Dar es Salaam – After its investigation lasting 153 days, the Presidential Commission to Investigate the Events of Violence and Breach of Peace that Occurred During and After the October 2025 General Election presented its report to President Samia Suluhu Hassan during a ceremony held at the State House, Dar es Salaam, on April 23, 2026.

Here below is the full presentation delivered by the Chairperson of the Commission, Retired Chief Justice Mohamed Chande Othman. After beginning by acknowledging the presence of various invited guests, Justice Chande started his presentation by providing an introduction as follows:

Editor’s Note: The following content has been edited to improve readability:

Let me begin by thanking Almighty God who has granted us life, health, and strength to complete the work given to us by you, Honorable President, and enabled us to reach this day where we officially submit to you and the public of Tanzania the results of that work.

On behalf of my fellow Commissioners as well as the Secretariat of the Commission, let me express sincere gratitude to you, Honorable President, for the great trust you have in us to entrust us with this large and important task for the future of our Nation. Let me also thank you for the cooperation we received through the Office of the Chief Secretary which enabled us to complete this work.

Honorable President, my colleagues on the Commission and I owe a great debt of gratitude to our fellow Tanzanians who trusted us very much, and gave us immense cooperation until you consented to give us more time to ensure no one who had evidence or opinions and who by their own free will was ready to be part of the journey of healing the Nation missed the opportunity to communicate with us. We thank you very much.

Everywhere we went, the citizens who appeared before the Commission explained what happened during and after the October 2025 General Election and admitted that it is not how we Tanzanians are by our nature, by our character, and by the upbringing of the Founders of the Nation of Tanzania. Many of those who were injured, those who suffered bereavement by losing their loved ones, and those who suffered losses due to their property being destroyed or stolen, admitted, and indeed have a right to feel great bitterness. However, all those who communicated with the Commission through various means trusted us and gave us great cooperation, and we believe that the Report we are submitting to you today, and the recommendations contained therein, carry the collective determination of the Nation to heal wounds, to be accountable wherever necessary, but most importantly to learn and move forward.

Furthermore, let me thank my fellow Commissioners and the Secretariat of the Commission for working tirelessly for all 153 days. Finally, though not for importance, we recognize that the work of the Commission would not have been implemented successfully without the cooperation we received from Government leaders and executives at various levels, stakeholders from the public and private sectors, as well as the public of Tanzania in general.

Honorable President, the major investment the Government has made in improving the health sector has been a great help during the emergencies that occurred. Workers at health centers and hospitals—public, religious institutions, and private—involved worked very hard, in extremely difficult environments, some remaining at work for more than 72 consecutive hours to serve the injured. We also thank the leaders of those facilities for providing the Commission with all the information we needed.

Likewise, our thanks extend to experts in various fields who assisted the Commission in understanding specific issues, such as scientific investigation of some exhibits (forensic and GIS Analysis), investigation of audio and video (forensic audio and video analyst), post-mortem examination (Pathologist), investigation of explosives (ballistic expert), image analysts (Photographic analyst), reports from experts in psychology and sociology, as well as economic and financial issues.

Terms of Reference and Scope of Work

Honorable President, the main task of the Commission was to determine the truth (fact finding) regarding the events of violence during and after the October 2025 General Election, guided by the following six Terms of Reference:

1. To investigate and determine the real cause of the violence that occurred during the October 2025 General Election and the few days that followed;
2. To investigate the primary objective intended by those involved in planning and implementing those acts of violence and breach of peace;
3. To investigate and determine the effects that emerged due to that violence, including deaths, injuries, destruction of property and infrastructure, as well as economic and social impacts;
4. To investigate the circumstances and measures taken in identifying and dealing with the violence that occurred;
5. To recommend areas that need further strengthening to increase the accountability of leaders and citizens in protecting peace, the rule of law, human rights, good governance, and a robust system of political, social, and economic dialogue to reach national reconciliation and ensure such violence does not happen again; and
6. To investigate any matter that the Commission sees as important and consistent with its duties.

Honorable President, the scope of work involved conducting an investigation into the events during and after the October 2025 General Election and all issues related to those events as specified in the Terms of Reference. Additionally, the investigative work involved 202 most affected areas in 21 districts and 11 regions which are Dar es Salaam (Ilala, Kinondoni, Temeke, Ubungo Districts); Mbeya (Mbeya, Mbeya Rural and Kyela Districts); Songwe (Mbozi and Momba Districts); Mwanza (Nyamagana and Ilemela Districts); Geita (Geita District); Arusha (Arumeru and Arusha Districts); Iringa (Iringa District); Dodoma (Dodoma District); Shinyanga (Kahama District); Mara (Musoma, Tarime and Bunda Districts); and Ruvuma (Songea District). Furthermore, the Commission visited Zanzibar and Kilimanjaro Region as a sample of areas that did not have violence to learn about the environment that led to that situation.

Investigative Methodology

Honorable President, the first step of the Commission’s work was to establish Rules of Procedure, according to Section 11 of the Commissions of Inquiry Act, Chapter 32, Revised Edition of 2023, to guide the Commission’s performance. Likewise, the Commission prepared a methodology that guided how to perform its work according to the Terms of Reference.

In collecting evidence, information, and opinions, the Commission used primary sources and secondary sources using qualitative techniques and quantitative techniques. Primary sources involved witnesses, eyewitnesses to events, and various stakeholders, through face-to-face interviews and discussion sessions. The interviews also involved political and religious leaders, current and retired Government leaders. Secondary sources were used to collect, review, and analyze various documents to obtain the truth and confirmation of what happened, including Reports of various Internal and External Commissions of Inquiry.

Furthermore, the Commission considered international standards required in conducting this type of investigation, particularly in ensuring safety, confidentiality, and protection of witnesses and whistleblowers. Witnesses, eyewitnesses, and whistleblowers who did not want to provide evidence or information publicly or in front of the public did so in private.

One of the important methods used was face-to-face interviews, where the large group involved was victims (the bereaved, injured, those whose relatives went missing, those whose property was destroyed or stolen) through public and closed hearings as well as taking statements by written affidavits. A total of 1,323 victims were heard and affidavits were taken from 953 victims.

