The PPPUE Programme in Uganda lacked a unified and coherent vision and definition of what a pro-poor PPP is. Different actors involved had diverse views on what the vision and definition should be. Some interpreted pro-poor PPPs as a process to foster community consultation and participation. Others conceived of pro-poor PPPs as partnership arrangements between the public and community sectors, with no or very limited role to be played by private actors. From a conceptual point of view, there was also a limited understanding of the operational aspects needed to set up appropriate PPP arrangements. While some key actors were clear on the need for the poor to benefit, they were less clear on how to set up PPPs.
In Uganda there was also some uncertainty and ambiguity about what constitutes the 'private' sector in PPP arrangements. By 'private' it was often meant voluntary and community sector organizations. This influenced the overall approach to PPPs and the way PPP arrangements were implemented. Given the lack of a central direction and clear vision, stakeholders developed their own interpretation of what to implement and who to involve.
Pro-poor PPPs were also seen as a way of turning environmental problems into opportunities. This is one of the most innovative aspects and achievements of the Programme as a whole as it brought about a change in the overall mindset of stakeholders and decision makers alike and opened the way to the adoption of novel approaches such as user charges based on the 'ability to pay' principle.