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Denmark’s Transition Programme for Mali, 2015-2016

Transition Programme Document

14 January 2015

J.nr. 104.Mali.Bridge

Denmark’s Transition Programme for Mali 2015-16 – Programme Document

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Contents

Contents ......................................................................................................................................................... ii

Abbreviations ............................................................................................................................................. iii

1 Introduction ........................................................................................................................................ 1

2 Summary of Country Level Context............................................................................................. 1 2.1 The Country Context ............................................................................................................................... 1 2.2 Strategic objectives ................................................................................................................................. 4 2.3 Theory of Change at the Country Programme Level ................................................................... 4 2.4 Strategic considerations and justification of country programme ....................................... 5 2.5 Aid effectiveness and alignment to national objectives and partner strategies .............. 6 2.6 Contextual risk analysis ........................................................................................................................ 7 2.7 Budget for the country programme at the thematic level ........................................................ 7

3 Promoting Democracy, Peace and Reconciliation ................................................................. 8 3.1 Strategic Considerations and Justification ..................................................................................... 8 3.2 Thematic Programme Summary ...................................................................................................... 10

4 Improving Access to Water and Sanitation ........................................................................... 14 4.1 Overall strategic considerations and justification .................................................................... 14 4.2 Short Summary of the Development Engagement ..................................................................... 15

5 Promoting Private Sector Development ................................................................................ 17 5.1 Strategic Considerations and Justification ................................................................................... 18 5.2 Thematic Programme Summary ...................................................................................................... 19

6 Thematic Programme: Development Contract .................................................................... 22 6.1 Strategic Considerations and Justification ................................................................................... 22 6.2 Thematic Programme Summary ...................................................................................................... 25

7 Overview of Management Set-up .............................................................................................. 28 7.1 Management at Country Level .......................................................................................................... 28 7.2 Thematic Programme-Level .............................................................................................................. 28 7.3 Engagement Level .................................................................................................................................. 28 7.4 Financial Management ......................................................................................................................... 29

8 Country Programme Budget ....................................................................................................... 30


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Abbreviations

AMG (Danida) Aid Management Guidelines CFA CFA franc – Currency in former French colonies in West Africa CHD Centre for Humanitarian Dialogue CSCRP Cadre Strategique pour la Croissance et la Reduction de la

Pauvreté 2012-2017 CSO Civil Society Organisation DE Development Engagement DIHR Danish Institute of Human Rights DTPM Denmark’s Transition Programme for Mali, 2015-2016. EU European Union GAP Government’s Action Plan, 2013-2018 GBS General Budget Support GDP Gross Domestic Product GoM Government of Mali HRBA Human Rights Based Approach IDP Internally Displaced Person INGO International Non-Government Organisation MDG Millennium Development Goals MINUSMA United Nations Multidimensional Integrated Stabilization

Mission in Mali MNLA Mouvement National Liberation de l’Azawad NGO Non-Government Organisation ODA Overseas Development Assistance OECD/DAC Organisation for Economic Cooperation and

Development/Development Assistance Committee PACEPEP Croissance Économique et Promotion de l’Emploi stimulée par

le Secteur Privé du Mali PEFA Public Expenditure and Financial Accountability PFM Public Financial Management PSF (Danish) Peace and Stabilisation Fund RDE Royal Danish Embassy SIDA Swedish International Development Agency SME Small and medium-size enterprises TA Technical Assistance UEMOA West African Economic and Monetary Union UNDP United Nations Development Programme UPR Universal Periodic Review WB World Bank


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1 Introduction

Denmark’s Transition Programme for Mali (DTPM) for the two-year period 2015-16 does not comprise all the elements normally required for a country programme, including a country policy paper. It is a transition programme developed with due consideration to Mali’s Transition Roadmap unanimously approved by the Malian Parliament on 29 January 2013 as well as the programmes and partnerships established in the immediate aftermath of Mali’s crisis on the basis of the priorities presented by the Malian authorities and endorsed by the international community during the conference ‘Together for a New Mali’ in Brussels in 2013. In this overall context, the opportunities for changing strategies have been limited. Focus has been on continuing the support Mali’s precarious transition process while using the two-year period to formulate a coherent country policy and a country programme for the period 2017-2021 that will coincide with Mali’s next five-year plan.