Additionally, the Commission received a total of 149 written submissions via post, 283 hand-delivered to the Commission Office, and 457 via email. Likewise, a total of 4,891 questionnaires were received, 33,250 SMS messages, 23,195 WhatsApp messages, and opinions were obtained through the Commission’s phone lines. During regional visits, the Commission conducted 170 group discussions with a total of 2,099 participants, and in Dar es Salaam a total of 31 group discussions with 1,466 participants.

Honorable President, in the regions and districts mentioned, the Commission met with victims (the bereaved, injured, those whose relatives went missing, and those whose property was destroyed/stolen); special groups of citizens (food vendors, motorcycle taxis, street vendors, children without permanent homes, and small entrepreneurs); detainees accused of involvement in the violence during and after the General Election; religious leaders; representatives of non-governmental organizations (NGOs); social welfare officers; retired and current public and political leaders; leaders and executives of defense and security forces; doctors from private health facilities; Regional Medical Officers (RMOs) along with their teams; Regional Prosecutors; Regional and District Security Committees; as well as other stakeholders who were ready to provide information, evidence, and opinions needed for the Commission’s work.

However, there are a few political parties, politicians, activists, and leaders of Non-Governmental Organizations who were invited in writing to appear before the Commission but did not do so. The Commission is satisfied that whoever did not come before the Commission did so by their own volition, which we respect, but not by being denied, or missing the opportunity to be part of this journey.

Honorable President, digital evidence was an important part of the Commission’s investigation, particularly in understanding the human impact. A total of 450 still images and 860 videos were collected through various means and some had been distributed online more than once. These images were obtained or submitted by eyewitnesses to events, whistleblowers or defense and security forces and open sources, including news media and social networks.

In determining its authenticity, some images were analyzed and subjected to scientific examination (i.e., Forensic and Geographic Information System Analysis) using authorized experts. That investigation, particularly for images that were circulating more on the internet and in news media, found some were real and true, others were not real, and have been manipulated using artificial intelligence or half-truths. This methodology enabled the Commission to distinguish between real and unreal images. An example is an image that has been used extensively to show corpses in blue bags being buried in a mass grave. That image, according to the investigation, has been used elsewhere in the world.

The use of hybrid evidence and information from various sources aimed to observe and meet the standards of proof used by International Commissions of Inquiry, i.e., evidence that any person of sufficient prudence would believe (reasonable grounds to believe) to establish findings (factual findings). The Commission relied more on hybrid evidence and information collected from various primary sources and secondary sources. Likewise, digital exhibits, including satellite images, were subjected to scientific examination using experts with international qualifications and standards, to confirm and verify them. The Commission also considered the importance of having sufficient evidence and other evidence that needs corroboration.

Investigation Findings

Honorable President, after explaining the investigative methodology, I would now like to direct myself to the results of the investigation.

I will start with the source of violence where, in the context of this Report, we have distinguished between the source and the trigger of violence. A source is a reason, origin, derivation, or root of an issue that has lasted for a long time without being resolved and has a negative impact on society. A trigger is something that prompts desire, spirit, enthusiasm, pressure, or motivation to do a certain thing. In other words, a source is like fuel and a trigger is like a match.

The Commission received and listed a total of 31 areas mentioned by witnesses to be sources of violence during and after the October 2025 General Election. After processing that list, the Commission identified and specified five (5) sources and eight (8) triggers. I will begin by explaining the sources and later the triggers.

According to the investigation, the violence during and after the October 2025 General Election resulted from various challenges that have existed in society for a long time without being solved. Those sources include the following:

First, there are political issues including demands for a New Constitution, democracy in a multi-party political system, grievances within political parties, demands for improvements to the Independent National Electoral Commission and the entire electoral system;

Second, are economic issues including the cost of living; unemployment and lack of equality in employment and economic opportunities; an unfriendly business and investment environment; a proliferation of taxes and levies and an unfriendly system of charging and collection;

Third, social issues including erosion of values and decrease in patriotism, failure to provide solutions and proper answers to grievances in society such as; corruption, embezzlement of public property, and allegations of abduction and disappearance of people.

According to Police Force statistics, between 2023 and 2025, 758 people disappeared, were abducted, or staged their own abduction; among those, 513 people were found and 8 cases were opened where investigation is ongoing. Thus, out of a total of 758 people who disappeared, were abducted, or staged abduction for various reasons, 245 people have not been found. These statistics reflect the complaints of citizens regarding issues of abduction and disappearance of people.

In those incidents, the Police Force explained that the reasons for disappearance or abduction include: relationship issues (113); superstitious beliefs (87); those abducted by criminals with the aim of obtaining income or property (97); those involved in criminal acts due to hatred and retaliation (47); those who abducted themselves due to various reasons of being owed (debts) and evading the long arm of the law (56); those who left without notice (74); and human trafficking (39).

Fourth, unsatisfactory performance of some executives and public servants, particularly at the lower levels (Local Government Authorities) including not listening to or solving citizens’ grievances in time, and weak implementation of recommendations of Commissions that are formed; and

Fifth, are issues concerning international relations in today’s and tomorrow’s world where many nations put their interests forward as the basis of relationships and try various tactics and strategies to put themselves in a good position to advance their interests in other countries, especially developing ones and those with many resources.

Honorable President, evidence and information have shown that some politicians and activists used citizens’ challenges resulting from various identified sources as an opportunity to persuade and incite citizens to participate in violence during and after the General Election using various slogans and declarations.

Evidence and information have shown that some politicians and activists used citizens’ challenges resulting from various identified sources as an opportunity to persuade citizens to participate in violence during and after the General Election using various slogans and declarations. The Commission’s assessment has found that there were specific triggers that awakened the spirit to commit violence during and after the General Election. Those triggers can be placed into three groups.

The first group concerns social networks which, according to witnesses who came before the Commission, those networks were used before, during, and after the 2025 General Election to a greater extent than has ever happened in Tanzania. Additionally, content creators emerged on the networks, including topics to encourage citizens not to participate in the General Election and/or ensure it does not happen. Those networks were also used to organize discussion platforms and plan tactics and direct those who agreed to participate in violence to prevent the General Election on how to achieve that goal. There are also witnesses who participated in committing violence who came before the Commission and admitted that some of them were given special mobile phones and given the task of taking photos and videos of events such as injuries and deaths or taking photos near TPDF vehicles, along with photos of areas where the rioters had succeeded in doing damage and then all those photos and videos were posted directly on social networks to arouse citizens’ anger and encourage them also to come out and commit violence because they were made to believe that the TPDF was with them.

