MINISTRY OF FOREIGN AFFAIRS
DANIDA
DANISH EMBASSY BAMAKO
Concept Note
Transition to Country Programming in Mali, 2015-2016
March 2014
Contents
Introduction ...................................................................................................................................................................... 2
Strategic questions to guide the discussion.............................................................................................................. 2
Summary of conclusions regarding the envisaged support ...................................................................................... 2
Conclusion from preparatory analysis .............................................................................................................................. 2
Background ............................................................................................................................................................... 2
Scenario for 2015-2016 ............................................................................................................................................. 3
Lessons learnt and guiding principles ....................................................................................................................... 3
Country level context ................................................................................................................................................ 4
Application of the Human Rights Based Approach ................................................................................................... 4
Strategic considerations and justification of country programme ................................................................................... 5
Thematic programmes ...................................................................................................................................................... 7
Stability, Human Rights and Governance.................................................................................................................. 7
Budget Support (Development Contract) .................................................................................................................. 8
Water and Sanitation .............................................................................................................................................. 10
Indicative disbursement budget in DKK million ...................................................................................................... 11
Preliminary Results framework and monitoring mechanism ......................................................................................... 11
Preliminary assessment of risk ....................................................................................................................................... 11
Annexes: .......................................................................................................................................................................... 13
Annex I. DRAFT Process Action Plan (PAP).............................................................................................................. 13
Annex II. Preliminary assessment according to the five budget principles ............................................................ 14
Annex III. Gender Equality Rolling Plan (GERP) ....................................................................................................... 22
Annex IV. Climate change and environmental screening note ............................................................................... 26
Annex V. Preliminary Results Framework ............................................................................................................... 33
Annex VI. Risk Management Matrix........................................................................................................................ 39
Annex VII. Indicative disbursement budget at development engagement level .................................................... 53
Annex VIII. Summary of Danish activities in Mali ................................................................................................... 54
1
Introduction
Strategic questions to guide the discussion
1. Does the Programme Committee agree to the embassy’s assessment that the situation in Mali
will continue to be fragile over the coming years?
2. Does the Programme Committee agree to the proposed focus on public participation as
important in applying the Human Rights Based Approach in Mali?
3. Does the Programme Committee accept the guiding principles proposed?
Summary of conclusions regarding the envisaged support
A two-year transition programme (2015-2016), with a budget of DKK 215 millions, has the overall
objective of contributing to reduced fragility and poverty, and will serve to continue already on-going
activities while in parallel ensuring the time and resources needed to allow a thorough planning process
for the future country programme, to be initiated in 2017 in what remains a very fluid context. The
programme builds on lessons learnt during the multidimensional crisis of 2012-2013, which have
already been translated into an existing country programme that has proved to be flexible, shock
resilient and ultimately highly relevant. Despite all the contextual difficulties, 2013 was a year of
significantly increased performance for Denmark in Mali, and thereby created a valuable platform for
enhanced policy dialogue. Denmark’s contribution will in the coming two years encompass a mix of
assistance that seeks to address the root causes of the crisis. This will be done through support to good
governance, stabilisation and reconciliation, support to national poverty reduction priorities through
transitional budget support mechanisms and support to improve water and sanitation provision, as well
as analytical work in preparation of the future country programme. As the support is essentially a
continuation of on-going activities, a shortened and lean planning process is foreseen. The
aforementioned contributions will be supplemented by continued political dialogue, an already initiated
private sector programme, a regional Sahel Programme seeking to address transboundary conflict
drivers in Mali, Niger and Burkina Faso, humanitarian assistance and a contribution to enhance security
through financial as well as capacity and capability support to MINUSMA, and finally a culture
programme focusing on creative entrepreneurship. As such, Denmark will apply a comprehensive
approach making use of all relevant foreign policy tools in our response to the political, developmental
and security challenges in Mali.
As of early 2014, despite many positive developments, Mali continues to be seen as the epicenter of the
Sahel crisis, and the need to address the root causes of this multi-dimensional crisis remains as pertinent
as ever, in Mali as well as in the wider Sahel.
Conclusion from preparatory analysis
Background
Due to the political and security crisis in Mali in 2012 and 2013, planning of the transition to country
programming was on hold until late 2013 where notably the deployment of a UN peacekeeping mission
(MINUSMA) and the successful presidential and parliamentary elections provided the basis for reviving
the process.
2
When Mali was selected as a new partner country in 2006, great importance was attached to the stability
and democratic development of the country. While events in 2012 and 2013 changed our understanding
of the framework conditions, the embassy had already in June 2011 pointed to the lack of due diligence
in relation to preparation of elections, the situation in northern Mali and the increasing religious
influence on government policies as potential drivers of instability. These factors all played a role in the
loss of territorial control in northern Mali and subsequent the coup in March 2012.
In the wake of the unconstitutional seizure of power in March 2012, assistance channeled through
government agencies was suspended. The embassy took the opportunity to review the program
portfolio in order to strengthen focus on results and identify more effective partners as well as new
activities relevant to the changed context and based on the Human Rights Based Approach. In addition,
there was also a need to consider why the momentum of parts of the country programme was slower
than desired. It was found that there was a general need to expand the partner group and look at new
cooperation models. The internal review was carried out by the embassy and was subjected to an
independent external validation, which in August 2012 supported the proposed restructuring of the
country programme and found it very relevant in the new context in Mali.
The external assessment also stressed the need for a country programme, which in the future took
better into account of the many interlinked causes of the crisis in Mali, including by a comprehensive
approach linking diplomacy, defense and development efforts. With the current broad engagement in
Mali comprising a conflict-sensitive and rights based bilateral programme, the launching of the Sahel
initiative and the military contribution to both the French Opération Serval (January-May 2013) and
MINUSMA combined with extensive political dialogue, including at the highest level, this
recommendation has to a large extent been realised.
The re-orientation of the country programme has taken into consideration the Busan Declaration’s
principles of ownership, focus on results, partnership and transparency. The priorities of the
programme remain consistent with Mali's Poverty Reduction Strategy and the Government’s Action
Plan (PAG), while the partnership structure has been expanded to include several non-governmental
partners that can also help to spread ownership of the development agenda in Mali. The new
orientation has the full support of former partners who recognize the need for more effective
management of development funds.
Scenario for 2015-2016
Mali will likely remain fragile during 2015-2016 and possibly beyond. While the French (Danishsupported) military intervention, and the introduction of MINUSMA, has stabilized the situation, there
is a risk of insecurity resurging, before the foundations for lasting and sustainable peace have been
created.
Lessons learnt and guiding principles
The major lessons learnt during the crisis of 2012-2013, and previously during the first generation
country programme, have guided the re-orientation of the programme and will continue to be taken
into account during planning and formulation of the Transition Programme. Lessons learnt have been
translated into the following context-specific guiding principles:
3
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Design interventions that deliver tangible results and focus more on outputs than processes,
especially at local level;
Work on improving the social contract by promoting inclusive and conflict-sensitive development;
Build strong partnerships at all levels of society;
Contribute to restoring security;
Engage in justice at all levels, including transitional justice;
Promote broad public participation in all aspects of development, public administration and
politics;
Be open to change. Change modalities, partners, and strategic direction etc. if the context analysis
merits it.
The guiding principles are common across thematic programmes and thus also serve to enhance
synergies between the different elements of the country programme.
Country level context
The broad objectives for the Danish-Malian partnership will be outlined as part of the formulation of
the country policy paper, to be initiated later in 2014, the strategic framework for Danish engagement in
Mali throughout 2015-2016 recognises the generally fragile situation, which underlines the continued
need to address root causes of the crisis, and the inter-dependency between development and security,
which calls for a comprehensive response. On this backdrop, the overall, inter-linked, objectives of
Denmark’s partnership with Mali the coming years are to contribute to increased stability and
poverty reduction.
During 2015 and 2016, Denmark will pursue the fulfillment of these objectives by producing concrete
results, in cooperation with the Government of Mali, MINUSMA, civil society groups and other
development partners, within the following Thematic Programmes:
 Stability, Human Rights and Governance
 Budget support (Development Contract)
 Water and Sanitation
These contributions will be supplemented by continued political dialogue, an already approved and ongoing private sector programme, a regional Sahel Programme seeking to address transboundary conflict
drivers in Mali, Niger and Burkina Faso, humanitarian assistance and a contribution to enhance security
through financial as well as capacity and capability support to MINUSMA and other on-going activities.
All engagements are aligned with the objectives and mandates of implementing organisations, and the
embassy participates actively in relevant donor coordination mechanisms as well as in preparations for
EU joint programming. During the duration of the Transition Programme it is foreseen that EU joint
programming will move forward in a way that allows Denmark and other EU Member States to identify
how the Danish country programme can best place itself within the overall efforts of the European
community.
Application of the Human Rights Based Approach
As a consequence of the lessons learnt during 2012-2013, the wider country programme, including the
Transition Programme, seeks to work directly with duty bearers as well as right holders according to
4
how the principles of the Human Rights Based Approach present themselves in the Malian context,
e.g.:
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By supporting the establishment of concrete links between duty bearers and right holders that
encourage participation, accountability, and transparency;
By promoting political and economic participation of women, who have important un-reaped
contributions to make to development efforts in Mali, which if un-realised will continue to hold
back the country;
By aiming at employment generation and equitable economic growth for the benefit of the youth,
who each year flock the labour market and whose under- and/or unemployment constitute a
social risk;
By directly supporting recovery in Northern Mali, where minority populations are struggling to
restore assets lost during the conflict;
By contributing to provision of social services through the EU State Building Contract and
addressing the humanitarian emergency;
By supporting the peace process.
A comprehensive Human Rights Based Approach Screening Note will be developed throughout 20152016. It will among other things build on a recently concluded Drivers of Change study 1 commissioned
by the embassy.
Strategic considerations and justification of country programme
Situated in the heart of the Sahel, Mali is a vast, semi-arid, landlocked and sparsely populated country. It
remains one of the world's poorest countries and least developed countries (182nd of 187 countries on
the UN Human Development Index in 2013). 80 % of the population earn their living by farming,
usually small family farms that produce for their own consumption with simple tools.
