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Tel : +225 22 42 33 41

SELF-PORTRAIT OF MALI

on the Obstacles to Peace

March 2015

Tel : +223 20 22 18 48

on the Obstacles to Peace

March 2015

SELF-PORTRAIT OF MALI

United Nations

on the Obstacles to Peace

Self-Portrait of Mali

A Self-Portrait of Mali on the Obstacles to Peace

This document is a translation of the report L"Autoportrait du Mali sur les obstacles à la paix, originally written in French. In case of

discrepancies with the French version, the latter shall prevail. The reproduction of brief extracts of this report is authorized without

necessarily obtaining a formal written approval provided that the original source, the title, the author and the year of publication are

appropriately referenced. The approval to use a section or the entire report can be granted in writing. Under no circumstances should

Institute of Action Research for Peace (IMRAP)

Badalabougou Est

Av. de l"OUA, rue 27, porte 357

Tel : +223 20 22 18 48

Email :

info@imrap-mali.org

Website : www.imrap-mali.org

The contents of this report do not reect the ofcial opinion of the donors. The responsibility and the respective points of view lie exclusively with the persons consulted and the authors.

Cover photo :

A young adult expressing his point of view during a heterogeneous focus group in Gao town in June 2014.

Back cover :

From top to bottom: (i) Focus group in the Ségou region, in January 2014, (ii) Focus group of women at the Mberra refugee camp in Mauritania in

September 2014, (iii) Individual interview in Sikasso region in March 2014. ISBN:

9 789 9661 6667 8

Copyright:

© IMRAP and Interpeace 2015. All rights reserved.

Published

in March 2015

Acknowledgements

It is an honour and a great pleasure for the Executive Management of IMRAP and Interpeace, our technical partner, to express our sincere gratitude to all the resource persons who supported this participatory and inclusive research initiative on the obstacles to and opportunities for peace in Mali. The outcome of this research is an essential basis for the formulation of an agenda for peace, reconciliation and social cohesion in our country. These acknowledgements are rst and foremost dedicated to Malians themselves. We particularly wish to thank the people for making themselves available, i ncluding the national administrative and elected authorities, the traditional and religious authorities as well as all persons and entities who were met in the eld during the various missions for fact nding, consultation, feedback (restitution), and deepening of the analysis of the outcomes. This participatory, inclusive and constructive nationwide dynamic dialogue, would not have been possible without the participation and constant availability of the various segments of the Malian community who spared no effort nor minced words, to express what they thought were the obstacles to and opportunities for peace in Mali. We express our sincere acknowledgement and gratitude to the members of the Board of Directors of IMRAP for their advice as well as moral and material support which enhanced the effectiveness of our activities. The Board of Directors and the Executive Management of IMRAP wish to express their deep gratitude to the entire Interpeace team for its constant commitment and advice with regard to the methodological approach to the support for this initiative. This commitment ensured the constant mobilization of strategic and nancial partners as well as partners of similar Interpeace programmes in Africa and at the international level with whom rich and practical experiences were shared. These interactions were effective sources of inspiration for the Mali programme. We say thank you to the collaborators of the Burundi, Côte d"Ivoire, Guinea-Bissau, Liberia and Rwanda programmes for their support and kindness. We particularly thank Dr. Severin Kouamé, Director of INDIGO Côte d"Ivoire, for his valuable and constant support which enabled us to understand that Côt e d"Ivoire and Mali are not only united by a land border, but that they are also united in the quest for sustainable peace.

Acknowledgements

A Self-Portrait of Mali on the Obstacles to Peace

We wish to thank all those who contributed to the drafting and proofreading of this report. Undoubtedly, their efforts and expertise helped to improve its quality. IMRAP and Interpeace sincerely thank their nancial partners, i.e. the European Union (EU) and the Danish Development Agency (DANIDA) for their nancia l support towards the establishment of this participatory and inclusive national dialogue process aimed at formulating a consensual agenda owned by the Malian people for the st rengthening of social cohesion and sustainable peace in Mali. Our gratitude also goe s to the governments of Norway and the Netherlands for their institutional support. As Scott M. Weber, the Director-General of Interpeace said in his opening address at the National Conference in January 2015 in Bamako, “We are at the end of the beginning, but not at the end of the process." This is, therefore, the opportunity to once again thank all the participants of the National Conference on the validation and prioritization of the entry points in the quest for sustainable solutions. Your enthusiasm and perceptiveness in the choice of priorities to be tackled in the second phas e of the participatory consultation on sustainable solutions, are a testimony of your support for this noble initiative. We now invite you to assist and guide us in the participatory process in the quest for consensual solutions relating to the priorities identied for peace in Mali.