The second group of triggers are statements by some politicians which turned into slogans for those who were committing violence. Examples of those slogans, which some participants in the violence admitted to using, are as follows:

1. “No Reforms No Election”;
2.  “Oktoba Tunatiki” (October We are Ticking);
3. “Oktoba Tunatoka” (October We are Coming Out);
4. “We have determined the election will not take place”;
5. “Samia Must Go”;
6. “We want to liberate our country”;
7. “No election under this Government”;
8. “We will ensure the country does not stand until the Government leaves”;
9. “There will be no Election without changes to the system”;
10.  “This Government has lost the legitimacy to lead the country”;
11.  “Public pressure must increase until the Government leaves”; and
12. “The process of getting candidates has violated procedures, candidates are not legitimate, the process should be repeated”.

The third group of triggers concerns some areas of the country where those who intended to run for ward council and parliamentary seats had their names cut at higher levels of those parties, and thus they saw that the violence being committed helped them demand changes to the system of getting candidates within their parties, and they participated underground in encouraging their followers to participate in the violence.

Objective of the Perpetrators

Honorable President, before discussing the objective of those who participated in the events under investigation, it is important to get an answer to the question whether what happened during and after the October 2025 General Election were peaceful protests, and thus deserving protection and defense according to international, regional, and national treaties or laws, or not. The answer to that question is important because some stakeholders, including human rights defenders within and outside the country, claimed that the perpetrators had a constitutional right to conduct protests on that day even if it was declared an Election day.

Thus, the Commission conducted an analysis of various international, regional, and national treaties, laws, and regulations regarding the concept and right of peaceful assembly and its limits.

Honorable President, protest is among the fundamental rights recognized by Article 21 of the International Covenant on Civil and Political Rights, 1966 (ICCPR) adopted by the United Nations General Assembly on December 16, 1966. Among other things, this Article recognizes the right of peaceful assembly. Additionally, this treaty allows the Government to set limits for: national security; public safety; public health or morals; and protecting the rights of other people. Furthermore, the setting of limits must observe the fundamental right to life as specified in Article 6 which states that every human being has an inherent right to life along with Article 21 which recognizes the scope and limit of protests if they are legal, legitimate, necessary, proportional, and are required for public protection and safety.

The right to assemble and protest peacefully is described in the African Charter on Human and Peoples’ Rights, 1981 and the Treaty for the Establishment of the East African Community, 1999 as a fundamental right that needs to be protected and respected. In the African Charter on Human and Peoples’ Rights (Banjul Charter), 1981, the right to assemble freely and peacefully is recognized by Article 11. That article has made it clear that every person has the right to assemble freely with others. Additionally, Governments can set conditions regarding that right for the interest of national security, public safety, health, morals, as well as the rights and freedom of other people.

The African Commission on Human and Peoples’ Rights has established Guidelines on Freedom of Association and Assembly in Africa adopted in 2017 to protect the right of protest in Africa. Those guidelines require member countries to ensure peaceful protests are allowed according to the laws of the country, the obligation of the Government to allow gatherings is specified in national Constitutions; Police should protect protesters, and the use of excessive force is not allowed.

Honorable President, the Constitution of the United Republic of Tanzania of 1977, has established fundamental human rights including the right to life and freedom of assembly and protest as part of exercising the right of freedom of opinion and expression along with the freedom of people to meet others voluntarily and peacefully. Additionally, the Police Force and Auxiliary Services Act (Chapter 322), Police Force Regulations, and other national guidelines describe the limits of protest and the use of force and weapons.

According to those laws and regulations, the Commission analyzed whether what happened on October 29, 2025, were peaceful protests and found the following:

1. Peaceful protests are not conducted on General Election day because the right to conduct protests at that time can interfere with the rights of other citizens, particularly the right to vote and the right to run for office. Conducting protests on election day is not a common thing in countries with democracy and the rule of law;
2. The right of every person to participate in an election as a voter or candidate is a constitutional right according to Article 5 which should not be usurped. Violence was planned and implemented on a day legally announced to be General Election day. Thus, committing violence on that day was to usurp the Constitutional and Legal rights of other citizens including the right to vote and be voted for;
3. Participants in the violence during and after the General Election carried various types of weapons including stones, iron bars, spears, pickaxes, sticks, clubs, knives, matches, explosives, guns, catapults, slings, rakes, and machetes, which is not allowed by law in peaceful protests. This is contrary to International (Article 21 of the Covenant on Civil and Political Rights, 1966), Regional (Article 11 of the African Charter on Human and Peoples’ Rights, 1981 and Article 10 and 11 of the European Convention on Human Rights, 1950) and National (Article 18 and 20 of the Constitution of the United Republic of Tanzania, 1977) laws and procedures which do not allow protests of people carrying weapons; and
4. International, Regional, and National laws and procedures do not allow protests that cause panic in society, endanger National security, cause destruction of public and private property along with endangering the lives of other people. If these things are done, they go against the definition of peaceful assembly.

Considering the laws and regulations governing peaceful protests internationally, regionally, and nationally and the evidence presented before the Commission, it is the Commission’s opinion that what happened during and after the General Election of October 29, 2025, was not peaceful protests and thus outside the protection of those laws and regulations.

Furthermore, the Commission has obtained evidence beyond doubt that the events of violence in October 2025 were planned, coordinated, funded, and implemented by people who received training. Coordinators used various tactics, including using people without deep understanding and disillusioned youth, while ensuring that acts of violence took place at the same time in different areas to confuse and scatter the Police.

Honorable President, information and evidence confirm that there were people going around in various areas such as streets, colleges, markets, and bus stands persuading and recruiting various people to participate in violence during and after the General Election. For example; children living in difficult environments, motorcycle riders (bodaboda), and small entrepreneurs explained that they were given money between sh. 10,000 to sh. 50,000 and were promised jobs and a better life. It was further explained that from October 12, 2025, to October 28, 2025, they were kept together, given training, prepared, and encouraged to be part of starting and participating in violence on Election day.

Additionally, it was revealed that the groups that were persuaded were the ones who were mostly involved in implementing violence, while the main perpetrators and coordinators were not present at the event areas, a situation that contributed significantly to their non-arrest, while many of those arrested were ordinary citizens including followers, or those persuaded by small payments or promises of benefiting from the changes they planned, without having an understanding of the real goals of the main perpetrators and organizers.