From 1991 to the coup and suspension of the constitution of March 2012, Mali was considered a
beacon of democracy and political stability in West Africa. Following two peaceful democratic transfers
of power during the past 20 years, the country was on track to organise a presidential election when a
multi-dimensional crisis, sparked by a rebellion in the northern regions and a coup d’état, rapidly
unfolded. The crisis revealed that Mali’s progress in building a democratic political system had not
translated into an effective and accountable governance system. A complex crisis on three fronts conflict and insecurity resulting in loss of territorial control in the north, institutional and political
turmoil in the south, and humanitarian and food insecurity across the country – surprisingly quickly
eroded the base of Mali’s economy and society. While the coup d’état and the fall into rebel hands of
northern Mali resulted in unprecedented instability, Mali had experienced conflict on a regular basis
since independence in 1960. The first Tuareg rebellion took place in 1964 and since then, rebellions
have been cyclical and recurrent. The conflicts have primarily been caused by long-standing problems in
Mali’s governance. E.g. general disinterest in politics and inadequate participation are seen by many as
one of the consequences of years of consensus seeking politics and explain why citizens are quick at
rejecting public institutions and politicians. Historically, corruption also contributed to corroding
1
Supporting positive social, political, cultural and economic change in Mali. International Alert and Mouvement Malivaleurs,
March 2014
5
political, economic and social life in Mali. But compared to previous rebellions, the conflict of 2012 was
compounded by a combination of regional events linked to the revolution in Libya and the return to
Mali of heavily armed fighters, as well as the presence of criminal networks and terrorist groups in the
northern regions and regional drug trafficking.
By 2013, the liberation of the northern regions, first with assistance from France, then followed by
African and international forces, as well as the adoption by the Malian authorities of a transition
roadmap to restore democracy and peace, opened the door for restoration of constitutional order.
Following a direct request from the Malian transitional president, the UN Security Council authorised
MINUSMA, United Nations Multidimensional Stabilization Force in Mali. The objective of the mission
is to stabilize Mali, focusing on the protection of civilians, monitoring of human rights and ensuring
humanitarian access. In addition, the mission has a mandate to engage in the political process, including
taking the lead in peace negotiations between the Malian government and the armed groups.
Presidential elections in July and August 2013 and the legislative elections in November and December
same year had historically high turnouts and all observers accepted them as free and fair. Malians
broadly expressed their overwhelming desire for positive change through the ballot box. The new
President Ibrahim Boubacar Keita (IBK) has the strongest possible public mandate and has taken initial
steps in a process of national reconciliation and dialogue and initiatives aiming at countering years of
impunity for malpractices, corruption and human rights abuses.
Violence and insecurity are to a wide extend limited to the northern regions of Timbuktu, Gao and
Kidal and improvements in security are only slowly reaching these regions. A formal peace agreement
between the government and the armed groups has yet to be worked out. While drivers of the conflict
in Northern Mali are linked to long-standing problems in Mali’s governance and social structures, the
causes and consequences of the conflict also go well beyond the country’s borders, extending to the
whole Sahel-Sahara area and as such they require responses that span the Sahel and neighbouring
countries, including the Maghreb. Efforts to find a lasting solution to the security crisis in northern
Mali, including a long-term peace agreement that will ensure stability in the years ahead, will likely
continue to dominate the political agenda in the country and the relationship between Mali and its
international partners, including both neighboring countries and donors like Denmark in the coming
years.
Between 2001 and 2010, the poverty rate in Mali declined from 55.6 to 43.6 percent. However, due to
high fertility rates (average of 6.7 children per woman), decline in the poverty rate was not sufficient to
significantly reduce the number of the poor. Between 2001 and 2010 the number of poor increased
from about 5.7 to 6.4 million.2
Poverty rates in Mali vary according to geography. While all regions recorded declines in poverty rates
between 2001 and 2010, some regions still stand out as much poorer than others. Interestingly, the
Northern regions of Mali (Timbuktu-Gao-Kidal) were among the richest regions in the country in 2010,
after the capital city Bamako, even if, over time, poverty increased, as it also did in Sikasso, Mopti and
Ségou regions. Alternative poverty measures (based on asset ownership – fridges, cars, etc. – for
instance, or based on nutrition outcomes), however, portray a different geography of poverty. Based on
2
World Bank Interim Strategy Note, May 2013. The poverty rate is determined as people living on less than USD 1.25 a day.
6
asset ownership, the Northern regions appear to be the poorest in Mali. Based on chronic malnutrition
indicators, Northern regions, along with Kayes, Koulikouro, Mopti and Ségou, do not significantly
differ from the Malian average. Only Bamako and Sikasso look significantly richer and poorer,
respectively.
Since 2010, poverty has likely increased as a result of the 2011 drought and the political crisis of 20122013. The poverty rate is roughly estimated3 to have increased from 43.6 percent in 2010 to 46.1
percent of the population by end 2012, equalling 7.2 million poor. In the South, the poverty rate is
estimated to be 46.2 percent, including displaced populations. In the North, the poverty rate is
estimated to be 44.3 percent, including refugees.4
Gender differences are pervasive in key rights, social and economic areas. In particular, in education
and health; in labour force participation and economic activity; in legal capacity, status, and rights; in
access to property and other assets; in the experience of violence, conflict, and insecurity; in political
participation and decision-making; and in family responsibilities and unpaid care work. The prevailing
political instability is likely to worsen the gender situation in Mali, due to a combination of higher
exposure of women to the direct consequences of violence and exclusion, and reduced government
ability to provide basic services.
While the elections of 2013 brought immediate progress and new hope that Mali could return to a
certain equilibrium, political inertia currently prevents important progress in relation to a peace
agreement with rebel groups in the north. There is a real risk that slow progress in the peace
negotiations may contribute to increased instability, mainly in the north, but possibly also in the south
as well driven by other factors, i.e. increased socio-economic pressure.
Central power has a long history in Mali, deeply rooted in the country’s rich imperial past. In spite of all
the obvious fragilities, Mali should not be considered as an ungoverned space or a case of state failure.
Even at the height of insecurity and conflict, the bureaucracy largely remained intact, people simply got
on with their lives, and very few people were wounded or died. In this context, a continuation of the
current country programme, combined with other efforts already described, is deemed to be an
efficient and effective contribution by Denmark to increase stability and reduce poverty over the
coming two years. In addition, the previously mentioned Drivers of Change study confirms the
relevance of the current Danish country programme to ordinary Malians across age, occupation,
gender and geography.
Thematic programmes
Stability, Human Rights and Governance
The thematic programme for good governance in Mali was originally initiated in 2009. The programme
was intended to strengthen the governance in Mali with a specific focus on countering corruption and
organised crime, strengthening the justice sector, enhancing the influence of the National Assembly and
strengthening the capacity of civil society. In 2011 a review of the programme was conducted, which
concluded, that the programme remained highly relevant, but that it was important to have realistic
expectations for the results in the short term, since the timeframe for creating sustainable results for
good governance averaged 15 years.
3
4
World Bank calculations.
Idem
7
One of the consequences of the crisis in 2012-2013 was a dramatic increase in consideration of
governance related challenges and consequently the original programme was re-oriented towards
addressing some of the root causes of the crisis. This also provided an opportunity to strengthen the
human rights based approach, and generally adapting to a renewed understanding of the context.
During 2015-2016 the governance programme will be expanded and it will aim at contributing to
enhanced stability through support to broad public participation in political processes, increased
respect for human rights and strengthened social cohesion. This will be pursued in cooperation
with five partners as outlined briefly below.
The thematic programme will work towards broadening public participation in politics and change
processes, notably by women and youth, at all levels. It will continue an effort aimed at enhancing the
control and oversight capacity of the Malian parliament – the Assemblée Nationale - as well as work on
improving the participation of women in the political sphere, including providing technical assistance to
women already elected to public offices. The objectives will be realised through continued cooperation
with National Democratic Institute and a new consortium of International Alert and Malian civil society
forces. The consortium shall strengthen civil society through support to carefully selected local
organisations, who are committed agents of change within areas such as youth participation,
independent media and religious dialogue and other areas in line with the vision of the Danish Country
Programme.
The thematic programme also aims at promoting rights and access to justice by fostering respect for,
awareness and realisation of human rights and justice among duty bearers as well as right holders. The
Danish Institute for Human Rights will cooperate closely with the both National Human Rights
Commission in order to promote its independence according to the Paris Principles, and the human
rights NGO Deme So, who trains paralegals in order to promote access to justice and awareness about
rights in all regions of Mali. Finally, the country wide UNDP Rule of Law programme, which aims at
supporting implementation of justice sector reform, including capacity enforcement of the ministry of
justice, as well as construction and rehabilitation of judicial infrastructure will be supported.
Lastly, it will contribute to conflict prevention by strengthening social cohesion through a national
grassroots based participatory dialogue process on identity and governance questions. This will be
carried out in cooperation with the European Union by continuing support to the recognised
international peacebuilding organisation Interpeace and their local Malian partner organisation. In
parallel, the embassy will continue supporting the Sahel programme of the Centre for Humanitarian
Dialogue, which is providing technical assistance to the Government and MINUSMA in the peace
process through the organisation’s strong networks in the northern regions with a focus on raising the
voices of the unarmed stakeholders.
Budget Support (Development Contract)
After the military coup in March 2012, Denmark and other development partners, suspended
development aid channeled directly through state mechanisms. Mali was severely affected by the
suspension, and the national budget was reduced by approximately a third. The government responded
responsibly with fiscal tightening and the adoption of a Road Map for Restoration of Democracy and
Peace. The adoption of the Road Map meant that most donors, among them Denmark, gradually
resumed direct aid to state-run programmes, notably budget support. Two new mechanisms were put in
8
place to advance delivery of budget support and promote political dialogue as well as joint efforts
aiming at avoiding state collapse, i.e. the EU State Building Contract and the UNDP Stabilisation
Fund.
The primary temporary mechanism for budget support is the EU Statebuilding Contract. The current
EU engagement is EUR 220 million supplemented by a Danish contribution of DKK 50 million (20132014) conditioned on the satisfactory implementation of the above mentioned road map, improvements
in financial management and acceptable progress on a number of economic and social indicators,
including also indicators that point to political stabilisation, e.g. return of authorities in the northern
regions. The assistance is accompanied by political dialogue aimed at promoting reform and political
progress in relation to a peace agreement. France, the World Bank and the African Development Bank
provide bilateral budget support outside of the framework of the Statebuilding Contract, but close
coordination and alignment of positions is ensured through a well-functioning donor coordination
mechanism.
The second temporary budget support mechanism is the UNDP Stabilisation Fund, which
complements the EU's State-building contract by allowing for earmarked contributions to specific lines
in the Malian national budget. The purpose of the fund is to mitigate the temporary effects of the
socio-economic crisis by allowing the state to expand its funding of certain budget lines until general
budget support can be resumed. Denmark supports the fund with DKK 30 million in 2013-2014, while
other donors (Netherlands, Spain) have provided USD 39 million in support of the fund’s objectives
primarily in the social sectors like health and education. The Danish contribution to the Stabilisation
Fund focuses on a few main budget lines within e.g. public works and return of administration to
the north as well as general government administration, including, for example conduct of elections,
decentralisation and the national dialogue process.