The DTPM is based on the assessment that Mali is likely to remain fragile over the coming years and that there is a high risk of resurgence of insecurity if the government (with the help of the international community) fails to build the foundation for a sustainable peace. Within the overall objective of contributing to laying the foundations for a sustainable peace and economic recovery, the strategic thrust of the DTPM is to support reforms of key institutions, support basic public service delivery, develop social cohesion between communities as well as between the people and the state, and to help lay the foundation for a more robust and inclusive economic recovery. This thrust is operationalised through the provision of a Development Contract (General Budget Support) and the following three thematic programmes: (i) promotion of democracy, peace and reconciliation; (ii) improving access to water and sanitation; and (iii) strengthening private sector development. The DTPM is complemented by Denmark’s other efforts at increasing security and strengthening resilience through humanitarian assistance, the regional Sahel programme, the support to MINUSMA, the EUCAP Sahel and the framework agreements with Danish NGOs in Mali.

The programme has been developed in consultation with the Malian government. It is aligned with the key national policies and plans prepared in the aftermath of the crisis, including the Government’s Action Plan (GAP) for the period 2013-2018 that was endorsed by the international community at the international donor conference in Brussels in 2013. The DTPM design has benefitted from the guidance of the Danish Programme Committee in April 2014, the recommendations of an appraisal mission carried out in September 2014 and a desk appraisal in December 2014.

2 Summary of Country Level Context

2.1 The Country Context

Mali is emerging from one of the most severe crisis in its history. The northern rebellion that started in January 2012 and the military coup that followed in March 2012 revealed deep-rooted fractions in the Malian society and have led to unprecedented levels of insecurity and political and social fragility. Mali is slowly recovering from the socio-political turmoil; but the situation remains fragile and the crisis continues to be felt in Mali and the neighbouring countries within the Sahelo-Saharan strip.

During 2013 the French led ‘Operation Serval’, supported by i.a. Denmark, succeeded largely in clearing the three Northern regions from violent extremists that had taken control of the territory. The operation was followed by the launch of the UN stabilisation mission, MINUSMA, in July 2013. Through the adoption of resolution 2164, MINUSMA’s mandate was renewed with an emphasis on supporting the political dialogue and reconciliation process. Since the withdrawal of the ‘FAMA’, the Malian military forces, following heavy clashes with the armed groups in Kidal in May 2014 and the end of ‘Opération Serval’ in July 2014, the security situation has deteriorated. The renewed violence and asymmetric nature of the conflict remains a deterrent, keeping many refugees and internally displaced households from returning. Peace talks between the government and the armed northern groups have been on-going since July 2014 and are seen as key to improving the security situation in the North.


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The successful presidential elections and subsequent legislative elections in 2013 represented two key milestones in the Transition Roadmap endorsed by the international community. Ibrahim Boubacar Keita was elected president with overwhelming majority of the votes and on promises of a re-foundation of Mali. He is supported by an alliance of parties that won 115 out of 147 seats in the national assembly. Municipal elections have been postponed twice, but are now expected to be held in April 2015, and the terms of all current elected officials have been extended till then.