Based on the evidence, information, and opinions obtained, the Commission has identified and classified 16 tactics used by the main perpetrators and coordinators to accomplish violence during and after the General Election. Some of those tactics are: placing roadblocks, setting fire to various properties, use of various signs to recognize each other, use of motorcycles to start violence, and initiation of violence in many places at the same time.

Honorable President, according to evidence presented to the Commission, and the explanation I provided above, those events had the following main objectives:

Based on evidence presented before the Commission, the primary objective of the October 2025 violence was to prevent or disrupt the General Election of October 29, 2025. This objective is manifested through various acts of the rioters including destroying polling stations and materials; attacking police officers, agents, and election supervisors; destroying property of election supervisors; threats, harm, and attacks against citizens who came out to vote; and looting property of election supervisors.

Through evidence, information, and opinions including discussions with economic experts, it appeared that, through General Election violence, the youth who participated got an opening to send a message to the Government that they want to be heard and have the challenges facing them solved. It was revealed that violence coordinators used citizens’ complaints against the Government while they were persuading them to participate in the violence.

According to evidence, information, and opinions, among the rioters, large groups emerged with the objective of stealing and looting property. Direct evidence from victims whose property was looted or stolen along with digital photos (CCTV) and through still images and videos, shows how acts of theft and looting were committed by those groups. For example, theft and looting that occurred in shops and other business areas in the Regions visited by the Commission. These acts were also confirmed by some property and business owners who appeared before the Commission to provide evidence.

Impact of Violence

Honorable President, you instructed the Commission to investigate and determine the main impacts that occurred during the violence of October 29, 2025, particularly human, economic, and social ones. The Commission received and analyzed evidence, information, and opinions from victims, experts, and various consultants to determine the scale and reality of the impacts that occurred.

International, regional laws and Article 14 of our Constitution give every human being the right to life and protection of that right by society. That right can only be deprived by the procedure established by law. The Commission did not treat the analysis of the number of deaths as a search or hunt for numbers, but gives great weight to human life and the great respect every corpse deserves after death which is also our culture.

In its assessment, the Commission relied on many sources of evidence, expert advice, and information, including from the bereaved, victims, and health workers in hospitals. It analyzed information from the Ministry of Health, Health Centers of the public sector at the National, Regional, and District levels and their areas and those of private Hospitals. The Commission also received burial permits from families. Other sources are the Registration, Insolvency and Trusteeship Agency (RITA) which has authority for death registration; the Government Chemist Laboratory Authority (GCLA) which has the task of forensic science investigation and which manages DNA investigation; Urban Councils and opinions of Pathology Experts and other fields. The Commission had the opportunity to interview directly eighty (80) physicians and medical specialists from the public and private sectors from 11 regions visited by the Commission, along with still and video images confirmed to be true.

The Commission’s assessment is that the total number of deaths resulting from General Election violence is 518, where, men are 490, equal to 94.6 percent and women are 28, equal to 5.4 percent. Many of those deaths were unnatural. Dar es Salaam Region had the most deaths, having 182 deaths, followed by Mwanza Region with 90 deaths; Mbeya with 80 deaths; and Arusha Region with 53 deaths.

Out of those 518 deaths, twenty-one (21) were children. In that group, 15 were children aged between 15 – 17 years, four (4) were aged between 7 – 10 years, and two (2) aged under five years.

502 deaths equal to 96.9 percent were of civilians, and 16 equal to 3.1 percent were of officers and soldiers of defense and security forces.

Out of 518 people who died, 373 were brought to hospital having already died, 121 injured people died while receiving treatment, and for 24 corpses there is no information from health service delivery facilities.

Out of 518 corpses, 480 corpses equal to 92.7 percent were identified and taken by relatives and families.

Honorable President, post-mortem examination under the Inquests Act was conducted in various Referral hospitals in Dar es Salaam City and regions for 260 corpses. Other corpses were not examined due to lack of consent from relatives and families, who wanted to take the bodies of their relatives quickly for burial. Out of 260 corpses examined, many were found to have puncture wounds from sharp objects or fractures in various parts of the bodies. Those injuries caused heavy blood loss thus causing death. Additionally, 21 corpses did not show any type of injuries and 6 corpses had fire injuries.

485 out of 518 corpses were identified and taken by relatives from health facilities for burial and 9 corpses were not identified and were not taken. Among those, six (6) corpses were buried according to the Regulations for Disposal of Waste and Remains of Human Bodies, and Local Government Authorities. 3 corpses all from Dar es Salaam Region as of March 31, 2026, were still at the Muhimbili National Hospital.

DNA testing was conducted for 274 corpses with the aim of taking information to identify corpses accurately. This investigative information will help identify relatives of the deceased accurately when needed.

The Commission instructed a Specialist and Medical Pathologist to conduct an analysis of post mortem reports to determine the real cause and manner in which those deaths occurred and the affected body areas. In implementing that instruction, post-mortem reports for 219 corpses were analyzed.

That analysis specified that all 219 corpses resulted from unnatural deaths. The immediate cause of death for 147 was excessive bleeding, 41 brain injury, 12 lack of oxygen; 9 spinal cord injury; 5 various injuries, 4 heart attack and for one (1) death the real cause was not known. Likewise, the underlying/antecedent cause for many deaths was gunshot wounds for 197 deaths equal to 90.0 percent and 22 deaths equal to 10 percent were not related to bullets.

The Specialist’s analysis report specified that 166 corpses had injuries in arms and legs, 36 corpses had injuries in chest and abdomen and 12 corpses had injuries in head and neck. One corpse was missing some organs.

However, due to the environment of violence along with allegations of some witnesses, the number of deaths can change due to the possibility of existence of some relatives who buried the bodies of their loved ones without bringing them to health service delivery facilities and did not get the opportunity to appear before the Commission. Likewise, it is possible there were injured who decided to be treated outside the official system and died without their information being submitted where appropriate. The Commission also received evidence of allegations about people missing or not being found since General Election time. Considering the explanation provided, the number of deaths provided in this Report might not be final and conclusive.

Commission Assessment on Deaths

Honorable President, the Commission recognizes that deaths have left a large gap in families and society and significantly affected the national workforce. The impacts that occurred have caused some families to lose their main support and thus placing them in a state of economic and social dependency.