The two mechanisms are currently executing activities and fulfilling the objectives according to the
plans laid out jointly by donors and the Malian administration. The results will appear in the results
framework matrix, which will be further developed as part of the planning process.
Despite the positive political progress during the last six months, the situation in general remains fragile.
It is therefore foreseen to continue providing budget support through transitional mechanisms
encompassing close monitoring and political dialogue, e.g. the State Building Contract and the
Stabilisation Fund, during 2015-2016, with the objective of supporting implementation of the national
poverty reduction strategy (CSCRP). This will enable the Malian state to provide social services
throughout the territory, increasing civilian state presence in northern Mali, and generally conduct
activities that are in line with the overall vision of the Danish country programme thereby contributing
to the dual purposes of stability and poverty reduction.
In parallel, the embassy will continue explorative activities already on-going with three local NGOs in
the field of social accountability, which aim at strengthening the social contract. The perspective
will be to launch a bigger effort building on experiences gathered during 2013-2016, when the country
programme will be initiated in 2017.
Finally, the embassy will look into possible alternative delivery mechanisms for budget support and
their performance as part of the preparation of the country programme.
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Water and Sanitation
The water and sanitation programme has been implemented since 2010 in the three regions of Mopti,
Sikasso and Koulikoro and has been extended to include 2015. The general objective is to contribute to
the reduction of poverty by ensuring equitable access to water supply and sanitation. Continued
investment is required to meet targets for water supply and sanitation. Access to safe drinking water in
Mali is estimated at 63,6 percent of the population (with large disparities between urban and rural
areas). Sanitation is lagging with less than one third of households having access to improved sanitation
services in rural areas, and 45 percent in urban areas. In order to achieve the MDGs, Mali needs to
increase access to safe drinking water and improved sanitation services for, respectively, 420,000 and
710,000 additional people annually.
The programme currently contributes to strengthening the management of national water
resources and ensures access to clean drinking water to almost 500,000 people in rural areas and in
four major cities. At the same time, the programme promotes better sanitation. A public and school
toilet program, which includes hygiene education in school curricula, is carried out in cooperation with
the municipalities and the ministries of health and education. The local sanitation department’s three
regional offices are trained in supporting municipalities in better management of public water and
sanitation infrastructure. 905 villages will see an expansion in sanitation facilities at household level,
while 350 schools will see improved sanitation facilities for boys as well as girls.
The programme has three implementing partners. Rural and urban water supply is implemented
through parastatal organisations, SOMAPEP and AGETIER, which have an independent legal status
and financial autonomy allowing them to execute quite flexibly compared to the more rigid procedures
of state entities, as well as considerable experience in the implementation of large scale infrastructure
projects. The sanitation programme is implemented through UNICEF.
The focus in 2016 will be on consolidating the results of the water and sanitation programme, while still
delivering improvements of water distribution networks in two cities (yet to be identified) aiming at
providing access to water for approximately 200,000 additional people. With regard to the rural water
supply, it is currently estimated that roughly 20,000 persons could benefit from new or rehabilitated
structures, while the hygiene and sanitation component will target approximately 30 schools.
During the transition period, a number of studies will be carried out in order to determine how broader
aspects of sustainable natural resources management linked in particular to climate change can be
incorporated in the future programme, notably the analysis and exploration of how governance of
natural resources, in particular sustainable management of land and water, could best serve to improve
climate change adaptation. This would also include aspects of renewable energy. Exploration will
already begin during 2014-2015 and should possibly be supplemented in 2016 in order to feed into the
country programme document.
10
Indicative disbursement budget in DKK million
2015
2016
Stability, Human Rights and Governance
32,25
33,75
Budget Support (Development Contract)
52,00
52,00
-
45,00
84,25
130,75
Water and Sanitation
Total
Preliminary Results framework and monitoring mechanism
A preliminary results framework for the Transition phase is included in annex IV. In addition the
embassy is currently working on a country level results framework, which will be based on national
monitoring plans.
Programme management and administration aims at being in lean by not involving stakeholders with
limited or only nominal interest in activities. In the water and sanitation thematic programme there are
steering committees at the engagement level involving local as well as central authorities. Joint field
missions are realised regularly. The Statebuilding contract is managed in cooperation with the Ministry
of Finance, and Denmark has aligned itself completely with the EU Delegation’s management set-up.
The UNDP Stabilisation Fund is managed by UNDP and the junior minister for Budget Execution
with the involvement of all contributing agencies as well as the relevant line ministries. There is
currently no overall steering mechanism for the governance programme. Dialogue on the progress and
achievements of the programme mainly takes place with the minister of Foreign Affairs as part of the
political dialogue.
Preliminary assessment of risk
Continuously working with risks assessments has become completely integrated into all aspects of the
embassy’s engagement in Mali since the beginning of 2012. Some of this work has been captured in a
draft risk matrix, which will be further elaborated during the planning process.
The matrix shows that there are substantial risks at all levels related to the development engagement in
Mali. There are several serious risks related to a context where the security situation is delicate, risks
related to the role and functioning of the state and the precarious economy as well as risks of religious
radicalisation.
However, the most important risk in the current Malian context, and which remain uncaptured by the
risk assessment, is the risk of non-engagement. Throughout 2012-2013, the engagement of the
international community has contributed to stabilizing the security situation, assisting the state in
playing its role, and stemming violent extremism, which was on the march towards Bamako less than 18
months ago.
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At programmatic and institutional levels, the risk assessment also confirms many substantial known
risks. Considering past risks, these are considered to be mitigable, which has been confirmed during the
last two year, where substantial positive results have been achieved even during very difficult times.
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Annexes:
Annex I. DRAFT Process Action Plan (PAP)
Time line
Programme
October 2013
Planning of design and formulation
Process action plan
Analysis started
Input from under- secretary regarding
planning and programming of bridging phase
according to new guidelines for country
programming
Bridging programme budget is inserted into
the Finance Act 2015.
Public consultation of Concept note.
Meeting in Danida Programme Committee.
October 2013
February 2014
st
April 1 2014
th
April 24 2014
April 2014
th
August 4 2014
Development of bridging programme
Document and Development engagement
Documents
ToR and all draft documentation for
programme forwarded to TAS
th
Appraisal mission
rd
Appraisal process finalized
August 25 th
September 5 2014
October 3 2014
October 20
th
2014
November 2014
December 2014
2015-ongoing
After agreement(s)
are signed
Programme Document with appropriation
cover sheet forwarded to KVA
Presentation to the Danida External Grant
Committee
The minister approves the programme
Signing of legally binding agreements
(commitments) with partner(s)
Book commitment in MFA’s financial systems
within budgeted quarter.
Documentation
Concept note with annexes
Concept note and annexes.
List of received responses from the
consultation and summery conclusions from
Danida Programme Committee.
ToR and draft Programme Document incl.
Development engagement Documents and
associated partner documentation
Appraisal Report, recommendations
summary
Programme Document, annexes and
Development engagement Documents
Resumé from Danida External Grant
Committee
Government-to-government agreement(s)
and/or other legally binding agreements
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Annex II. Preliminary assessment according to the five budget principles
1.
Criterion
Fundamental values
Mali's constitution of 1992 is enshrined in the UN
Declaration of Human Rights and the African Charter on
Human Rights. The Constitution guarantees civil, political,
economic, social and cultural rights. Mali has ratified most
of the regional and international conventions on human
rights. However, there are significant challenges in
enforcement of fundamental rights, in particular women's
rights. Until the beginning of 2012, violations of rights were
mainly understood as a result of poverty, culture and
tradition and lack of capacity rather than ‘official’ policy.
Comments
Within its limited means, the
Government of Mali is seen to
be acting in accordance with
fundamental values. However,
the good intentions expressed at
political level need to be
translated into action, which has
proven difficult in Mali.
The Malian justice system has
opened
independent
In March 2012, the UN Secretary-General and the High investigations
and
legal
Commissioner for Human Rights expressed concern about proceedings on the cases of
the human rights and the humanitarian situation in Mali, in disappearances.
particular in the north of the country. They noted alarming
reports of serious human rights abuses, allegedly Mali has also officially called on
perpetrated by the various armed groups in control of the ICC to investigate crimes
northern Mali. In March 2013 the United Nations Human committed during the crisis in
Rights Council established a one-year mandate for an 2012 and 2013. There are also
independent expert on the situation of human rights in several Malian CSO’s, with the
Mali. In March 2013, the UN Security Council adopted backing of Freedom House and
resolution 2100 and thereby authorised the United Nations the Danish Institute for Human
Multidimensional Integrated Stabilisation Mission in Mali Rights among others that are
(MINUSMA). The mandate of MINUSMA includes currently mapping out human
promotion and protection of human rights, which translates rights abuses. The government
into monitoring, helping investigate and reporting to the also organized a process for
Security Council on any abuses or violations of human reconciliation and dialogue with
rights or violations of international humanitarian law the aim of addressing abuses
committed throughout Mali and to contribute to efforts to including a focus on ending
prevent such violations and abuses. It includes the full years of impunity.
deployment of MINUSMA human rights observers
throughout the country. Special emphasis is put on The appointment of the
violations and abuses committed against children as well as independent rapporteur and
violations committed against women including all forms of authorisation of MINUSMA
sexual violence in armed conflict. MINUSMA is also tasked contributes to ensuring that
with assisting the Malian authorities in their efforts to human rights questions remain
promote and protect human rights.
high on the agenda in Mali.
In July 2012, the Security Council called upon all parties in In establishing a Truth, Justice
northern Mali to cease all abuses of human rights and and
Reconciliation
violations of international humanitarian law. In July and Commission, Mali has set out
14
September 2012, the United Nations Human Rights
Council condemned the excesses and abuses committed in
Mali, particularly in the north of the country, by rebels,
terrorist groups, other organized transnational crime
networks amongst others, and called for an immediate halt
to the abuses and all human rights violations and acts of
violence and for strict respect for all human rights and
fundamental freedoms.
During the occupation of the northern regions by armed
groups, including terrorists, many breaches of the rights of
women and children were identified. Children have,
although to a limited extent, been conscripted by armed
groups and strict application of Sharia law has significantly
reduced the rights of women (restriction in the way of
clothing, restriction in movement, restriction in the exercise
of economic activity etc.). Health centers and hospitals were
looted and the schools were closed, which led to a general
deterioration in the application of rights to education and
health. The situation in the major northern cities has been
stabilized by the French intervention and the presence of
MINUSMA and schools and clinics has been reopened
there. Access to these services remains lacking outside of
major towns where the security situation is still challenging.
