016.

Overall, the JLOS House project has the potential to change the way Government conducts its business and relates with the public. The project stands out to introduce modern concepts of office management, open government, environmental conservation and rationalized use of time, space and other scarce resources, which if properly implemented shall reduce the cost of public administration in the Justice, Law and Order Sector. 



a) A Consortium of Group Five Property Development Ltd (Pty) and TWED Property Development Ltd is the preferred bidder for the JLOS House Project. Other members of the consortium are: Meridiam, ROKO, Drake and Scull, FBW Architects and Engineers, Farrow Laing. 

b) The Project is made up of three components: The JLOS Towers, the appellate courts and Police Headquarters

c) JLOS House to accommodate 12 JLOS institutions including several divisions of the High Court; 

d) On completion, the entire JLOS House project will provide 74,000 square meters of office space making it the single biggest building structure in Uganda ever undertaken by Government 

e) The Project when complete will save the Government of Uganda $8.5m which it spends annually on renting office premises for JLOS institutions.

f) JLOS House to be built with cutting edge green and intelligent building technology

g) The project is being implemented under the Pubic Private Partnership modality of Build-Operate-Transfer (BOT) 



74,000 – The number of square meters of lettable office space for the JLOS House (equivalent to Bank of Uganda Building, Workers House, Crested Towers and Acacia Mall combined!)

USD 8.5million – the amount of money to be saved by Government annually (in rent savings) when the project is completed

13 – the number of firms that expressed interest in the JLOS House Project

9 – the number of firms that were shortlisted for Request For Proposal (RFP) stage

10 –the number of JLOS institutions set to benefit from the JLOS House Project



2005 – the JLOS house project concept is conceived by the JLOS Leadership

2008 – the sector applies for a grant from the Netherlands Government as part of the ORIO facility that provided grants for infrastructural development in developing countries. Government commits to provide a 50% matching non grant funding to JLOS equivalent to 48b shillings. The Sector application is unsuccessful.

2010 - Ministry of Finance requests the Sector to prepare a bankable project proposal for the JLOS House.

2011 - Minister of Finance requests JLOS to submit detailed drawings and bills of quantities so that procurement of a contractor could commence.

2014 – JLOS submits detailed designs and bills of quantities to Ministry of Finance 

2014 (February) - Ministry of Finance advises the Sector to procure the JLOS House Project under PPP modality

2014 (June) - A call for expression of interest (EOI) from companies or consortia to review the designs, procure, finance, construct the JLOS house is officially released

2015 (January) - Request for Proposals (RFP) issued to shortlisted firms on 19th Jan 2015

2015 (August) – JLOS officially announces the preferred bidder for the JLOS House Project on August 12, 2015 following evaluation of RFP submissions. Negotiations commence.

2016 – the year the JLOS House project is expected to kick off



Group Five Limited is a JSE listed diversified Construction, Infrastructure Concessions and related services Group that operates in 21 countries across Africa and also in Eastern Europe.  G5 Properties, a wholly owned subsidiary of Group Five Limited, is the real estate investment and development subsidiary of the Group that is responsible for developing real estate projects.  Group Five Building, a construction division of Group Five, who has extensive experience in design and construct projects both in South Africa and across the African continent, will be responsible for the design and construction of the buildings.  Prominent projects such as the Dimension Data Campus (SA), the Bank of Tanzania and Michelangelo Toers (SA) are only a few of their notable achievements.  Group Five Building is well experienced in PPP projects and well understands the fundamental “fit for purpose” criteria.

TWED Property Development Ltd, part of the Indigenous TWED Group, builds and owns residential projects, commercial office spaces and is now planning the development of other projects including mid-scale international branded business hotel, planning a mixed Use scheme of about 30,000 sqm in Kampala’s Top suburb of Nakasero, PPP complex projects, high-tech warehousing and logistics center, retail rollout centers and transport terminals.  

TWED is a professionally driven company that has a diverse portfolio with strong real estate fundamentals.  With focus on long-term horizon prospects, the company builds and develops premium properties, which excel in having a superior location, beautiful and modern design, lifestyle and amenities to some of the largest Blue Chip corporations, international organizations, national corporations, and parastatals, non-governmental and public institutions. TWED Property Development main business is acquiring land, designing and developing functional properties and some of its prestigious properties include; TWED Towers located on plot 10 Kafu Road upper market Nakasero, Kampala City completed in 2011 with 18,000sqm of built up space and parking of 283 cars.  TWED Plaza located on Plot 22B Lumumba Avenue, Nakasero, Kampala.

Meridian is currently a leading investor, developer, asset manager and long-term partner in PPPs in North America and Europe and Meridiam has launched a EUR 300 million fund for Africa.  Meridiam’s unique 25-year funds enable it to partner with its public and private sector partners for the long-term, from project inception through operations. Meridiam’s “buy and hold” investment strategy prioritises the management of assets over extended contract periods, resulting in a higher level of service to the public.  Meridiam’s extensive experience as an international long-term owner of public buildings, including courthouses, would provide additional comfort to JLOS in the sponsors providing a stable, proactive and well-resourced entity of substance.  Meridiam has  a $4 billion under management primarily invested in greenfield transport infrastructure projects.

The Consortium will be supported by a team of professionals lead by G5 Properties and TWED in delivering the Project.

FBW Architects and Engineers: FBW is a design, architecture and engineering led, multi-disciplinary consultancy with demonstrable expertise and wide ranging experience in robust, reliable and compliant development project delivery.  They provide a full range of professional services from the UK, their East African base in Uganda and their established centres of operation in the Netherlands, Rwanda and Tanzania.  

Farrow Laing: Farrow Laing is a quantity surveying firm.  They render services across South Africa and also in numerous other African countries where strategic partnerships provide in-depth local knowledge and resources.

Eaglestone Advisory: Eaglestone is a financial services platform that brings together the experience, the conditions and the skills to handle a range of transactions and private equity deals on an international level.  It has a network of offices in Sub-Saharan Africa staffed by team members who live in the countries in which they operate, thus providing local knowledge, language, culture and expertise.  The company has three business activities – financial advisory services, asset management and brokerate – and currently has offices in Amsterdam, Cape Town, Johannesburg, London, Lisbon, Luanda and Maputo containing over 20 staff.

ROKO Construction Ltd founded in 1969 and is today one of Uganda’s leading Construction and Civil Engineering Groups.  The late Max Rohrer and Rainer Kohler, with 50 years combined experience in Africa, made a commitment to assist in Uganda’s prosperity and development when they founded ROKO.  Together with technical and commercial directors and over 40 qualified civil and site engineers, Rohrer and Kohler have led ROKO to the forefront of the construction industry to emerge as the principal contractor in Uganda and are now heavily invested in Tanzania, Rwanda, Eastern Congo and South Sudan. ROKO Construction Limited provides employment for an average of 1800 people, placing great emphasis on training its technicians and craftsmen to produce an exceptionally high standard of workmanship.  Materials are produced locally and from the EAC and COMESA wherever possible, and imports are facilitated by ROKO’s association with the SAI Trading Company in Europe.


This special report was prepared by the JLOS House Project Coordination Office at the JLOS Secretariat. For inquiries, email: This email address is being protected from spambots. You need JavaScript enabled to view it.

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