The Commission received evidence regarding 39 people who it is alleged died or disappeared, including some who initially it is said their bodies were seen at hospitals/health centers and identified by relatives but later those bodies were not seen again when they followed them there. Others said they buried the deceased’s clothes just to conclude the funeral. This is one of the important matters which the Commission has provided recommendations for so that it is worked on as soon as possible.

The Commission also received allegations from victims and other witnesses about people being shot, injured, or killed in areas that did not have violence or riots. There are allegations of people being shot in their residences including inside houses or in living rooms and inside shops. Those are heavy allegations indicating possibility of use of firearms contrary to international, regional, and national guidelines and regulations regarding use of those weapons. This is another matter requiring detailed and criminal investigation.

The Commission’s assessment shows that as of March 31, 2026, injured people who had been served in public and private health service delivery facilities due to violence during and after the General Election, were 2,390. Among them, civilians were 2,270 equal to 95.0 percent, and officers and soldiers of defense and security forces were 120 equal to 5.0 percent. There is possibility that some injured are not in that number due to various reasons including: possibility of some injured continuing to receive treatment outside official health service delivery facilities and others fleeing to neighboring countries, particularly, for border regions of Mbeya, Songwe, Arusha, and Mara for fear of being arrested.

Injured who suffered major injuries were 219 equal to 9.2 percent of all injured. Among them, 197 injured had injuries resulting from bullets and 22 did not result from bullets. Many of the injured in this group were forced to be hospitalized to receive medical treatment services.

Additionally, 2,171 injured suffered minor injuries where they received services and were discharged. Among them, 833 injured had injuries resulting from bullets in lower parts of the body, while 126 injured had injuries in upper parts of the body. Medical examination for all injured who arrived at health service delivery facilities specified that there was no injured person who was tortured.

Honorable President, there were allegations through international news media and social networks about existence of mass graves in the area of Kondo cemetery, Kunduchi, Kinondoni Municipality, Dar es Salaam. The Commission conducted an investigation including visiting and inspecting the entire cemetery area, conducting interviews and obtaining report of the Cemetery Supervisory Officer in Kinondoni Municipality and taking evidence from the supervisor of Kondo cemetery.

Likewise, the Commission involved various experts to conduct scientific investigation regarding those allegations including satellite photo used. Opinions of those experts, including those of remote sensing and Geographic Information Systems analysis are that these allegations could not be confirmed.

The Commission also conducted inspection and found that the area of Kondo cemetery is surrounded by human residences, and which is still used for seasonal farming activities and has protection all the time. Based on evidence and Commission’s field investigation, and considering the situation seen in the area of Kondo Cemetery along with reports of scientific investigation Experts, the Commission has found that, allegations of existence of mass graves in Kondo area could not be confirmed.

Honorable President, major economic impacts are those concerning private people’s property and Government property being destroyed.

The Commission has found from various sources that destroyed property has value of sh. 125 billion. Among those properties, private sector property (private people, fuel stations, CCM and banks) has value of sh. 89.0 billion equal to 71.2 percent and public property (Government property and institutions such as Schools, TRA, Judiciary, Police, DART, TANROADS, TANESCO and TTCL) has value of sh. 36 billion equal to 28.8 percent. and the private sector has suffered greater impact than the public sector.

Evidence of many victims who lost private property shows bitterness they suffered and continue to have. Example one retiree explained to the Commission that: “After retiring I went to Equity Bank Tanzania Limited (EFTA) for loan for business vehicle amount of sh. 180,000,000/- before interest, I bought a sand Tipper with registration number T 476 EMW where every month I was returning sh. 6,942,401/-. That vehicle after buying it was parked in TANROAD Kimara Temboni area after work. Since the vehicle was bought it worked for two months only and on 29.10.2025 during General Election violence TANROAD parking area was invaded and my vehicle was burned and completely destroyed. I have tried to seek help from insurance but it has failed because it had comprehensive insurance and not for political risk.”

Small and medium entrepreneurs were looted or stolen property with value of sh. 1.6 billion. A witness from Tegeta, Dar es Salaam who explained that: “I am a phone dealer, on General Election day my shop was invaded by rioters they stole all phones inside the shop, the phones themselves are on loan, I am in a bad state I don’t even know what I will do, my ability is no longer there, here I am full of stress.”

There is possibility of value of destroyed or stolen property from this group being greater due to challenge of record keeping and business information of those entrepreneurs.

There are also losses on the Financial Sector side, for example, total of sh. 621.7 million was looted and stolen from automated teller machines (ATMs) of three major Banks, CRDB, NMB and NBC.

Other sectors economically affected are decline in Financial Markets, changes in money circulation, transport and logistics, and tourism.

According to February 2026 report of Moody’s International Credit Rating Company, Tanzania’s credit rating has remained at level B1. That situation makes Tanzania continue to be trusted by lenders as it was before General Election. Additionally, economists who met with the Commission emphasized that if political risks are not properly addressed, that level might decline.

According to Central Bank, Honorable President’s decision to form Commission of Inquiry was very good decision, and is important starting point to build confidence for Tanzania’s Economy.

Honorable President, the Commission found existence of people who suffered social, emotional, spiritual, mental, and physical impacts who need to be provided with mental health, psychological and social services (Mental Health and Psychosocial Support – MHPSS).

Events such as deaths, permanent disability, body injuries, losing relative and being looted or destroyed property invested in for long time have caused psychological impacts and social challenges among citizens. Those impacts have manifested in different ways, including people getting stress, sadness, fear, losing faith in social and political systems.

Additionally, in that environment divisions have emerged where society has lost solidarity and trust. Another group which was affected is physicians, nurses and attendants in health Centers, many of them worked 72 hours consecutive without going home, where they left family and having no communication with them that period. There are those who remembering what happened and services they provided, no longer want to continue with their professions.

Another witness from Shinyanga Region said: “After being shot in the leg I lost ability to walk as before, my life has changed very much. Lack of bicycle to help me travel from one area to another, particularly, going to school, has denied me freedom to participate in normal life like fellow youth. I have found myself with sadness and stress because I cannot reach school, associate with friends, nor continue with my dreams. Many times I feel I have no value and have been left alone, a situation which has made me live in loneliness.”