Serious human rights violations in the southern Mali took
place around the military barracks in Kati in April and May
of 2012 and September and October of 2013, where several
persons disappeared. Bodies have since been located in the
area and at different locations in Bamako. In Bamako the
coup triggered violations by the security services
(intelligence, police and military) who regularly intimidated
journalists, politicians and generally critical voices as well as
settled grievances by arbitrary arrests and torture. With the
return of constitutional order towards the end of 2013
civilian control of the security forces has been re-installed.
on the path to transitional
justice by seeking to obtain
redress, with reparation and
guarantees of non-recurrence,
for the victims of the violations
of
human
rights
and
international humanitarian law
committed in the north of the
country since independence.
The major challenges, which
Mali must address in the
coming
years,
are
the
consolidation of security in the
north and the strengthening of
constitutional order, which the
country restored in 2013
through
presidential
and
legislative elections. Mali must
also reinforce the rule of law
and the fight against impunity
and make major efforts to
reform the judicial system and
the security sector. A frank
dialogue with the armed groups,
which agreed to support the
Malian State and recognized its
sovereignty, secular nature and
the indivisibility of its territory,
as well as with the communities
in northern Mali, is the only way
of promoting national unity and
creating favourable conditions
for an effective introduction of
state services throughout the
country.
Gender differences are pervasive in key rights and social
and economic areas, in particular in education and health; in
labour force participation and economic activity; in legal
capacity, status, and rights; in access to property and other
assets; in the experience of violence, conflict, and insecurity;
in political participation and decision-making; and in family
responsibilities and unpaid care work. The prevailing
political instability is likely to worsen the gender situation in
Mali, due to a combination of higher exposure of women to
the direct consequences of violence and exclusion, and
15
reduced government ability to provide basic services.
The judicial system has only limited capacity and resources
adding to the impression of impunity. This includes, but is
not limited to, the capacity to deal with the diversity and
complexity of crimes committed in northern Mali, which
include international crimes such as crimes against
humanity, terrorism, abductions and drug trafficking.
Generally speaking, the judicial system faces a number of
challenges that limit its ability to function. These include
inadequate financial and material resources, the insufficient
independence of the judiciary, corruption, high legal costs,
inadequate training and the lack of human rights training.
2.
Homosexuality is not illegal in Mali, but homosexual people
are highly stigmatised and often forced by circumstances to
live in heterosexual marriages.
Solid national policies and plans for poverty reduction, Annual joint sector reviews
good governance and sustainable development.
contribute to ensuring that
development
plans
are
Mali is emerging from the worst security and political crisis monitored.
However,
in its recent history. Progress in political normalization to implementation
capacity
date has been encouraging: a successful presidential remains low, especially at local
election, formation of the new government and the level, and often the plans and
legislative elections have demonstrated Mali’s commitment strategies adopted centrally are
to its democratic tradition. The economy is on the mend as not translated into action at
donor assistance and business confidence are gradually local level. This is captured
returning. But considerable challenges remain. On the poorly by annual reviews.
political front, the government needs to consolidate peace
and promote national reconciliation after the traumatic An increased number of
events of 2012-2013. At the same time, it is striving to thematic working groups now
support a nascent economic recovery, maintain bring together government and
macroeconomic and financial stability, and restart the donor representatives thereby
facilitating the ongoing dialogue
economic reform agenda.
on implementation of policies.
The Programme d’actions du gouvernement 2013–2018 (PAG)
identifies the Malian government’s priority areas for
development: (i) setting up strong, credible institutions; (ii)
restoring the security of people and goods throughout the
territory; (iii) implementing an active policy of national
reconciliation; (iv) reconstructing Malian schools; (v)
constructing an emerging economy; (vi) implementing an
active policy of social development. It is a strong expression
of the government’s will to support positive change and
already serves to guide political dialogue between donors
and the government.
Weaknesses in the quality of the
CSCRP could be linked to
difficulties in monitoring its
implementation.
16
The PAG also places itself inside the larger framework of
the Strategic Framework for Growth and Reduction of Poverty 20122017 (CSCRP), which is the common reference in the
formulation and implementation of economic and social
policies. It is a coherent framework, which brings together
all sector policies and strategies and identifies the financial
means to cover needs. The CSCRP relates directly to the
Millennium Development Goals and is the result of
extensive consultation between government, local
government officials, civil society, the private sector and
donors in Mali. The strategic objectives of the CSCRP are:
(i) building a transformed, regionally integrated and global
trade economy; (ii) improving the social wellbeing of the
population and (iii) consolidating Mali as a stable, wellgoverned and safe country, where the entire population
lives in peace. A process is under way to develop a joint
country assistance framework (SCAP II) based on the
CSCRP.
The World Bank ‘Ease of Doing Business’ index ranks Mali
as number 155 out of 188. The four major challenges here
is the limited access to finance, corruption, inadequate
infrastructure and inefficient government bureaucracy. The
authorities has vowed to address these challenges by
mobilizing domestic resources while streamlining tax policy
and administration, investing more in infrastructure and
education, improving financial sector stability and
development, restoring the financial sustainability of the
electricity sector, and addressing corruption.
17
3. Stable macro-economic framework.
Following the suspension of official development assistance
in 2012 the state budget was cut by about a third. Faced
with this constraint, the government took adequate fiscal
measures by freezing investment and lowering operating
funds to only include priority expenditures (salaries, social,
agricultural campaign, army and other security forces) for
the operation of the administration to a minimum. In
January 2013 the IMF approved an economically crucial
new lending programme for Mali. IMF undertook a followup mission in Mali in March 2014 which concluded that
Mali’s performance under the economic program supported
by the IMF is on track, with the exception of tax revenue,
which, in 2013, was 5 percent lower than programmed. The
tax revenue underperformance is explained in part by lower
gold prices and weaknesses in tax administration. The
mission notes that the revenue shortfall in 2013 was
compensated by an under-execution of the budget. Due to
this prudent policy the fiscal balance targets for 2013 were
met. Public financial management reforms are on track. The
mission also welcomed the steps that the government had
taken to strengthen management at the tax administration
and limit tax exemptions.
The latest analysis of debt sustainability, based on the IMF
Debt Sustainability Analysis, concludes that the risk of debt
distress remains moderate (January 2013). This analysis also
confirms that the debt sustainability remains very sensitive
to the price and extraction of gold.
4.
In support of maintaining a
stable
macro-economic
framework
allowing
implementation of the national
policies for poverty reduction,
IMF in their country assessment
from December 2013 offers the
following recommendations.
 Implement an effective
fiscal framework in 2014.
Ensure
effective
deployment of donor aid
toward priority spending.
To help the economy’s
recovery, clear existing
domestic arrears and keep
the recourse to domestic
borrowing to a minimum.
Keep foreign borrowing in
line with debt sustainability.
 Step up public financial
management
reforms.
Increase tax revenues by 0.5
percent of GDP a year by
enforcing tax compliance,
broadening the tax base and
streamlining
tax
administration; strengthen
treasury management and
internal control to avoid
emergence of new arrears.
 Accelerate reforms to
Mali’s economy is undiversified, and relies heavily on gold
and cotton exports for revenue at state level, and on
agriculture for sustenance. Mali's future export performance
improve
business
depends crucially on a diversification from gold and cotton.
environment. Tackle weak
A decrease in trading terms on the international market for
governance;
shore
up
these two main commodities would significantly limit
financial sector stability and
Malian state revenues. A large part of Mali's population is
promote its development;
dependent on agricultural production either for food
and reform electricity and
security or income. The population employed in the
petroleum product pricing
agricultural sector are at a higher risk of poverty than the
to protect the government
average. Cotton, a major source of income, has seen
budget and restore the
increasing and elevated prices in recent years, which are at
electricity
company’s
risk of decreasing. Furthermore, longer dry seasons, climate
financial integrity.
change and desertification may affect the available natural
resources, including water and grassing pastures
Public financial management
The Government of Mali has
According to successive Public Expenditure and Fiscal rolled out a comprehensive
18
Accountability (PEFA) assessments, Mali has made
progress
in
enhancing
budget
credibility,
comprehensiveness and transparency. But more remains to
be done to improve tax collection, treasury management,
accounting, reporting and external audit. The authorities’
road map for public financial management (PFM) reforms
is guided by a multi-year rolling action plan updated and
implemented with donor support.
5. Transparency and oversight of the budget
The 2013 Transparency International Corruption
Perception Index ranks Mali as 127th out of 177 states. The
UN Worldwide Development Indicators for Control of
Corruption rank Mali as 190th out of 214 states and
territories.
The authorities have stated their deep commitment to
combating corruption. They are in the process of
PFM reform programme over
the past decade. Following
reforms between 2007 and
2011, public expenditure and
financial accountability (PEFA)
scores improved remarkably in
several areas, particularly in
upstream functions including:
(i) budget credibility, (ii)
comprehensiveness
and
transparency
of
budget
management, and (iii) policybased budgeting. While these
reforms
have
profoundly
improved PFM rules, systems
and institutions, a lot remains to
be done to translate these
improvements into the critical
behavioural changes at line
ministries and the district levels,
which are needed to ensure
improved sector outcomes.
For this exact reason, sector
budget support is not an
alternative to general budget
support.
Implementation of
downstream PFM functions,
including budget execution,
procurement, internal controls,
accounting, and audit follow-up,
is often weaker. As a result,
sector ministries have yet to
derive the full benefits, in terms
of
greater
transparency,
efficiency and effectiveness of
public spending, of the
investments made in PFM
reform at the central level.
The
embassy
currently
contributes to the fight against
corruption mainly through
support to three Malian CSOs.
One working to promote
general public oversight of the
public finances, the second
working to promote the
accountability
to
youth
19
identifying concrete actions. One is a systematic follow up
of all recommendations of varying control agencies, with
regular reports on judicial or administrative actions taken.
Another is the publication of judicial decisions and their
rationales. More generally, the government intends to boost
transparency throughout the government to strengthen its
accountability to citizens. That is also the purpose of the
law against illicit enrichment under preparation, which
would include a provision mandating annual declarations of
personal wealth for senior officials. Improving governance
in those areas where businesses and households interact
with the public sector will be critical to the creation of a
more attractive environment for business and investment.
The government will also strengthen implementation of
Anti-Money Laundering/Combating the Financing of
Terrorism laws.
The Danish Mission’s conclusion
While the risks associated with general budget support are
undeniable, and are likely to remain substantial in the
coming years, budget support provided through the
transitional mechanisms of the Statebuilding Contract and
the UNDP Stabilisation Fund offer strong follow-up and
close political dialogue to counter these risks.
engagements and the third to
promote the accountability
towards
engagements
for
women. As part of the
embassy’s work to improve the
social contract, it is planned to
increase emphasis on the role of
control mechanisms vested in
civil society. Other donors work
on improving internal control,
including through support to
the national audit institution.