On behalf of the IMRAP Team,

Traoré Nènè Konaté,

Executive Directo

r 1.1 Mali, the land of diversity.......................................................................19 1.1.1 Mali, land of mythical kingdoms and empires ................................19 1.1.2 Ethnocultural mosaic ......................................................................22 1.1.3 Political diversity ........................................................................ ......27 1.1.4 Religious diversity: peaceful coexistence between the religions .......29 1.1.5 Foundations of the social contract...................................................31 1.2 Destabilizing dynamics linked to socio-political diversity ...................35 1.2.1 Collapse of traditional socialization frameworks ...............................35 1.3 Dynamics of exploiting the diversity ....................................................46 1.3.1 The religious dimension ...................................................................46 1.3.2 The political dimension ....................................................................53 1.3.3 The socio-ethnic dimension ...........................................................57 1.3.4 Independent radio stations as vehicles of exploitation and manipulation ........................................................................ ....62

2.1 Increased competition around economic resources and opportunities ..68

2.1.1 Natural resources ........................................................................ ....69 2.1.2 Other disputed economic opportunities ..........................................76 2.2 Perceived regulatory deciencies: the case of agreements ..............79 2.3 Perceived impact on socio-political cohesion ...................................84 2.3.1 Tensing of cohabitation relations at local level ..................................84

2.3.2. Declining trust in institutions

Table of contents

Table of contents

A Self-Portrait of Mali on the Obstacles to Peace

3.1 Structural imbalances and deciencies in the provision of public services ........................................................................ ...........99 3.1.1 ..............100 3.1.2

Health

...................104 3.1.3

Security

.................105 3.1.4

Justice

..................108 3.2

Crumbling service delivery: corruption and

lack of civic responsibility ...................................................................112 3.2.1 Shared corruption ........................................................................ .113 3.3 Decentralization: a solution and its challenges ..................................118 3.3.1 Context, objectives and achievements of the decentralization policy ........................................................................ ...................118 3.2.2 Perceived limitations of the process: decentralization, a 'problematic' solution? .............................................................124 3.4 Social perceptions of imbalances and deciencies in providing public services .....................................................................134 3.4.1

Disparities between the advantaged centre and the

marginalized periphery .................................................................134 3.4.2 From the perception of favoritism to the seeds of the North/South narrative ...................................................................135 4.1 Mali, a land of conicts ........................................................................ 144
4.2 Conict management and resolution mechanisms ...........................148 4.2.1 Use of force ........................................................................ .........148 4.2.2 The path of negotiation ................................................................152 4.3 Impact of management mechanisms on society ...............................158 4.3.1 Crumbling of social cohesion and trust ..........................................158 4.3.2 Between a feeling of abandonment, ethnic polarization and socio-political radicalization ..........................................................161 1. Criteria for selecting Actors/Stakeholders in consultations ..............175 2. Participants at consultation sessions .................................................177 3. Diagram on the participatory process ...............................................178 AFD

French Development Agency

ALG

Liptako Gourma Authority

AMJM

Malian Association of Muslim Youths

AMO

Compulsory Health Insurance

AMUPI Malian Association for the Unity and Progress of Islam AOF

French West Africa

AQIM

Al-Qaeda in the Islamic Maghreb

BOAD

West African Development Bank

ECOWAS

Economic Community of West African States

CNID

National Democratic Initiative Congress

CHCs

Community Health Centres

DDR

Disarmament, Demobilization and Reintegration

DNCT

National Local Authority Directorate

FBSA

Belgian Food Security Fund

FCFA

African Financial Community Franc

IFAD

International Fund for Agricultural Development

IMF

International Monetary Fund

GATIA

Imghad and Allied Tuareg Self-Defence Group

HCCT

Local Authority High Council

HCI

Islamic High Council

IMRAP

Malian Institute of Action Research for Peace

MNLA

National Azawad Liberation Movement

NGOs

Non-governmental organizations

PCF

French Communist Party

GDP

Gross Domestic Product

PMT

Malian Labour Party

PNIR

National Rural Infrastructure Programme

PSP

Sudanese Progressive Party

TFPs

Technical and Financial Partners

RDA

African Democratic Rally

UDPM

Democratic Union of the Malian People

UNAFEM

National Union of Women Muslims

US-RDA

Sudanese Union-African Democratic Rally

List of Abbreviations and Acronyms

List of Abbreviations and Acronyms

Since it attained independence in 1960, Mali has witnessed several rebellions and periods of instability. 1 The rst rebellion, which started in 1963 as a result of a territorial, identity and socio-economic marginalization dispute and the rejection of the political system, was brutally crushed, thereby setting the tone for difcult cohabitation between certain communities of the North, which was itself plagued by its own cleavages (ethnic, political, social and economic). Since then, the rebellions, which have almost become cyclical (1990, 2006 and 2012), have heightened the mistrust be tween the central authorities in Bamako and certain communities in the North in pa rticular. 2 However, the analysis of the conicts tends to give too much weight to these rebellions, thereby obscuring the latent conicts which exist throughout the country as well as the various governance-related difculties which also constitute a huge risk for peace and social cohesion in Mali. In spite of the complex relations between its various communities, the country was able to use its history to nd the necessary motive to maintain its u nity within the framework of a certain cultural diversity to guarantee its integrity. 3