While listening to witnesses, the Commission identified existence of 710 people with need for psychological help and took action. It connected them directly with Ministry responsible for Social Development issues so they could be examined and provided with psychological help. We thank that was done and all 710 victims were reached and provided with psychological services in Regions and Districts.

Steps to Identify, Prevent and Control

Honorable President, regarding steps taken in identifying, preventing and controlling violence, investigation has found several issues as follows:

Indicators of violence occurrence on General Election day in October 2025, with goal of preventing or disrupting Election, began to emerge through social networks approximately six months before Election Day. At different times from April to October 2025, Tanzania Communications Regulatory Authority (TCRA) was submitting reports showing indicators of violence to defense and security forces and other institutions so they take proper steps. On October 17, 2025, TCRA identified banner online which had content inciting violence and preventing election. That banner showed objectives of protests claimed to be National, to be preventing and disrupting General Election planned to happen on October 29, 2025. In its report of October 26, 2025, TCRA identified existence of discussions in one of social networks regarding manner they will implement violence on Election day. Those discussions showed that, on election day they would destroy electricity systems to put country in darkness, burn fuel stations, and burn polling stations with goal of preventing or disrupting Election.

Honorable President, despite online indicators which were more open, there were indicators which Commission discovered through witnesses who appeared before it. Examples, are existence of no less than 500 youth in buildings, forests and camps in various areas in country for approximately more than 28 days where they were sheltered and provided with training for committing violence on General Election day. Commission in its investigation found that, one of those houses located in Dar es Salaam, was distance of approximately ten meters from Police Station.

Despite Commission receiving evidence showing existence of some indicators of violence plans on Election day, no evidence shows identifying and taking proper steps early before events of breach of peace.

As I explained earlier, breach of peace that occurred confirmed high level of preparation for those riots. Rioters used tactics which were not expected. Those tactics include committing acts of breach of peace at same time in various parts of cities and other parts, using dispersal tactic (dispersal violence points) to prevent police from being able to confront them and control them easily.

Honorable President, many witnesses who appeared before Commission, explained they saw signs of riots through social networks, and others providing information before Commission about fear they had, for example:

One religious leader told Commission that, before election day, his child had information about riots being planned to prevent election from taking place. When he failed to beseech his father and mother not to come out to vote, he advised them at least they clean their fingers immediately after voting because there are people prepared to cut fingers of those who will vote.

Police and other defense and security forces at National, Regional and District level, as were other Tanzanians, were “surprised” and were not sufficiently prepared for type of violence that occurred on October 29, 2025, which broke out near same time nationwide in 14 Regions, 43 Districts and 202 areas in Country.

Through Police councils, officers, inspectors and rank and file had opportunity to explain to Commission how violence was major and hazardous to their lives due to rioters using various tactics and weapons to confront police. One policeman confirmed that Police Force did not expect type, scale and distribution of riots that occurred day and after election by explaining: ‘‘We prepared for protests, what happened was dispersal”. Another officer from Defense and Security Forces explained that ”we prepared for protests, what happened was mushrooming nationwide”

Honorable President, some regional committees informed Commission through their Reports about various steps they took to control threats of breach of peace. Example, Security Committee of Katavi Region in its report explained after starting to see indicators of existence of violence during election, it strengthened intelligence information search strategies and worked on them quickly. Additionally, Regional Committee and district security committees began conducting joint sessions where in that period they met eleven times.

Similarly, Security Committee of Kilimanjaro Region explained to Commission after starting to see indicators of possibility of existence of violence during Election it took various steps including conducting Committee sessions frequently with goal of giving each other information, meeting with political party leaders frequently, meeting with youth groups and emphasizing to them importance of peace, along with strengthening defense and security vocabularies.

Honorable President, Police Force and Auxiliary Services Act (Chapter 322) specifies duties of Police Force to include protecting civilians and their property (Sec. 5(1). Additionally, to implement that duty Police Force rank and file are allowed to carry weapons during implementation of their official duties (Sec. 5(2). However, Permission to carry weapons granted under this Act is not direct permission for use of those weapons. Use of weapons should observe principles of law and various guidelines regarding use of firearms. Section 29(1) specifies conditions and environment which firearms against human can be used:

29 (1) (b) any person who by using force-

(i) rescues or attempts to rescue any other person from lawful custody; or

(ii) prevents or attempts to prevent lawful arrest of any other person;

Conditions of Section 29(1)(b) of Police Force and Auxiliary Services Act are consistent with Principle 9 of United Nations Basic Principles on Use of Force and Firearms for Law Enforcement Officials adopted in 1990 [The UN Basic Principles on the Use of Force and Firearms 1990- BPUFF]

Criminal Procedure Act Section 12(1) and (2) of Criminal Procedure Act provides legal guidance regarding arrest of suspect and use of force during arrest.

Honorable President, Police General Orders (PGOs) According to Order 274 (PGO) of Police General Orders, use of force is managed by four main principles known in short as PLAN –

• Proportionality: Use of force must be proportional to relevant threat. As resistance increases from static (warning), active (strong control) and ominous (hazardous) to lethal (able to cause death) so level of force allowed increases proportionally.
• Legality: Legality of use of force results from following authority and procedures established legally. According to Police General Orders (PGO 274 (3), read together with Criminal Procedure Act (Sec. 22), Police Force and Auxiliary Services Act (sec. 44) and Penal Code (Sec. 78) direct legality of Police Force using force where needed to do so.
• Accountability: Policeman failing to observe principles of use of weapons will be personally accountable. Every Officer or Policeman is personally accountable for any improper use of weapons under his care and control. This legal position was confirmed in case of Republic Vs G 2573/Pc Pacificus S/O Cleophace Simon [2018] TZCA 423
• Necessity: Police can use force where it is strictly necessary to do so to control situation according to threat (PGO 274 (3) & (4). Additionally, those conditions are consistent with conditions of paragraph 11 of Chapter One of Riot Control Manual emphasizing force be used where needed to restore law and order quickly.

Honorable President, considering principles of Use of Force Continuum Commission analyzed evidence regarding use of force in various areas and found steps of use of force differed between one area and another.

There are areas where first step of presence of police enabled preventing violence from continuing. There are also other areas which, due to level of threat to life of police and other civilians, it necessitated use of higher steps.

In Salasala Police station, Dar es Salaam one of police who was in that station explained that, being in station there they were invaded by group of more than 150 people having traditional weapons including machetes, arrows, spears and cans of petrol fuel. Due to that situation they were forced to use tear gas bombs and later decide to flee after being overpowered.