It is important to note that budget support serves to
strengthen the government and therefore contributes to
stability, which is needed for Mali to make progress in the
peace process. Budget support constitutes an important
lever in the dialogue through which the Denmark and other
partners promote respect for human rights, the need for an
inclusive peace process and the implementation of reforms,
including among other things in relation to the management
and control of public expenditure.
It is noted that the proposed mechanisms, which are already
supported by the embassy, were originally of a temporary
nature and foreseen to be of a relative short duration, but
currently it does not seem feasible to return to providing
general budget support through traditional mechanisms
within the next two years. However, due to the continued
threats to social and economic stability, it is foreseen there
will still be a need to respond flexibly to a continued fragile
situation over the coming years.
In general, the situation in Mali remains very fluid and it
should be recognized that channels of delivery, expected
results, dialogue mechanisms etc. are not fixed and stable
20
but could very well develop over time as the situation
continues to unfold. Thus, the need for flexibility is
significant in order to maintain a high Danish political
profile, specifically in Mali but also generally in the Sahel.
21
Annex III. Gender Equality Rolling Plan (GERP)
The present gender equality rolling plan was part of the documentation presented to the programme committee in
2013 regarding the new private sector programme in Mali.
A new screening note will be formulated as part the preparation for the country programme.
Basic information
Programme title
Private Sector Driven Economic Growth and Employment
Promotion.
Sector
Private sector
Country
Mali
Budget (Danida's
contribution)
400 Million DKK
Starting date and duration
April 2013; 5 years
Action required
Summary of available information
Harmonisation
between donors and
alignment on gender
issues.
The donors created in 2007 a Thematic Group for Gender and
Development to facilitate the dialogue between them and the
Government on gender issues and to ensure that gender is
mainstreamed to important policy documents of Mali. They focus
in specifically on the creation of a national gender policy, while
supporting poverty reduction, combating female genital mutilation
and improving the legal status of women and their representations
in decision-making institutions.
Availability of gender- The National Centre for Documentation and Information on
disaggregated data.
Woman and Child linked to the Ministry of Protection for Woman,
Child and Family, is in charge of national gender and equity
monitoring but the availability of disaggregated data is limited.
A National Observatory of Women’s Rights is in charge of the
global monitoring of the status of women in Mali and the
promotion of equity and equality between women and men. The
Observatory was set up in 2004 as a directorate under the National
Centre for Documentation and Information on Woman and Child.
The Observatory has produced a report on the status of women in
Mali in 2008.
22
Action required
Assessment of the
main gender issues at
national and sector
level
Summary of available information
National level:
Mali has signed all treaties and conventions without reservation
and clearly states the promotion of gender equality in its
Constitution (1992). The enforcement for the rights mentioned in
the legislative framework and policies remains weak and women’s
possibilities to enjoy their rights in the society are limited. Among
the key obstacles for equal rights the following can be mentioned:
-
-
-
-
-
Customary law predominates over modern law in many
aspects in particular in relation to marriage, family and
heritage.
The practice of Female Genital Mutilation is still highly
prevalent and there is no legislation against it.
The Family Code trying to promote more favourable
dispositions for women in marriage and in heritage was
voted down by the National Assembly in 2009 mainly due
to Islamic groups. It has been the subject of many debates
and is still under discussion.
The parity index is for primary and secondary education
was 0.82 for Mali in 2008, i.e. 82 girls per 100 boys in
secondary schools.
Regarding maternal health, a high fertility rate remains a
problem (on average 6.6 children/woman) Mali has also
one of the highest maternal death rates in the world with
582 maternal deaths per 100,000 live births.
The share of women in decision-making institutions
(elected and appointed positions) increases every year,
even though the ratios remain low. For elected positions,
the ratio of women is approximately 10 % in 2006-08.
Sector level:
In agricultural sector, access to productive resources remains
limited. Only 20% of agricultural parcels are owned or managed by
women (Agricultural Census, 2007). According to the Malian
Human Development Observatory, in 2006 84% of female-headed
households are poor against only 42% of male-headed households.
Women’s participation in agricultural production is often limited by
their family obligations. The Government has tried to improve
access to water by ruling in 2009 that at least 10 % of the areas are
reserved for women and rural young people in the irrigation
23
Action required
Summary of available information
schemes.
According to the National Household Survey in 2007, 70% of
working women have an income below the minimum wage
compared to 30% for men. On the other hand, unemployment of
women is lower than that of men mainly due to their domestic
chores.
Opportunities/
constraints in
addressing these
issues.
Opportunities:
Gender equality is mainstreamed to practically all policy texts and
documents, which shows that the Government of Mali recognises
the rights of women. Among the recent ones, the following can be
mentioned:
 The President’s Framework Letter (2007) includes six priority
areas for intervention, one of which concerning inclusion of
women and young in production chains;
 The Government’s Policy Statement 2007-2012 aims specifically
at improving girls’ school enrolment and focuses on economic
integration of women;
 The National Poverty Reduction Strategy under elaboration
(2012-17) aims at improving the economic, social, cultural and
political conditions for women and at ensuring enforcement of
families and children’s rights.
 The National Policy for Gender Equality (2010) established
following guiding principles for gender promotion :
- Recognition of the primary role of the State of Mali in
building an egalitarian society;
- Participation of both women and men in identification and
promotion of changes required;
- Systematically integrating equality between women and
men in public reforms and in the country’s institutions by
targeting sectors that are drivers of equality in order to
produce visible results.
 The Agricultural Development Policy under elaboration can
provide new possibilities to reinforce women’s rights within the
sector.
24
Action required
Summary of available information
Constraints:
In general, the institutions have a weak capacity for enforcing
gender aspects of policies. Customary law and the weight of
tradition are often stronger than established policy guidelines.
Gender studies to be
used/updated/develo
ped including the
Gender studies available:
 Prospective study aiming at an equal integration of women
and men in the Danish-Malian cooperation programme;
Niras, June 2006;
 Study on the integration of gender equality in Danish sector
programmes in Mali; June 2010
 Genre dans l’Emploi : Etude de cas du Mali; AfBD 2011
 Inégalité de Genre, Croissance et Lutte contre la Pauvreté ;
ASDI 2010.
Recognition of the gender aspect in economic growth and
employment in Mali and in the proposed programme will be
defined during the formulation process using the Gender Toolbox.
Proposed gender
equality
goals/outputs that
must be part of the
programme.
The programme will :
i)
Implement corrective mechanisms (access to funds for
women and young people), favourable subsidy rates for the
development of green technology.
ii) Use gender as criteria when carrying out the final choice of
value chains to be supported.
iii) Support to male/female providers of services to businesses
in value chains with training initiatives to facilitate the
integration of women and young people in the job market.
25
Annex IV. Climate change and environmental screening note
The present climate change and environmental screening note was part of the documentation presented to the
programme committee in 2013 regarding the new private sector programme in Mali.
A new screening note will be formulated as part the preparation for the country programme.
Basic Information
Programme title:
Programme d’Appui à la Croissance Économique et à la
Promotion de l’Emploi Stimulées par le Privé au Mali
Country/region:
Mali
Estimated allocation:
437.3 Million DKK
Brief description of the Programme
support:
Le programme apporte un appui au Mali en
contribuant à la croissance économique durable et
partagée par la génération de revenu et la
promotion de l'emploi.
Dates (expected): Évaluation préalable/Appraisal: Janvier 2013 ; Comité de programme: MarsAvril 2013
Screening of Country Climate Change Framework
Assess the adequacy of policies and strategies to respond to climate change in the country and
sector For OECD/DAC guidance document see [link]. If the issue is inadequately dealt with
(indicated by a tick in the “no” box), please add comments and indicate further work to be
undertaken (see also “next steps” section, below).
Issue:
1. Are the processes and impacts of climate change
understood and documented (e.g. in national
communications to the UNFCCC)?
2. Is there a national climate change policy or
strategy, including estimates of the economic costs
of adaptation?
3. Have nationally appropriate mitigation actions
(NAMAs) been identified (e.g. targets for renewable
energy production)?
4. Has a national adaptation programme of action
Yes No Comments and further work to
be done:
La Politique nationale en
matière de changements
climatiques (PNCC) et la
Stratégie nationale sur les
changements climatiques : en
cours d’élaboration
Le document provisoire est
toujours à l'étude.
Le Mali dispose d'un NAPA en
26
(NAPA) been approved identifying key sectors
where adaptation is required?
2007 sur la base duquel deux
projets on été financés par la
FME.
Le Plan National d'Action
Climat (août 2011) rassemble
l`ensemble des actions
proposées selon les 8 axes
stratégiques et dont la mise en
œuvre est prévue pour 20122017.
5. Are there effective and operational meteorological
and disaster preparedness organizations?
Ces organismes manquent de
personnel et de ressources,
mais le GdM travaille au
renforcement de leur capacité
de réponses aux catastrophes
naturelles.
Summarize the overall assessment of climate change impacts and responses:
La prise en considération des risques/ opportunités Changements Climatiques dans les
politiques et programmes de développement du Mali est assurée et suivie dans un cadre
institutionnel ou en particulier deux organes jouent un rôle centrale d`animation et de
coordination :
Le Comité National Changements Climatiques (CNCC Mali), crée par décret du premier ministre
en 2011 qui a un rôle déterminant dans la promotion de la mise en œuvre de la Politique
Nationale CC, de la Stratégie nationale CC et du Plan d'Action National Climat.
Le Mali a présenté sa première communication nationale dans le cadre de la CCNUCC en 2000
avec une première idée sur la vulnérabilité du pays face aux CC et sur ses besoins importants en
adaptation.
Concernant l'adaptation : En 2007, le Mali a élaboré et publié, avec l'appui des Nations-Unies,
un Plan d`Action National d`Adaptation aux changements climatiques (PANA). Quatre catégories
de risques climatiques ont été considérés majeurs pour le Mali lors de l`élaboration de ce plan :
la sécheresse, les inondations, les vents forts et la forte variation de température. Le PANA a
montré que les secteurs les plus vulnérables sont l'agriculture, la pêche, l'énergie, les ressources
en eau. Un Audit climat est venu confirmer la forte exposition socio-économique et écologique
du Mali à ce risque avec des effets néfastes importants déjà ressentis. Quant à l'atténuation : Le
Mali a mené ces dernières années un certain nombre d’actions visant à participer à l'effort
mondial d`atténuation des émissions en gaz à effet de serre (GES) et aussi à intégrer le marché
du carbone pour développer localement des projets propres et durables. Parmi ces actions on
citera :
27







l'adoption d'une organisation interne de l'Autorité Nationale Désignée MDP (AND) ;
l'adoption d'une procédure d'approbation nationale des projets MDP (mécanisme de
développement propre) ;
l’élaboration des critères de Développement Durable (DD) MDP Mali ;
l'adoption de la définition de la forêt dans le MDP pour le Mali;
la participation au renforcement des capacités nationales sur le MDP ;
l’élaboration d'un premier portefeuille MDP Mali ;
une participation active aux rencontres régionales, sous régionales et internationales sur le
MDP.