During 2014, the governance situation in Mali deteriorated as a result of the revelation of a number of transactions, including the purchase of a presidential plane, the issue of a government guarantee for a public contract, and the purchase of over-priced army equipment. The uncovered off-budget expenditures that amounted to 2% of GDP revealed severe lapses in the Public Financial Management (PFM) system and raised questions about the commitment to transparency. The situation has since improved following the Government’s agreement to publish the two independent audit reports on these transactions, address the systemic weaknesses in the procurement process, include all extra-budgetary expenditures in the budget, and report on progress in the sanctions process. It is important to keep in mind that the capacity of the Malian government already was weak before the crisis and has not improved over the past two years. Care should be taken that the absorption capacity is respected in order to strengthen capacities gradually and not provoke counter-productive results. This is of particular relevance in the perspective of the considerable amount of funds pledged for Mali’s development during the Brussels conference. The fact that the present Prime Minister, Mr. Modibo Keita, is the third since the Presidential elections further illustrates the concerns over political stability and continuity in the government.

Mali’s governance indicators in terms of political stability, rule of law and control of corruption have deteriorated over recent years. Part of the explanation lies in the North, where the authority and legitimacy of the State is weak and where trafficking and criminal networks flourish. But this does not explain the deterioration in control of corruption. In Transparency International’s Corruption Perception Index 2014, Mali ranks 115 out of the 175 countries surveyed. Both the World Bank and ILO have reported on the ways in which corruption affects the economy by impeding the growth of the private sector and the activities of entrepreneurs in Mali. Other studies confirm that corruption affects access to land, registration and documentation of property rights and the regulation of disputes over land. Recognising the critical importance of control of corruption for peace and stability, the President made the fight against corruption a top priority in September 2013 along with economic recovery and a return to normalcy and security in the Northern regions.

Crimes under international law, human rights violations and abuses committed by armed rebel groups and by Malian security forces continue to be reported. Despite the commitments made by Malian authorities regarding investigations into serious human rights violations committed since the beginning of the conflict, very few cases have advanced, and the justice system continues to be corrupt and dysfunctional. Other human rights problems such as violations of fundamental human rights, women’s rights, children’s rights, and slavery are not just related to the recent conflict; but run much deeper in society.

Mali’s economy has been viewed as performing well in the recent past. As a member of the West African Economic and Monetary Union (UEMOA), Mali has adopted common monetary frameworks and complies with regular monitoring requirements. Despite continuing to be a highly indebted country, recent assessments by international financial and regional organisations, including an IMF assessment in 2013, have lauded Mali’s fiscal prudence, macroeconomic stability, and have in general assessed Mali’s macroeconomic policies as appropriate and a basis for continuing and growing donor support.

With a projected 5.5% real growth in 2015, Mali is expected to return to the relatively stable pre-crisis growth path. However, this should not lead to complacency. A more detailed analysis reveals serious weaknesses in the economy that have contributed to growing disparity, weak trust in the government and public discontent. In this regard it should be noted that Mali’s fairly healthy economic growth in aggregate terms in practice translates into slow and unequitable economic growth when measured in growth per capita. Due to persistently high population growth rates, per capita consumption remains low, and Mali continues to rank as one of the world’s poorest countries.


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The extreme vulnerability of the economy is underlined by the observation that 80% of the population derives its livelihood from agriculture, and that economic growth has been driven by the primary sector, food crops, rice and livestock, followed by the tertiary sector while the secondary sector has experienced a decline. With gold, cotton, and livestock counting for about 90% of all exports, Mali remains very vulnerable to fluctuations in commodity prices for the generation of export revenues.

There is a clear perception that climate change effects are increasingly felt in Mali in the form of higher temperatures, reduced rainfall, and an expanding desert. Extreme weather events such as the drought experienced in 2011, but also floods, are likely to become more frequent or intense. The situation is aggravated by the rapidly increasing population that competes for natural resources for their livelihood. The annual cost of environmental degradation in Mali is assessed to be very high. The main explanatory factors are lower agricultural and forest productivity due to land and forest degradation, but also health costs related to polluted water and to a lesser extent air pollution. These costs are mainly born by vulnerable groups who depend on rain-fed agriculture for their livelihood and who lack access to clean water and sanitation. As more and more land is brought under cultivation, deforestation is expected to continue and lead to an increase in the number of conflicts between farmers and pastoralists. Insecurity and migration is already adding to the pressure on the natural resource base. The increasing competition for scarce resources in Northern Mali has been recognised as one of several factors behind the conflict that led to the current political situation.