However, the

attacks of January 2012, the constitutional disruption of 22 March 2012 as well as the attempted coup d"état of 30 April 2012 and its attendant violence, plunged Mali into an unprecedented, serious and multi-dimensional crisis. While many see it as a continuation of the history of rebellions which Mali has witnessed in the past, others emphasize its peculiarity by putting together several aggravating circumstances at both the internal and external levels and by stating its incomparable nature in terms of its impact on social cohesion. Indeed, the extent of the crisis and the speed at which the Malian State collapsed, have brought to the fore the State"s fragility and the serious societal and structural problems facing the Malian society. Thus the views expressed in the countrywide consultations depart from those of many observers who instead reduce the crisis to separatist inclinations or schemes pitting the North against the South.

Introduction

1

Since it attained independence in 1960, Mali has undergone four major rebellions (1963, 1990, 2006 and 2012), preceded

by armed revolts during the colonial era. 2

OXFAM (2013), Reconstruire la mosaïque.

3

With the exception of the rst rebellion, which started in 1963, the subsequent rebellions (1990, 2006, and, to a lesser

extent, 2012) were sanctioned by peace accords : (i) 11/08/92 - National Treaty ; (ii) 4/07/2006 -Algiers Accord ; (iii)

18/06/2013 -Ouagadougou Preliminary Accord. See among others: POULTON, Robin-Edward and Ibrahim Ag Youssouf

(1999).

La paix de Timbuktu

, UNIDIR, 424pp.

A Self-Portrait of Mali on the Obstacles to Peace

At the height of the crisis, the humanitarian and security situation led to more than 300,000 internally-displaced people and nearly 165,000 Malian refugees in neighbouring countries, particularly women and children. 4 It is against this background that the Malian Institute of Action Research for Peace (IMRAP) was established as an association on 31 October 2013, in order to contribute to the revival of the desire to live together in harmony and to the deepening of dialogue as a mechanism to jointly face challenges and to capitalize on opportunities for the consolidation of peace, reconciliation and social cohesion. IMRAP is made up of a core team, which also relies on a network of researchers and mobilizers in the regions in order to ensure that its activities have a wider scope and representativeness at the national level. From November 2013 to December 2014, IMRAP, in partnership with Interpeace, 5 travelled across Mali 6 and to refugee camps in order for Malians to develop their self- portrait on the obstacles to peace. The cross-cutting analysis of the issues emerging from the dialogue between Malians highlights four key factors which are considered obstacles to peace. These are: i) management of socio-political diversity and the crisis of societal values; ii) regulation of competition for natural resources and economic opportunities; iii) governance of access to public services, and iv) mechanisms for the management/resolution of local conicts and rebellions. The order of these factors does not indicate a prioritization of the identi ed obstacles. Additional challenges, which are interrelated and overlapping, include: the security of the country and protection of the people, reintegration of displaced persons and refugees, governance, access to resources and employment, justice, political dialogue and the restoration of trust. 4 Statistical data from the United Nations High Commission for Refugees (UNHCR), available online at http://data.unhcr.

org/SahelSituation/country.php?id=501. According to the UNHCR gures, as at December 2014, Mali still had 143,195

refugees in neighbouring countries, in addition to 86,026 internally-displaced persons, against 14,356 returnee refugees :

OCHA,

Mali: Aperçu humanitaire

, 4 December 2014. For the latest gures and distribution details, see: http://reliefweb.int/ country/mali 5

Interpeace is an independent international organization working to consolidate peace and recognized throughout the world for its proven approach aimed at helping societies to build sustainable peace. Interpeace w

as established by the United Nations in 1994 to develop innovative ways of resolving conicts.It remains a strategic partner of the UN. Its Board of Directors is chaired by the former President of Ghana, John A. Kufuor. For further information, see: www.interpeace.org

6 Kidal is the only region which has not been the subject of wide eld consultations for s ecurity reasons and/or volatility of

the political situation. However, since the IMRAP team has a local researcher and mobilizers in the Kidal Region, individual

meetings were held with key stakeholders.Representatives of the Kidal region were also able to travel to Bamako for the