Le gouvernement a entrepris une série d'activités pour établir un cadre réglementaire en
réponse aux changements climatiques. Ces activités sont toujours en cours de développement
et leur niveau technique et leur faisabilité demandera à être évaluée. Nombreuses actions sont
très dépendantes de l'apport des bailleurs de fonds. En général, la mise en vigueur de ces
politiques et stratégies dépendra de la capacité générale de mise en œuvre des institutions
maliennes qui toutes souffrent de manque de ressources humaines et financières pour travailler
correctement.
Screening of Country and Sector Environmental Framework
Assess the adequacy of legislation, policies and procedures for environmental management and
impact assessment in the country and sector. If an issue is inadequately dealt with (indicated by
a tick in the “no” box), please add comments and indicate further work to be undertaken (see
also “next steps” section, below).
Issue:
Yes No Comments and further work to
be done:
1.
Do national procedures and legislation for Strategic X
Environmental Assessment (SEA) and
Environmental Impact Assessment (EIA) exist
2.
Are there operational national environmental
X
action plans or environment sector programmes?
3.
Are there regularly updated state of the
environment reports and environmental
monitoring systems with indicators?
Is environmental management sufficiently
integrated into the sector plans?
4.
Bien que le gouvernement
dépende souvent du
financement des bailleurs de
fonds pour réaliser ce type
d'évaluation.
X
X
En particulier, l'utilisation
28
durable des terres a été d'une
façon détaillée intégrée dans
les politiques du secteur
agricoles, y compris les
indicateurs.
5.
Is there sufficient institutional and human capacity
for environmental management in the sector
concerned?
X
Il y a un manque en ressources
humaines tant sur le plan
qualitatif que quantitatif et
spécialement au niveau
décentralisé.
Summarize the overall impression of the Country and Sector Environmental Framework:
Le Mali a le Ministère de l'Environnement et de l'Assainissement depuis octobre 2002. Un cadre
institutionnel pour la gestion des questions environnementales a été développé comprenant : (i)
un comité interministériel responsable des mesures de protection pour l'environnement, (ii) un
comité consultatif responsable de fournir des conseils techniques sur tous sujets en relation
avec l'environnement et de favoriser la participation de l'ensemble des parties prenantes
nationales (iii) un secrétaire technique permanent responsable de la gestion et du suivi de la
mise en œuvre des plans d'action environnementaux. En 2011, ce comité a été remplacé par
l'Agence pour l'Environnement et le Développement Durable, qui est responsable de la
protection de l'environnement, du suivi des changements climatiques et du développement
durable, y compris la gestion du terroir.
La législation malienne comprend un nombre important de textes réglementaires sur la
protection et la gestion de l'environnement : le code minier (1999), le code foncier (2000), la
charte pastorale (2001), la loi sur les pollutions et les nuisances (2001), le code de l'eau de 2001,
complété par des documents cadres tels que le plan national d'action pour l'environnement. En
2010 le cadre stratégique d'utilisation durable des terres a été approuvé. Le cadre réglementaire
existant requiert qu'une analyse d'impact environnemental et social soit réalisée pour tout
projet d'une certaine envergure et qu'une étude stratégique environnementale soit conduite
pour les plus grands projets.
Le Mali a signé et ratifié la plupart des traités internationaux dans le domaine de
l'environnement et des changements climatiques, tels que : la Convention cadre des Nations
Unies sur les Changements Climatiques (1994), le Protocole de Kyoto (2002) la Convention sur le
Commerce international des Espèces de la Flore et de la Faune sauvage menacées d'extinction,
la Convention des États-Unis sur la Lutte contre la Désertification, la Convention sur la Diversité
Biologique, la Convention de Protection des Végétaux, la Convention de RAMSAR sur les zones
humides d'importance internationale, la Convention de Rotterdam sur la procédure de
déclaration préalable des certains produits chimiques et pesticides dangereux dans le commerce
international La Convention de Stockholm sur les polluants organiques persistants, le protocole
29
de Montréal sur la couche d'ozone, etc.
Bien que ces traités soient signés et que les cadres réglementaires soient en place, ces textes
sont peu appliqués en raison du manque d'équipement, de ressources humaines et financières.
Si l'on prend en compte l'étendue du pays, leur mise en vigueur est extrêmement difficile. La
croissance démographique accentue la pression sur les ressources naturelles.
Opportunities and risks of the programme related to Climate change
and the environment
Assess how climate change and environmental opportunities and risks will arise through the
programme:
Will the programme ...
Opportunity:
Risk:
None:
1. ... have an impact on the pollution of soil, water or air as a
result of emissions or discharges?
2. ... lead to changes in land and resource tenure and access
rights, including the rights of indigenous peoples?
3. ... include activities within or adjacent to protected or
environmentally sensitive areas?
4. ... result in livelihood changes (including resettlement) that
can increase or reduce the pressure on available natural
resources?
5. ... have direct or indirect impact on occupational health
and safety?
6. ... have direct or indirect impact on environmental health?
7. ... have direct or indirect impact on climate change (e.g.
through increasing or reducing emissions of greenhouse
gases)?
8. ... have direct or indirect impact on the resilience of
communities in the face of natural disasters?
Summarize and explain climate change and environmental opportunities:
Le programme vise à appuyer le développement du secteur privé, dont l'essentiel de la matière
30
première utilisée provient de l'agriculture. Pour cela, une attention particulière sera accordée à
l'évaluation des impacts environnementaux et sociaux des projets de développement de façon
de s'assurer que les ressources seront utilisées de façon durable. La promotion de l'utilisation
des énergies renouvelables renforcera la contribution du programme à l'atténuation des
changements climatiques.
Summarize and explain climate change and environmental risks:
Les risques sont essentiellement dus à la construction d'infrastructures et aux procédés de
transformation et de production. Les infrastructures comme les pistes rurales, les radiers, les ponts,
les zones irriguées, des abattoirs, les marchés à bétail, les puits pastoraux peuvent avoir des impacts
environnementaux significatifs s'ils ne sont pas conçus pour les éviter. L'étude d'impact
environnemental ainsi que les mesures conceptuelles pour atténuer ces impacts potentiels le plus
possible, sont cruciales. Dans la plupart des cas, une conception adaptée, une localisation et des
méthodes de gestion appropriée prenante en compte le contexte géographique et socioculturel local
permettent d'atténuer ces impacts.
Certaines unités industrielles ou transformation peuvent devenir des sources potentielles de
pollution si des mesures d'atténuation ne sont pas prises.
Identify requirements for undertaking an Environmental Impact Assessment (EIA).
Categories are: [ A ] Full EIA required; [ B ] Partial EIA required; [ C ] No EIA required5.
Component Name:
Category A, B or C:
1:
Renforcer la compétitivité des acteurs du secteur privé
malien dans un environnement favorable.
B - partial EIA
2:
Développer les infrastructures pour promouvoir la
production et l'accès au marché.
B – partial EIA
3:
Contribuer à la compétitivité des secteurs économiques
porteurs par une formation professionnelle axée sur
l’emploi
C- No EIA
Will national regulations and procedures for EIA be applicable to activities of the programme
that have potential environmental impacts? – Yes X - No
When will the EIA be undertaken?: La plupart des études d'impact environnementale EIE seront
réalisés lors ce que chaque projet individuel aura été identifié et sélectionné. L'EIE pour le projet
d'énergie renouvelable sera réalisée dans le premier semestre de 2012 conjointement avec la
5
Category A = Intervention is likely to have adverse environmental impacts that may be sensitive, irreversible, and
significant in scale/scope; B = Intervention is likely to have negative impacts, but which are less significant, not as sensitive,
numerous, major or diverse; C = The environmental risk of the intervention are of little or no concern.
31
Banque Africaine de Développement et pour les autres projets à partir de 2013.
t Steps – process action plan
Need for further work during the preparation, appraisal and implementation of the programme
arising from the climate change and environment screening:
Suggested activity:
1. Assessment of Environmental Management in
sector development plan.
2. Assessment of capacity for Environmental
Management in the sector.
3. Prepare ToR for and conduct Country Analytical
Work.
4. Prepare ToR for and conduct SEA(s) of sector
policies or plans.
5. Prepare ToR for and conduct EIA(s) for
programme support activities.
Action Comments and elaboration:
needed
X
Réalisé au cours de l'étude des
capacités institutionnelles
Pour composante 2 courant du
1er semestre 2013
6. Initiate donor harmonisation in the sector on
environmental assessment and management.
7. Other...?
Signature of Screening Note
Bamako and November 2012
……………………………………………………….
Anders Garly Andersen
Danish Representation in Bamako
32
Annex V. Preliminary Results Framework
Indicators are presented as possible. Levels and details vary across thematic programmes and
engagements.
Thematic
Programme
Thematic
Programme
Objective
Stability, Human Rights and Governance
To strengthen institutional accountability, public and civil society
participation, rule of law and access to justice, reconciliation and
social cohesion and promote human rights, especially the rights of
women in Mali
Impact Indicator
-
Enhanced participation in the political process by women and
youths
Greater demands for accountability from civil society, media and
the parliament (Assemblée Nationale)
Improved rule of law and access to justice
Improved social cohesion through reconciliation and dialogue
Engagement Title
Parliamanent and Public Participation
Outcome indicator
1. Increased influence of the Assemblée Nationale (parliament)
2. Visible participation of women in politics.
2013
- The actual role of a parliament is not well understood
in Mali and the influence of the Assemblée Nationale is
limited.
- There are only 14 women out of 149 elected members
of the Assemblée Nationale, and women are in general
poorly represented in politics
2016
- The role of Assemblée Nationale to stand clearer to the
population and the Assemblée Nationale has managed
to increasingly influence government politics.
- Women will be more visible and more active in the
public debate.
Baseline
Year
Target
Year
Output indicator
Engagement Title
1. The Assemblée Nationale has managed to influence major
government decisions and the opposition has managed to make
its politics visible.
2. Women parliamentarians of the Assemblée Nationale have been
visible in the public debate.
- To be developed
- To be developed
Civil Society and Drivers of Change
33
Outcome indicator
Baseline
Target
Year
Year
Selected civil society organisations within media, youth and intra
religious dialogue have been strengthened
2013
- Organisations have not been identified
2016
- International Alert and MaliValeurs have identified civil
society organisations s within the proposed areas and
capacity building is ongoing.