In urban areas growing environmental problems, primarily related to water, sanitation and waste management, are already perceived as having a significant impact on economic development due to the effects on health, causing absence from work, lower productivity etc.

The heavy reliance on a few key sectors combined with slow per capita growth has led to limited economic opportunities. The private sector has been seriously affected by the crisis with job losses and falling incomes as the result. The suspension of development assistance not only had an immediate impact on public procurement and investments; but has also led to government failure to pay many private sector suppliers. This in turn has had a negative impact on the banking sector that experienced a significant increase in non-performing loans in 2012 and 2013. A related drop in private sector investments has affected economic activity negatively, leading to serious problems in accommodating the estimated 300,000 young persons who enter the labour market each year. The growing unemployment and under-employment coupled with a rapidly growing work-force is a potential source of public discontent and unrest, placing the government under pressure to deliver on promises made.

Another observation emerging from a deeper analysis of the economy is that whatever achievement has been made in terms of poverty reduction over the recent decade has been concentrated in the Southern regions, with Northern Mali experiencing persistent consumption poverty and worsening conditions as measured by social indicators. Considerable variations in trends and social indicators in general indicate that poverty and inequality not only is a question of the North-South divide; but a much more complex challenge with inequalities across ethnic groups, urban-rural settings, and gender.

Before the crisis Mali was assessed to be on track to meet the MDGs for universal primary education, controlling the spread of HIV/AIDS and access to safe drinking water. These targets are now unlikely to be met. The 2013 Human Development Index ranks Mali as 182 out of 187 countries. A high fertility rate (6.7 children per woman) challenges poverty reduction, results in large dependency ratios, and puts immense pressure on the ability to provide basic services. The World Bank estimates that 43.6% of the Malian population lived below the national poverty line in 2010. It is assessed that this figure has further deteriorated as a result of the drought in 2011 and the political-security crisis in 2012. It is estimated that more than 800,000 people currently are in need of food assistance. The abject poverty situation and the lack of employment opportunities have made it easy for terrorist groups and criminal networks to recruit among unemployed youth.

The international donor conference ‘Together for a new Mali’ held in Brussels in 2013 revealed broad consensus that the situation calls for attention to some of the long-standing and profound problems in Mali’s governance and social structures. This was confirmed by the ‘drivers of change study’ commissioned by Danida in 2013. The study revealed deep fractures between all groups of society, but also a strong popular


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desire for a new Mali, where the old systems of “consensus politics”, clientelism, corruption and impunity and hierarchical structures are replaced with what is in essence a Human Rights Based Approach, emphasising participation, non-discrimination, accountability and transparency. The main recommendation of the report was for donors to engage sensitively, supporting long term reforms and inclusion as well as a reminder that avoiding difficult issues may leave tensions festering; only to erupt again as they did in 2012.

2.2 Strategic objectives

In the above context, the immediate priority and strategic objective is to contribute towards laying the foundations for a sustainable peace and economic recovery; while the longer term goal is to contribute to the development of a peaceful, inclusive and legitimate state that fights poverty and work for the strengthening of human rights. The proposed country programme follows the “comprehensive approach” to the reconstruction of Mali and actively pursues three of Denmark’s four strategic priority areas, namely human rights and democracy, social progress, and stabilisation and protection.

An implicit strategic objective is to place state- and peacebuilding at the centre of the programme by supporting actions aimed at promoting legitimate governance and greater social cohesion and responsibility while, at the same time, helping the government strengthen interventions addressing poverty reduction, social development, economic growth and the creation of jobs.

Another implicit strategic objective is to pursue aid effectiveness through full alignment with the objectives outlined in the internationally endorsed ‘Transition Roadmap’ and the GAP.

