Country: Mali
By Matthew Steadman, Project Officer – Conflict & Insecurity
2019 was a deeply concerning year for the Sahel. Attacks by extremist groups have increased five-fold in Mali, Niger and Burkina Faso since 2016, with the UN now describing the violence as “unprecedented”. The past year was the deadliest by far with more than 4,000 deaths reported. Niger lost 89 soldiers in a single attack by Islamic State in Changodar in January, whilst two ISGS attacks in Mali in November claimed the lives of 92 soldiers. In Burkina Faso alone, 1,800 people were killed in the past year due to extremist violence. The intensification of extremist activity in the Sahel threatens to engulf West African coastal states, as already weakened national defence and security forces come under increasing pressure. Much international coverage of the developing events has focussed on the operational aspect of the crisis, from the various armed groups operating in the region to the international response, spearheaded by France’s Operation BARKHANE but also including MINUSMA, the G5 Sahel, the United States and the EU. However, one aspect that has been regularly overlooked is the poor capacity of the region’s national defence forces to respond to security threats as a result of poor defence governance, corruption and weak institutions.
Corruption and conflict go hand in hand, with corruption often fuelling violence and subsequently flourishing in afflicted regions. Because of corruption and poor governance, defence and security actors are often seen not as legitimate providers of security, but as net contributors to the dynamics of conflict; with poor training, management and institutional support leading to a downward cycle in which it is the civilians that more than often feel the brunt – as has been seen in Burkina Faso, Nigeria and Mali. When security institutions are perceived as corrupt, public confidence in government erodes further. Fragile governments that are unable to respond to the needs of citizens can exacerbate existing grievances, heightening social tensions and hastening the onset of violence. Across the Sahel, armed groups have been able to entrench themselves first and foremost in those areas which have been neglected by weakened and corrupt central authorities, often by positioning themselves as providers of security, justice and basic services. In this way, it is crucial to view corruption not just as the consequence of conflict, but more often as its root cause and therefore a critical element for any attempt at resolution to address.
Against this backdrop, research by Transparency International – Defence & Security’s Government Defence Integrity Index (GDI), highlights the deficiencies in the safeguards which should provide protection against corruption in the defence sectors of Burkina Faso, Cote d’Ivoire, Ghana, Mali, Niger and Nigeria, increasing the likelihood of defence funds and capabilities being wasted due to mismanagement of human, material and financial resources. In doing so, the GDI outlines a number of key issues which need to be addressed in order to enhance security forces’ ability to respond to threats and protect local communities:
Reinforce parliamentary oversight
Despite most countries having formal independent oversight mechanisms for defence activities, policies and procurement, our research has found that these are often only partially implemented, easily circumvented and insufficiently resourced to carry out their mandates. The result, is defence sectors which are still largely the preserve of the ruling elite and shrouded in secrecy, raising concerns over the use of vital defence funds and the management of resources and assets.
Strengthen anti-corruption measures in personnel management and military operations
Personnel management systems are also vulnerable, with inadequate or non-existent whistleblowing protections and reporting mechanisms, unclear appointment, and promotion systems open to nepotism, and codes of conduct which fail to specifically mention corruption or enforce appropriate sanctions. Equally, despite many countries in the region being actively engaged in on-going counter insurgencies, there is no evidence of Mali, Niger, Burkina Faso or Nigeria having up to date doctrine which recognises corruption as a strategic threat to operations, meaning there is little if any appropriate training on the pitfalls associated with operating in corrupt environments and little appreciation of how soldiers’ conduct might exacerbate the violence they are trying to quell.
Increase transparency and external oversight of procurement processes
Perhaps most concerning of all is that corruption risks in defence procurement remain extremely high across the region. The procurement process is opaque and largely exempt from the checks and balances which regulate other areas of public procurement in countries like Mali and Niger for instance. Across the region, the effectiveness of audit and control mechanisms over the acquisition of military goods and services is heavily restricted by blanket secrecy clauses and over-classification of defence expenditure. This raises serious concerns over the utility, relevance and value for money of purchased equipment and increases the risk of that frontline troops will not have the resources required to deliver security.