Output indicator
To be developed
2013
2016
Engagement Title
Human Rights
Outcome indicator
Baseline
Year
Improved knowledge of rights and improved access to justice
2013
- Reporting is prepared separately to each donor
- Training of paralegals is intensified and extended to the
remaining regions
2016
- Deme So present comprehensive financial and
narrative reporting on all activities and support.
- The number of paralegals trained annually continues to
increase and is spread to all regions of Mali
Target
Year
Output indicator
Baseline
Year
Target
Year
Outcome indicator
Baseline
Year
Target
Year
Output indicator
Baseline
Year
Target
Year
Engagement Title
2013
113 active paralegals in Mali, educated over four years
Active in 6 out of 8 regions, Kayes, Koulikoro, Sikasso,
Ségou, Mopti and Timbuktu
2016
- 100 additional paralegals trained
- Active in all 8 regions including Gao and Kidal.
Strengthen the respect for Human Rights and gender equality
2013
- Universal Periodic Review 2013
2016
- Universal Periodic Review improves
Strengthen CNDH
2013
- CNDH are dependent on resources from the Ministry
of Justice which hinders actual independence
- CNDH’s capacity is inadequate because of limited staff
resources
2016
- CNDH has its own budget line on the finance act
- CNDH’s capacity has been increased with strong
human resources
-
Rule of Law Programme
34
Outcome indicator
Baseline
Year
Target
Year
Strengthened Rule of Law
2013
- Limited presence of judicial infrastructure and services
in Mali, especially in the 3 northern regions.
- The Ministry of Justice are slow in implementation of
its anti-corruption strategy.
2016
- Significant improvements to judicial infrastructure and
services in Mali.
- Implementation of the anti-corruption strategy is back
on track and actual will to deal with corruption stands
clear.
Output indicator
Baseline
Year
Target
Year
2013
2016
Engagement Title
Conflict Prevention and Reconciliation
Outcome indicator
Road paved for an inclusive peace process and for reconciliation
between armed movements and communities in the northern regions
2013
- Tensions internally between communities and between
armed movements in the north remains severe
2016
- The situation has calmed down and a move towards
former peaceful cohabitation is visible
Baseline
Year
Target
Year
-
Output indicator
Baseline
Year
2013
-
Target
2016
-
Year
-
To be developed
To be developed
CHD has established good connection with the Malian
government and MINUSMA, who both realise the
important role CHD can play in the peace process
CHD has assisted the government and MINUSMA in
reconciliation efforts in the northern regions
To be further developed
Engagement Title
Conflict Prevention and Social Cohesion
Outcome indicator
Strengthened social cohesion and trust between communities and
between citizens and the state
2013
- Lack of social cohesion at all levels in Mali remains a
destabilising factor
2016
- Visible improvements in social cohesion both
communities vs. communities and citizens vs. the state
Baseline
Year
Target
Year
Output indicator
Baseline
Year
2013
-
IMRAP team has been put in place and research teams
have visited the regions to prepare the dialogue phase
of the program.
35
Target
Year
Thematic
Programme
Thematic
Programme
Objective
Impact Indicator
2016
-
Dialogue conferences have been undertaken in all
regions of Mali and follow-up on these have begun
Budget Support (Development contract)
A strong poverty reduction engagement, enhance state performance
in delivering basic public services, ensure accountability and
transparency in the public spending.
- Reconstruction of judicial infrastructure in the north
- Successful implementation of government strategies
- Improved transparency in government budget and expenditures
Engagement Title
Statebuilding Contract
Outcome indicator
Baseline Year
Target
Year
Improved stability and cohesion
2013
2016 To be developed
Baseline Year
Target
Year
Rehabilitation and strengthening of service deliveries in the sectors of
health and education
2013
2016 Successful implementation of the roadmap according to indicators
Engagement Title
Stabilisation Fund
Output indicator
Outcome indicator
Baseline Year
Target
Year
The judicial sector has the capacity to act in the regions most affected by
the armed rebellion.
2013
2016 To be developed
Baseline Year
Target
Year
Reconstruction and rehabilitation of judicial infrastructure in the three
Northern regions
2013 Infrastructure limited and damaged
2016 Infrastructure is rehabilitated and in use
Engagement Title
Social Accountability
Outcome indicator
Individual Malian civil society organisations are engaging in dialogue with
the state on the allocation and execution of the state budget.
Output indicator
36
Baseline Year
2013
Target
2016
Year
Output indicator
Baseline Year
Target
Year
Thematic
Programme
Thematic
Programme
Objective
The selected civil society organisations have kept the government
accountable on budgetary decisions.
2013
2016 To be developed
Water and Sanitation
Reduction of poverty by ensuring equitable access to water supply
and sanitation
-
Impact Indicator
-
Engagement Title
Outcome
indicator
Baseline
Target
Year
Year
Year
Engagement Title
Outcome
indicator
Baseline
Access to improved water resources in rural and urban areas is
strengthened and developed
Access to sanitation facilities in schools and rural areas is
improved
Knowledge of hygiene and sanitation needs amongst school
children is improved
Rural Water Supply - AGETIER
Improved access to water in rural areas
Output indicator
Baseline
Year
Target
There is limited capacity at civil society level and little inclusion by
the state
Improved capacity of selected Malian civil society organisations
working on accountability, inclusion and transparency related to
the state budget
2013
2016
63.6 % of population has access to safe drinking water
20,000 additional people have access to water supply
Construction and rehabilitation of boreholes in rural areas
2013
20 new boreholes and rehabilitated structures are made in 20
2016
villages
Urban Water Supply - SOMAPEP
Improved access to water in urban areas
Year
2013
63.6 % of population has access to safe drinking water
37
Target
Year
Output indicator
Baseline
Year
Target
Year
Engagement Title
Outcome
indicator
Baseline
Target
2016
200,000 additional people have access to water supply
Strengthening of water distribution capacity
2016
Two urban centres' capacity have been strengthened through
construction or rehabilitation a water tower and the distribution
network
Sanitation - UNICEF
Greater access to sanitation facilities in urban and rural areas
Year
Year
2013
2016
22 % of population has access to sanitation facilities
Output indicator
Baseline
Year
Hygiene and sanitation facilities built or rehabilitated
Target
2016
Year
School latrines for boys and girls are built or rehabilitated in 30
schools
Output indicator
Baseline
Year
Education in hygiene and sanitation
Target
2016
Year
Hygiene education is carried out as part of curricilum at 30
schools
38
Annex VI. Risk Management Matrix
Contextual Risks
Context:
File No:
Risk factor
1 Delicate and fluid security
situation
Mali
104.Mali.Bridging-01
Likelihood
Background to
assessment
Impact
Almost
Certain
Although the presence of
the UN mission in Mali
(MINUSMA) has
stabilized the situation,
the situation in the
northern regions remains
fragile. There have been
instances of attacks on
military personel and
kidnappings of
humanitarian workers.
Significant Implementation of
activities in the northern
regions remains difficult, as
access to the regions is
limited due to security
conditions. Furthermore,
social tensions in general
could potentially escalate
into civil unrest.
Furthermore, intercommunity tensions
between pastoralist
communities have also
been seen to esacalate
recently, in part due to
disputes over natural
ressources.
The risk of social unrest
Background to assessment
Risk response if applicable / potential
effect on development cooperation in
context
An effort to minimise potential effects of
external shock has been streamlined
during 2012-2013 and proved itself very
effective. Support for stability and
security in Mali is addressed both short
and long term through contributions to
MINUSMA and UN agencies working in
Mali, as well as through the Sahel
Programme. Partners with a strong
network in the northern regions are
identified for the implementation of
activities in the most volatile areas.
Activities relating to social cohesion, and
inclusion are targeted and mainstreamed
throughout the engagement. The
programme works with a diversified
group of partners, including
international organizations, civil society
organisations and private Malian
partners, which during the crisis of 20122013 showed resilience to exogenous
effects.
remains elevated, due to
popular discontent with
social conditions and the
state's lack of delivery.
40
2 State capture and weak
social contract
Likely
The political and
bureaucratic system has
a history of working in its
own interest. Corruption
and other harmful
governance practices,
including clientelism,
patronage and
embezzlement are
widespread. The public
sector, and most other
sectors, are limited by a
lack of capacity. Apart
from isolated highly
professional cadres in for
instance the Ministry of
Finance, The Prime
Minister’s cabinet, the
Ministry of Foreign
Affairs and The
Presidency, reform
willingness seems
inadequate in order to
address fundamental
development needs, e.g.
the need for social
services to the Malian
population.
Major
Output at local level risks
being reduced significantly,
due to limited service
delivery capacity and the
concentration of state
resources at the central
level.
Furthermore, the
significant risk of
corruption might delay or
hinder activities.
As a consequence of the coup d’etat in
2012, and the uncertainty related to the
political situation, a re-orientation of the
country programme took place. Based
on lessons learnt since 2006, the reorientation aimed at improving
effectiveness, efficiency and impact. As
the objectives were still found to be
relevant, the re-orientation mainly
concerned modalities as well as the
introduction of new rights-based support
directly related to the political and
security situation. The re-orientation has
resulted in significant improvements in
performances, even during the military
intervention. Part of the programme
funds activities aiming at strengthening
transparency and accountability in the
execution of public finances. The short
term risks are mitigated through
strengthened monitoring measures, use
of technical assistance and annual
audits.
The 2013 Transparency
International Corruption
Perception Index ranks
41
Mali as 127th out of 177
states. The UN
Worldwide Development
Indicators for Control of
Corruption rank Mali as
190th out of 214 states
and territories.
42
3 Vulnerable economic
situation at both micro and
macro levels
Likely
Mali’s economy is
undiversified, and relies
heavily on gold and
cotton exports for
revenue at state level,
and on agriculture for
sustenance. Mali's future
export performance
depends crucially on a
diversification from gold
and cotton. A decrease in
trading terms on the
international market for
these two main
commodities would
significantly limit Malian
state revenues. A large
part of Mali's population
is dependent on
agricultural production
either for food security or
income. The population
employed in the
agricultural sector are at
a higher risk of poverty
than the average (IMF).
Cotton, a major source of
income, has seen
increasing and elevated
prices in recent years,
which are at risk of
decreasing. Furthermore,
Major
Although the religious
influence so far has been
minor,more radical or
conservative
interpretations might
hinder or render difficult
advances relating broadly
to human rights, including
women's and reproductive
rights. Reforming political
life and breaking the
culture of consensus has
become a strong theme in
seeking recovery after the
crisis. The politics of
consensus and clientelism
mean there is no
meaningful political
opposition. Civil society
leaders and the political
class are intertwined and
connected. The Haut
Conseil Islamique du Mali
(HCIM) presents itself as
the only credible
counterweight to the
government. This suggests
that increasing
parliamentary oversight
and scrutiny is very
important.