Another witness from Nyamagana Mwanza Station explained state how it was area of Main bus stand going to Nyegezi where group of people between 300 – 400 having traditional weapons including machetes, sime, iron bars and clubs being committing violence including burning property of people. Due to state how it was they were forced to use tear gas bombs and situation when it became worse and dangerous, they were forced to use firearms. According to this witness, in that incident police were nine against group of rioters more than 400.

Another policeman from Riot Suppression Unit Mwanza explained that, on October 30, 2025 at one o’clock afternoon being in area near CRDB and NMB Buswelu banks, Police rank and file being rescuing fellow police were forced to use tear gas bombs to disperse rioters and rescue fellow police who were in bad state.

Witness explains further that in Buhongwa area where rioters were more than 2000 attacking police, they were forced to use stun bombs and tear gas bombs. Vehicle they were using was severely damaged and some police were hit and being in bad state and great danger. Explains that: “Environment was dangerous of losing life. Criminals had machetes, stones, bricks, clubs. We did not use firearm. I was hit stone in joint and elbow and hurt very much.”

Officer Commanding District Kinondoni has explained various steps he took to disperse large group of rioters who had traditional weapons. For beginning says, they stayed as spectators but later rioters increased and reached between 200 to 300 and started throwing stones at Police, and later Police used tear gas bombs, but rioters did not disperse. Started attacking Police with iron bars and fuel cans. In that situation, they were forced to use firearms to protect themselves and control violence.

In incident of burning Makuyuni Police Station, Arusha group of rioters no less than 300 invaded that station having various weapons such as iron bars and fuel cans. Police gave warning to want them disperse but they continued attacking them. After that, they were forced to use tear gas bombs but they continued attacking Police including injuring one policeman in knee by piece of iron bar and then they were forced to use live bullets.

State like that emerged in other areas such as: area of Nyamagana and Mabatini Mwanza police station where, group of rioters between 500 – 1,000 having traditional weapons invaded that part. Warning was read to disperse them and after that tear gas bombs were used after rioters starting attacking Police with explosives.

Honorable President, additionally, Commission received evidence from some witnesses claiming Police using force in controlling violence as follows:

On October 30, 2025 Resident of Momba, Songwe afternoon time was at well drawing water with her child. They heard bomb sounds she was running being carrying child, child fell down after being shot in head.

One resident of Maruango Arumeru District, informed Commission about incident of her son aged 35 years who was shot four bullets by Police rank and file in Kimandolu area day of October 29, 2025 being near his shop. According to witness explanation, her son was shot bullet in arm fell down then police followed him and shot him three bullets in back and breaking two spinal bones, and another below heart, and thus it has failed to remove it. For now her son continues with treatment in one referral hospital. This incident also is one of incidents requiring detailed investigation.

On October 29, 2025, evening time approximately five o’clock two residents of Kinyerezi, Dar es Salaam, saw Police car passing but it returned back and three Police came down and two among them knelt and fired bullets at them, where one bullet hit one among them who fell and fellow who were there fled.

In Mwanza town, Commission obtained information of incident of killing approximately 13 people alleged to occur on October 31, 2025 in TV booth located in Mji Mwema area in Mwanza City. One witness who introduced himself as survivor of that incident, explained to Commission through his affidavit that on October 31, 2025 people thought to be police invaded that booth and shot bullets at approximately 13 people including this witness who survived. According to his explanation, together with him there are others two who survived where one was receiving treatment in Bugando Hospital and another in his village. This is one of incidents requiring detailed investigation.

Honorable President, Government has obligation through Police Force and other defense and security forces to ensure safety of civilians and their property, and when any situation emerges which can affect safety, Government through those forces should take proper steps of restoring utillity according to law and guidelines.

Where steps taken have caused impact to civilians due to use of force of officer or officers of defense and security forces, quick, independent and complete investigation should be conducted to identify source and take proper steps. Goal is to protect citizens’ trust for Government and its forces to ensure flaws that emerged do not repeat.

Rule of Law and Accountability

Honorable President, regarding rule of law and accountability issues, investigation found following:

First, in controlling violence, Police Force was assisted by other Defense and Security forces under its coordination. Through joint operation that violence was able to be controlled according to direction and scale of violence. Additionally, in implementing those duties, cold and firearms were used depending on environment existed;

Second, information existed but were not interpreted accurately and risks were not analyzed with proper weight. Among reasons for this state is believing that for culture and peace accustomed in Tanzania violence would not occur (cognitive bias), along with lack of well-planned analysis systems (lack of structured analytical frameworks), and weakness of putting solid plans according to environment and risks that emerged (weak scenario planning);

Third, activists and politicians used social challenges to persuade citizens to commit violence which caused major human impact along with other crime.

Honorable President, regarding reconciliation and New Constitution, Commission has found following:

First, events of October 2025 along with challenges which have existed for long time have caused cracks and wounds for Nation. Thus, reconciliation and National consensus is important step in healing wounds and restoring peace, trust, solidarity and utillity inside society and nation in general. Reconciliation should be cross-cutting including political, social and economic fields to evaluate more truth, heal wounds, seek solution and reach political consensus, agree on foundation and matters regarding New Constitution and restore national unity and solidarity;

Second, considering position of religious institutions in protecting value of peace and building utillity in society, there is importance of conducting inter-religious dialogue as part of social reconciliation. Thus, dialogue, reconciliation and consensus among religious leaders will strengthen understanding among them and agree about limits between religion and politics in implementation of their duties, then their recommendations be submitted to Government for proper steps for political and social stability and avoiding confusion in future days;

Third, reconciliation done at national level should descend to Local Government Authority level by using governance systems existing in Districts, Divisions, Wards and Villages; and

Fourth, to ensure process of reconciliation and national consensus succeeds and helps unblock blocks that will emerge it is important there be informal Council of Elders so elders provide advice in solving challenges or tension in society and other national matters.

Recommendations 

Honorable President, Commission submits various recommendations including short term, medium term and long term. For purpose of this presentation, let me explain some only of those recommendations.