National Conference. Additionally, they were consulted in Bamako as well as in the refugee camps. This report is not in any way exhaustive. It is intended as an overview of the major challenges and to serve as a basis for a quest for concrete solutions and actions aimed at making an active contribution to the return to sustainable peace in Mali. This work is premised on the observation that peacebuilding cannot be achieved without the active participation of all stakeholders at all levels of th e Malian society. The approach of the Interpeace and IMRAP programme is based on the participation of the people and their leaders in the quest for solutions to the main chal lenges relating to peace and social cohesion. The programme methodology therefore, aims to make an effective contribution to the identication of the fundamental issues relating to peacebuilding. It also aims to strengthen participation as a fundamental aspect of the democratic process and the management of public affairs. This methodology, referred to as Participatory Action Research, offers a framework for collective research in which Malians participate in the research on the obstacles to sustainable peace and on the solutions to be provided, while the IMRAP researchers focus on the facilitation of discussions and the direction of ideas to ensure that the process is constructive. In addition to putting Malians at the centre of the process, this methodology ensures the creation of neutral spaces for dialogue in which Malian stakeholders can m eet, listen to one another and draw more closely together. Such an approach requires time in order to build trust among the concerned stakeholders and to create conditions for constructive, secure and inclusive dialogue. This report and the accompanying documentary on the obstacles to peace in Mali are the culmination of the rst phase of the IMRAP and Interpeace programme 7 of consultations throughout the country and in refugee camps. It is a work of qualitative research in which the outcomes of the consultations are to be used as a mechanism for dialogue and future-oriented reection. It should be understood that the ideas in this document come from groups formed on the basis of diversity and representativeness. They reect the current image of Mali, as perceived by the various groups of Malians consulted.

Methodology

7

The second Participatory Action Research phase will aim at assisting Malians in the identication and imple

mentation of consensual and sustainable solutions.

A Self-Portrait of Mali on the Obstacles to Peace

In order to achieve representativeness, and, for that matter objectivity and quality, the identication of participants for the consultations was based on a mapping of the various stakeholders of the area, with the help of local researchers and mobilizers and a series of previously established criteria mindful of ethnic, religious, political, generational, gender and other sensitivities (see Annexes). Special at tention was paid to reducing the vertical space, which often separates the authorities and th e elite from the rest of the population, and to creating spaces for open and constructive dialogue between them. The methodology gave preference to the collection of untampered testimonies that were representative of the opinions of the entire Malian society. Facilitation was done openly and without pre-established questions (with the exception of the initial question: “What are the obstacles to sustainable peace?"), so as to avoid controling or leading the discussions. The role of the facilitation team was to bring out the opinions expressed, reformulate them where necessary in order to reach a common understanding and to reintroduce them into the debate. This technique assigns the lead role to the participants and helps to ensure the emergence of a consensus among the group or, as the case may be, helps to bring out contradictory positions. Given IMRAP"s ability to provide translation into the various local languages (on account of the diversity within the team itself and through a network of local researchers and mobilizers), the team encouraged participants to express themselves in the language in which they felt most comfortable. It was a delicate but essential exe rcise to ensure that participants" words were conveyed with the full meaning with which they were intended. Between November 2013 and March 2015, the IMRAP team travelled to the eight regions of Mali, the District of Bamako and to refugee camps in Mauritania and Niger (see Map 1 below) where focus groups and individual meetings with key stakeholders were organized (see Appendices). Moreover, homogeneous focus groups were sometimes organized for certain social groups in Mali such as women (more than

25% of those consulted), youth (35%), minorities and the marginalized. The aim was

to enable them express themselves freely and, by so doing, to ensure that the voices of all segments of the society were reected in the research. 8 8 Of the 4,700 persons consulted during the consultations at least 1,125 w ere women (25%) and 1,650 young people aged less than 35 (35%). This important work ensured that about 4,700 persons were consulted. A three-phase approach was followed (see appendices): (ii) Consultations at the county level through 123 focus groups and about 60 individual and group meetings (see details in the Appendices); (ii)

Regional Restitutions, or conferences, aimed at validating and deepening the preliminary analysis of Malians emerging from the initial consultations, and

(iii)

A National Restitution (National Conference) aimed at presenting and validating the Self-Portrait of Mali on the obstacles to peace and prioritizing the

entry points for the quest for solutions appropriate to the Malian context. The empirical data collected from the population was complemented and enriched by analyses by Malian resource persons with proven expertise in the various thematic areas. Desk research further claried and enriched the understanding of the issues at stake.

Audiovisual tools

were used to complement the research. The documentary lm ensures the authenticity of reported statements by faithfully retaining the opinions expressed during the discussions and capturing the mood in which the consult ations were conducted. In a country as vast as Mali, the use of audiovisual equipm ent proved to be a key tool for stimulating debate. Showing focus groups pictures of debates from other groups, helped to create links and stimulate mutual understanding between social groups that would not ordinarily enter into dialogue with each other due to geographic, cultural, ethnic, generational and, even, psychologic al distances.

During the

National Conference

at the Bamako International Conference Centrequotesdbs_dbs7.pdfusesText_13