Political dialogue is needed in order for
the needed reforms and diversification
of the Malian economy, in order to limit
its vulnerability at both micro and macro
levels.
43
longer dry seasons,
climate change and
desertification may affect
the available natural
resources, including
water and grassing
pastures.
44
4 Religious radicalisation and
violent extremism
Unlikely
Although the Malian
state is secular, recent
development have
shown an increased role
of religion in politics,
such as during the
negotiation of the new
family law, where
religious succesfully
pressured politicians into
a more strict
conservative law than
initially proposed. An
increase in more radical
interpretations of Islam
has been documented.
Salafists now constitute
about 20% of the
population, a doubling
over the past 10 to 15
years.
Minor
Although the religious
influence so far has been
minor,more radical or
conservative
interpretations might
hinder or render difficult
advances relating broadly
to human rights, including
women's and reproductive
rights. Reforming political
life and breaking the
culture of consensus has
become a strong theme in
seeking recovery after the
crisis. The politics of
consensus and clientelism
mean there is no
meaningful political
opposition. Civil society
leaders and the political
class are intertwined and
connected. The Haut
Conseil Islamique du Mali
(HCIM) presents itself as
the only credible
counterweight to the
government. This suggests
that increasing
parliamentary oversight
and scrutiny is very
important.
The embassy has supported activities
relating to intra-religious dialogue. Also
working with UNDP to strengthen
parliamentary functions. Close
monitoring of the situation. New
activities to counter violent extremism
will be considered. Studies and pilot
activities could be funded during the
Transition programme in order
45
Programmatic and Institutional Risks
Title:
File No:
Transitional programme for Mali
104.Mali.Bridging.01
Programmatic Risks
Risk factor
P1 Deterioration of the
security situation and/or a
return of the crisis situation
of 2012 and 2013.
Likelihood
Background to
assessement of likelihood
Impact
Background to assessment
to potential impact
Risk response
Combined
residual
risk
Unlikely
The security situation
remains fragile, although
the presence of
MINUSMA and France is
a stabilizing factor. Many
of the factors that
spurred the crisis of 2012
and 2013 are still
present.
Major
Deteriorating security and
political inertia risks
negatively affecting public
administration and thus
impacting programmes
delivered through public
partners, i.e. budget
support. Parastatal
organisations are less (or
not at all, depending on
geograhy) affected.
The programme builds
on lessons learned
during 2012-2013,
where significant
performance
improvements were
realised despite all the
contextual difficulties.
Private organisations,
international
organisations and
NGO's, which showed
ability to continue
working throughout the
crisis, will be used as
implementing partners,
in addition to the
Minor
46
partnerships with state
agencies, thereby
diversifying the
development
engagement
partnerships and
reducing overall
vulnerability of the
country programme.
P2 Lack of
capacity/enthusiasm to
address need for public
sector reform.
Likely
The state service delivery
continues to be limited
by a lack of willingnes to
address the need for
public sector reform. One
pressing issue is the need
for decentralisation, as
90% of state ressources
are currently being
allocated for the capital
Bamako. There is also a
need to safegurd
economic reforms, which
Major
The experiences from
earlier sector programmes
and activities, showed the
difficulty in working with
state partners in a situation
of political inertia, even
before the crisis. Due to
the proposed
implementation modalities,
political inertia will have
limited direct effect on the
implementation of
activities, except from
Idem.
Minor
47
have already yielded
results.
P3 Risk of corruption
Almost
Certain
The 2013 Transparency
International Corruption
Perception Index ranks
Mali as 127th out of 177
states. The UN
Worldwide Development
Indicators for Control of
Corruption rank Mali as
190th out of 214 states
and territories.
those related to budget
support.
Major
Corrupt practices might
delay and/ or hinder
activities and reduce
quality of outputs, as well
as taking up human
ressources.
Rigourous monitoring
procedures are
mainstreamed
throughout the
activities, and technical
assistance is used to
support and strengthen
procedures. Still, the
risk can only be
mitigated and not
eliminated.
Major
48
P4 Lack of capacity at partners
Likely
Some of the partners
have limited capacity in
terms of experience and
administration of
development
engagement, especially
according to highly
sophisticated standards.
Major
Lack of capacity may result
in delays or reduced quality
of outputs. It requires
increased monitoring.
The programme includes
the use of technical
assistance to support
and build capacity at
partners. During the
transition programme,
smaller grants for
innovative activities and
new partners, in
preparation of the
country programme will
be pursued in order to
explore the partner
base.
Minor
P5 Lack of inclusion and
transparency in policy and
implementation
Likely
The Malian political
tradition favors
consensus amongst a
small political elite, with
little thought for
transparency, inclusion
or civil participation.
Major
Discontent with the
political establishment is
great in Mali. Growing
discontent may affect the
legitimacy of, and
cooperation with activities,
if pereceived as an
exclusive domain.
Civil participation and
inclusion, with a special
focus on the rights of
women and youths, will
be mainstreamed
throughout the
programme.
Minor
P6 Changing economic and
humanitarian conditions
Unlikely
The economic and
humanitarian situation is
vulnerable. Following the
crisis of 2012 and 2013,
some activities had to be
re-oriented towards
addressing more
immediate needs, such as
Minor
Since 2012, the Danish
engagement in Mali has
become more broad,
including Mali becoming a
humanitarian priority
country in 2014.
The bridging phase
includes un-allocated,
which ideally gives the
embassy some flexibility
to address changing or
new demands.
Minor
49
distribution of seeds for
farmers.
Institutional Risks
Title:
File No:
Risk factor
I1 Deterioration of the
security situation and/or a
return of the crisis situation
of 2012 and 2013.
Transitional programme for Mali
104.Mali.Bridging.01
Likelihood
Background to
assessement of likelihood
Impact
Background to assessment
of potential impact
Risk response
Combined
residual
risk
Unlikely
The security situation
remains fragile, although
the presence of
MINUSMA and France is
a stabilizing factor. Many
of the factors that
spurred the crisis of 2012
and 2013 are still
present.
Major
Following the crisis of 2012,
expatriate staff leaving
during 2012 were not
immediatly replaced. The
embassy though had to
work with less ressources
and increasing demand.
The embassy has moved
to a new and more
secure location
rendering staff less
vulnerable in a crisis
situation. The situation
is continously monitored
and assesed in
collaboration with a
multitude of partners.
Major
50
I2 Lack of
capacity/enthusiasm to
address need for public
sector reform.
Likely
The state service delivery
continues to be limited
by a lack of willingnes to
address the need for
public sector reform. One
pressing issue is the need
for decentralisation, as
90% of state ressources
are currently being
allocated for the capital
Bamako. There is also a
need to safegurd
economic reforms, which
have already yielded
results.
Minor
Due to the proposed
programming, political
inertia will have limited
direct effect on the
implementation of
activities. Public discontent
with the public sector
might render difiicult some
of the activities due to
reputational risks of being
associated with the state
apparatus/political elite.
Strengthen political
dialogue with Malian
partners on the
importance of reforms,
peacebuilding and
participation.
Minor
I3 Risk of corruption
Almost
Certain
The 2013 Transparency
International Corruption
Perception Index ranks
Mali as 127th out of 177
states. The UN
Worldwide Development
Indicators for Control of
Corruption rank Mali as
190th out of 214 states
and territories.
Major
Support for Danish
development cooperation,
both in Denmark and in
Mali, could be diminished
due to grand cases of
corruption.
Close monitoring of
activities, including
audits, financial visits
and technical assistance
is used to limit the
opportunity for corrupt
behavior. Still, the risk
can only be mitigated
and not eliminated.
Major
51
I4 Lack of capacity at partners
Likely
Some of the partners
have limited capacity in
terms of experience and
administration of
development
engagement, especially
according to highly
sophisticated standards.
Major
Additionalsupport and
monitoring might be
required by the embassy,
ressources which are not
immediatly available.
The programme employs
technical assistance to
support capacity
building and
implementation of the
activities.
Minor
I5 Lack of inclusion and
transparency in policy and
implementation
Likely
The Malian political
tradition favors
consensus amongst a
small political elite, with
little thought for
transparency, inclusion
or civil participation.
Major
Public support for Danish
funded activities might be
reduced, if the process is
seen as exclusive.
The programme
supports activities
aiming at inclusiveness
and transparency.
Partnership basis
widened during 20122013.
Minor
I6 Changing economic and
humanitarian conditions
Unlikely
The economic and
humanitarian situation is
vulnerable. Following the
crisis of 2012 and 2013,
some activities had to be
re-oriented towards
addressing more
immediate needs, such as
distribution of seeds for
farmers.
Minor
Response to a changing
context might require
additional ressources.
The strengthened
humanitarian presence
and assistance.
Minor
Planned date for next assessment: September 2014
52
Annex VII. Indicative disbursement budget at development engagement level
Stability, Human Rights and Governance
2015
2016
1. Democracy and Civil Particpation
7.50
8.50
Parliament and Public Participation
4.50
4.50
Civil Society and Drivers of Change
3.00
4.00
2. Human Rights and Access to Justice
8.50
8.50
Human Rights Support
2.50
2.50
Rule of Law Programme
6.00
6.00
3. Conflict Prevention, Reconciliation and Social Cohesion
11.25
11.25
Conflict Prevention and Reconciliation
7.50
7.50
Conflict Prevention and Social Cohesion
3.75
3.75
4. Studies, review and audit
3.00
3.50
5. Un-allocated
2.00
2.00
Subtotal
32.25
33.75
2015
2016
Budget Support (Development Contract)
1. Statebuilding Contract
30.00
30.00
Statebuilding Contract
30.00
30.00
2. Stabilisation Fund
15.00
15.00
Stabilisation Fund
15.00
15.00
Social Accountibility
3.00
3.00
Social Accountibility
3.00
3.00
4. Studies, review and audit
2.00
2.00
5. Un-allocated
2.00
2.00
Subtotal
52.00
52.00
2015
2016
Water and Sanitation
1. Water Supply
-
29.00
Urban Water Supply
-
19.00
Rural Water Supply
-
10.00
2. Sanitation
-
5.40
Sanitation
-
5.40
3. Studies, review and audit
-
3.00
4. Technical assistance
-
5.60
5. Un-allocated
-
2.00
Subtotal
-
45.00
Total
84.25
130.75
Annex VIII. Summary of Danish activities in Mali
2013
2014
2015
2016
2017 2018 2019 2020 2021
Water and sanitation programme
Governance programme
Country programme
Bridging programme
Budget support programme
Private sector programme
Cultural programme
Sahel programme
Humanitarian action
Serval
Contributions to peacekeeping operations AFISMA
Humanitarian priority country from 2014
MINUSMA