Honorable President, some major short term recommendations include following:

First, Government establish procedure of ensuring injured who suffered disability resulting from October 2025 violence get free medical services, including those who will need assistive devices and artificial limbs (prostheses);

Second, Government set aside National Mourning day to remember more than 500 Tanzanians who died in violence during and after October 2025 General Election;

Third, Government put strategy and set aside resources for provision of psychological and social help services along with conducting Rapid Assessment of psychological and social impacts in areas affected by October 2025 violence;

Fourth, it is Commission’s opinion that, it is important New Constitution be available by year 2028 so it is used in coming local government election of 2029 and general election of 2030. To reach goal of getting Constitution before 2029, Government form Committee of Constitution Experts which will have: task of reviewing existing Constitution; draft Constitution of Constitution Review Commission; Proposed Constitution of Year 2014; reports of Commissions, Committees and various Task Forces. After reviewing those documents, Experts Committee will get citizens’ opinions and contributions and then prepare draft New Constitution which will be voted for by citizens (referendum);

Fifth, Government form Commission for Reconciliation and National Consensus, through President’s authority under Article 36 of Constitution of United Republic of Tanzania, which will be participatory and which will supervise and lead reconciliation in political, social and economic fields to evaluate more truth, heal wounds, seek solution and political consensus, and restore national unity and solidarity;

Sixth, concurrently with Commission for Reconciliation and National Consensus, Advisory Council of Elders be formed which will include some retired top leaders along with other elders with acceptability in society and having patriotism to help Reconciliation Commission when block emerges;

Seventh, Independent National Electoral Commission Act be implemented fully, including ensuring that appointment of Chairperson and Commission Members is done by observing law amended year 2024. Additionally, Commission be allowed to hire its staff so they have responsibility of supervising election activities at least up to Constituency level. In level of assistant supervisors and station supervisors, INEC continue using staff hired temporarily. This step, will remove complaints of political parties and citizens regarding INEC independence;

Eighth, Commission has found there are areas with criminal indicators and requiring accountability. Thus, it is recommended forming Commission of Criminal Investigation Following Events of Violence during and after 2025 General Election according to Commissions of Inquiry Act, Chapter 32 Edition of 2023. That commission will have duty of investigating and following specific matters requiring more investigation to address allegations specified in Commission report. Those matters include identifying main perpetrators of violence, confusing events of deaths and injuries, corpses which have not been found, and recommending accountability steps;

Ninth, Police Force design and implement solid strategy of restoring and strengthening its relationship with society for benefit of civilians and Country safety in general, as recommended by Criminal Justice Commission;

Tenth, Government and state forces implement its duties in manner showing clearly observing environment of multi-party democracy system. That step will bring equality in competition field and remove complaints of politics stakeholders and citizens in general regarding lack of democracy in multi-party politics in country;

Eleventh, leaders’ values be supervised closely, including lifestyle not consistent with procedures and ethics of public service, to identify and control unacceptable acts, such as bribery and corruption; and

Twelfth, National Youth Council Act, Chapter 441, be implemented and council be formed and start functioning as platform for discussion regarding matters concerning youth.

Honorable President, following are some medium term recommendations:

First, Government strengthen accountability systems by ensuring all executives, particularly, of middle and lower level, listen and address citizens’ grievances in time, and being accountable when they fail to implement their duties appropriately and when they violate law. To implement this duty efficiently, it is important to empower monitoring and evaluation units in institutions which by current structure are directly accountable to head of institution;

Second, Government continue and put priority in implementing recommendations provided by commissions or various task forces it forms for example Criminal Justice Commission. That step will reduce or remove citizens’ complaints and unnecessary tensions with politics stakeholders;

Third, Government strengthen employment and leaders and top executives appointment systems by observing qualifications and fair competition (merit-based system) and separating public service and political influence. Additionally, procedure of developing staff frequently be strengthened;

Fourth, Government strengthen safety, protection, and monitoring in border areas, especially having many gaps, to prevent crime and entry to country randomly;

Fifth, Government strengthen participatory protection through Local Government Authorities by involving citizens including restoring ten-cell system legally. This step will help identifying indicators of crime and taking proper steps in time. For instance, evidence identified existence of various houses in human residences used as camps for sheltering youth being prepared and provided with training for committing violence. However, protection systems were not able to identify regarding those camps;

Sixth, existence of solid system of management of opportunities provided to youth such as loans, employment, procurement and participation in Government projects to ensure they are used by observing law and procedures and no favoritism nor political pressures;

Seventh, Government review budget priorities and reduce unnecessary expenditures so more resources are directed in area of economic citizens empowerment; and

Eighth, Government take step of improving legal disaster management system by expanding scope of Disaster Management Act, Chapter 242 to include disasters resulting from events of breach of peace. Those improvements enable existence of communication system during disasters (close loop communication) involving all stakeholders (first responders) being at disasters like Tanzania People’s Defence Forces, Police Force, Fire and Rescue Force, health service providers, and citizens. Additionally, readiness exercises be done for all stakeholders (emergency response mechanism), this step will reduce impacts of disasters of that type when they occur.

Honorable President, long term recommendations include following:

First, Government restore procedure of all youth finishing form six participating in National Service training as mandatory condition to build them patriotism and ability to be self-reliant. Additionally, there be procedure of enabling JKT graduates self-employ by involving Private Sector; and

Second, Government design and implement strategy of special residences (barracks) for officers and rank and file of defense and security forces to avoid conflict of interest and protect their safety as recommended by Criminal Justice Commission.

Conclusion

Honorable President, I have mentioned some only of recommendations contained in Report; no doubt various stakeholders will get opportunity to read them deeply inside Report. Likewise, we expect, for day like three coming, to meet with journalists along with other stakeholders for broad discussions and clarification.

Despite difficulty of what happened October 29, we congratulate Honorable Dr. Samia Suluhu Hassan for forming this Commission, and trusting us to perform work having broad interests for our Nation.

We listened to cries of those who lost their loved ones, who were injured, and who lost property. We saw eyes of youth who were arrested asking with anxiety their future. We met with families which until today have not understood who killed their loved one and why.

But also on other side, we see Tanzania having side of courage, patriotism and wisdom. We listened to religious leaders praying for peace with real power. We saw Elders with respect providing words of wisdom. We got cooperation of citizens who came to provide evidence because they love their Nation. It is not normal thing for Commission like this to communicate closely and in one way or another with people approximately 63,603. We thank all.

Let me conclude by reiterating my thanks to you Honorable President for great trust for Commission and let me thank all participants for listening to me.

Thank you very much!