Despite these structural vulnerabilities, international assistance in the region has been heavily focussed on security assistance rather than on improving the underlying structures that govern and manage defence and security in the states that make up the region. The 13th January summit between French President Emmanuel Macron and the leaders of the G5 Sahel countries, was emblematic of this with the meeting focussed on reaffirming France’s military presence in the region and announcing the deployment of further troops, whilst side-lining the governance deficit which underlies so much of the crisis. Programmes have tended to focus on training and equipping military and police forces in Mali and Burkina Faso for instance, or improving strike capabilities by investing in US drone bases in Niger. The concern however, is that the impact of these efforts will be blunted without a more sustained engagement in addressing the more fundamental failings that lay at the hearty of the problem. Mali’s recent announcement of a recruitment drive for 10,000 new defence and security forces personnel for example, will only be effective if it is accompanied with improvements in the way these troops are trained, led, equipped and managed and if the political and financial processes which govern them are strengthened and corruption risks reduced.
A successful response, at the national, regional and international levels, to the violence cannot be just security focussed. Poor defence governance and corruption risks will continue to hamper national forces’ operations and will hinder the impact of international efforts which support them. A more comprehensive approach is needed which addresses the underlying corruption risks which permeate the region’s defence sectors. Improving oversight, transparency and accountability is a critical step in securing a sustainable peace in the region and ensuring that defence and security apparatuses do what they should, which is to further the human security of populations that they should be serving.
Corruption is widely recognized as one of the fundamental drivers of conflict in Mali. A lack of accountability to the population and a failure to address internal patronage networks has fed into two coup d’états, human rights abuses and the permissive environment for transnational trafficking and organized criminal activity that has fuelled regional conflict. In the meantime, by reducing the operational effectiveness of the Malian armed forces, corruption undermines the state’s ability to field a defence and security apparatus that can guarantee the population protection from insurgent groups, armed violence, or the resurgence of civil war.
Whilst the lack of safety and insecurity linked to conflict is one of the top five most important problems reported by Malians across the country, weak governance in the defence and security sector has hugely corroded public confidence in the government and state security institutions.
This mistrust has been exacerbated by a high level of secrecy and a lack of transparency in the defence sector that have meant that the otherwise vibrant Malian civil society has been unable to provide robust oversight over defence policies, or play a role in combating defence corruption. Civil society in turn has limited capacity to oversee the sector’s activities and requires increased expertise on defence governance and accountability to develop well-evidenced and holistic reform recommendations. At the same time, it lacks opportunities to engage with officials at the level required to catalyze reforms within state institutions. This has given the Malian army the freedom to act largely unmonitored in the North and other insecure areas at a time when the country’s security and integrity is challenged on a daily basis.
Building on our expertise as well as on inputs from Malian civil society organisations from across the country, this report will provide best practice guidelines and recommendations which are designed to diminish the space for corruption and to improve the governance and institutional strength of Mali’s defence sector.
The French Translation of this report can be downloaded here.
October 24, Bamako – Mali’s defence sector has undergone a comprehensive health check in new research from Transparency International – Defence and Security (TI-DS), which stresses the need for urgent action to tackle corruption in order to enable the military to better respond to Mali’s numerous security threats.
Building Integrity in Mali’s Defence and Security Sector assesses the strength of institutional safeguards to corruption in the Malian defence sector and highlights weaknesses in key institutions which have created an environment in which corrupt practices have been able to thrive.
As part of TI-DS’ work to promote integrity in defence sectors across West Africa, this report is designed as an advocacy tool for Malian civil society organisations and campaign groups.
By highlighting the drivers and enablers of corruption and providing tailored recommendations and guidelines, TI-DS offers a roadmap to improved governance and a more accountable military.
Steve Francis OBE, Director of Transparency International – Defence and Security, said:
“Corruption and conflict go hand in hand and their coexistence feeds violence and insecurity. Nowhere is this vicious cycle more evident than in Mali where a lack of integrity and accountability has fuelled two coup d’états and weakened the security forces further.“
“In order to tackle the current security crisis, and to protect the population from future threats, the corruption undermining public trust in the military and reducing its operational effectiveness must be weeded out. We urge the Malian authorities to consider adopting and implementing these policy proposals to help reduce and even eliminate some of the primary enablers of corruption in the defence and security sector. The prize for doing so a military force that the people of Mali want and deserve.”
