The Uruk-Hai were created by Saruman (as much as I hated how the film portrayed this).
Remember Ugluk was a Uruk, and Grishnakh was from Lugburz (Barad-Dur).
The following quote is from the Two Towers, page 436:
"We are the fighting Uruk-hai! We slew the great warrior. We took the prisoners. We are the servants of Saruman the Wise, the White Hand: the Hand that gives us man's-flesh to eat. We came out of Isengard, and led you here, and we shall lead you back by the way we choose. I am Ugluk. I have spoken."
I think it's pretty clear from that dialog that the Uruk-hai had to be created by Saruman.
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