Key recommendations include:
· Greater oversight of defence purchases and finances. Mali’s defence institutions would benefit from greater oversight and controls over defence purchases and finances. This would enable the efficient use of precious resources and ensure that the Malian defence and security forces are provided with the right equipment to respond to the country’s security threats.
· Harness the powers of the National Assembly. Although the Malian Constitution provides the National Assembly with adequate powers to scrutinise the actions of the executive, it needs further means and the expertise to perform proper oversight over defence. Moreover, access to information remains limited as the overclassification of information curtails its capacities to monitor defence activities and scrutinise budgets.
· Strengthen the integrity of the sector. Mali’s defence establishment suffers from a lack of accountability and transparency in human resource and asset management which has negatively impacted the integrity of the defence apparatus. More transparent, objective and clearly defined human resource and asset management processes will help professionalise and improve the effectiveness and integrity of the armed forces.
This research comes at a crucial time for Mali. Since the near-collapse of the Malian military in 2012, government troops have been battling jihadist militants in the north of the country.
This continued insurgency has prompted local militias to take measures to protect their own interests, further complicating the security situation for the government and exacerbating the suffering of Mali’s citizens.
Note to Editors:
Building Integrity in Mali’s Defence and Security Sector is being officially launched today, October 24, in Bamako.
Contact:
Harvey Gavin
Harvey.gavin@transparency.org.uk
+44 (0)20 3096 7695
++44 (0)79 6456 0340
Transparency International is the civil society organisation leading the fight against corruption
Corruption is widely recognized as one of the fundamental drivers of conflict in Mali and a lack of accountability to the population from the defence and security apparatus has fed into the unrest. With the support of the UNDEF, and in partnership with Transparency International’s National Chapter in Mali CRI-2002, we are seeking to reduce the risk of corruption in the Malian defence sector, through strengthening civil society’s expertise on defence accountability and good governance and building its capacity to influence anti-corruption reforms in the sector.
In many countries, there is a critical disconnect and lack of communication and understanding between civil society and defence and security institutions which results in very limited interaction and engagement. This hinders the effectiveness and accountability of defence institutions and restricts civilian understanding and knowledge of the sector which can lead to a shortfall in trust between the two.
We have conducted detailed research into institutional safeguards in Malian defence institutions and held a series of regional focus group discussions to form a solid evidence base to help build the capability and coordination of civil society advocacy efforts for greater defence accountability. The creation of a national Civil Society Organisations (CSO) Forum specialised on defence and security issues, made up of 30 Malian CSOs with its own structure and strategy has helped to coordinate civil society efforts and establish a credible platform with which to engage with the defence sector. We have also worked to build relationships with key government agencies in Mali and organised leadership days, bringing together senior defence officials with civil society actors to bridge the gap between the two and foster consensus on necessary reforms. This approach has been complemented by an ongoing media campaign which is raising awareness as to the detrimental effects of defence sector corruption among the wider Malian population.
TI-DS in Mali
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Transparency International Defence and Security has launched a new project “Strengthening CSO Engagement with Defence Institutions to Reduce Corruption and Strengthen Accountability in Mali”, funded by The United Nations Democracy Fund.
The project seeks to build civil society’s ability to advocate for accountability and transparency in the Malian defence sector and to open a space for them to do so. It aims to be a first step in strengthening the links between national civil society, the defence institutions and the democratic bodies charged with oversight of defence in Mali. Over the next 18 months, TI-DS will support national civil society organizations to identify specific institutional reforms that are needed to reduce corruption risk and offer technical expertise to support civil society in holding constructive dialogue with defence.
The project will run from April 2018 to September 2019 and will be jointly delivered with CRI-2002, the national contact for Transparency International in Mali.
In this study Transparency International’s London-based Defence and Security Programme explores in some detail how security assistance programmes fared in an environment affected by corrupt practices and the nexus of corruption and criminality. The case study here is security assistance provided to the Malian Army by the U.S. and France in 2001-2012, i.e. prior to the coup in which units of the Malian Army deposed a sitting president. Our goal is to unpack the impact corrupt practices can have on the success of specific security assistance programmes and to start a conversation on how these risks can be addressed.