A final implicit strategic objective over the two-year implementation period is to strengthen the application of the Human Rights-Based Approach, to formulate a country policy and country programme for the period 2017-2021, and to develop a stronger foundation for their subsequent implementation. Of key importance in this regard will be the completion of the gender and human rights screening note and the subsequent adjustment of implementation procedures to increase effectiveness in terms of promoting human rights and green growth.

Monitoring at the strategic objective level will include a combination of the following changes in indicators such as the return of refugees and Internally Displaced People, enrolment of children in public schools, and registered visits at public health facilities as well as the analysis of trends in international surveys such as the Fund for Peace’s ‘Fragility States Index’, the World Bank’s ‘Doing Business’ ranking, Transparency International’s ‘Corruption Perceptions Index’, and Freedom House’s ‘Freedom in the World’ survey. The assumption is that a positive development in these indicators can be taken as a sign of a more stable and peaceful Malian state with a reasonably functioning public administration. However, the short duration of the DTPM calls for great care in the interpretation of short-term changes in indicators.

2.3 Theory of Change at the Country Programme Level

In order to achieve the above strategic objective of laying a foundation for a sustainable peace and economic recovery, the government will need to address some of the underlying causes of the crisis while regaining the trust of the Malian people in the process. This entails addressing key weaknesses in Mali’s state institutions to assure citizens of their effectiveness and responsiveness to their respective needs and concerns; and it entails establishing effective mechanisms for the administration to be held accountable to the Malian people. Progress in these areas is needed to facilitate national reconciliation and peaceful coexistence. At the same time the government will have to address some of the more structural and endemic vulnerability factors, including the high population growth, growing food insecurity, the high dependency on a few economic sectors, the weakness of territorial development, weak access to fundamental rights etc. in order to pave the way for a more sustainable development process.

The DTPM assumes that the Malian government is committed to addressing the above challenges and will implement the internationally endorsed GAP that aims to build government actions on strong ethical standards, citizens’ improved right of access to public services, information and participation to decision-making, greater equality in access to opportunities, and balanced territorial planning. Of particular relevance is the GAP’s expected contributions through its first axis, concerned with establishing strong


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and credible institutions; third axis, concerned with implementing an active policy for national reconciliation; fifth axis, concerned with building an emerging economy; and sixth axis, concerned with implementing an active policy for social development. These key themes in the GAP show that the government not only has built reform priorities and stabilisation activities into its national plans and budgets; but also that there is awareness of and commitment to addressing the need for dialogue and reconciliation. In addition more recent programs outside the GAP are expected to further reinforce the GAP, including, most notably, an accelerated development programme for the northern region to facilitate the return of the administration, refugees and Internally Displaced People, and to restart economic activities in the North.

In the above context of a government owned and internationally endorsed national plan, Denmark’s role is to respect and encourage support for this plan, to support the government in its implementation, and to cooperate in the coordination of resources and pursuit of effectiveness. Denmark will do this through the provision of GBS for the direct implementation of the GAP and through specific thematic interventions aimed at contributing to the following outcomes:

strengthened resilience of the Malian population especially vulnerable groups against current and future crises;

reduction in the cost and time required to secure safe water, and reduced risk of faecal contamination at public markets in selected programme areas; and

increased production in selected value chains in programme areas with the simultaneous creation of new and consolidation of old jobs in the agri-business sector as the result.

The DTPM rests on the hypothesis that the successful implementation of the GAP and the achievement of the above outcomes will remove or at least reduce the effects of some of the most significant underlying causes for the crisis and create space for the inclusive and open national dialogue that is necessary to bring about reconciliation and restore the legitimacy of and people’s confidence in the Malian government. A key underlying assumption is that the government not only has the will, but also the capacity to implement the GAP. The GAP assumes that greater executive accountability and budget transparency will reduce fiduciary risks and ensure that the allocation of public financial resources corresponds to the agreement made in the National Assembly. This in turn is expected to reduce the risk of corruption and political capture, which are both detrimental to the poorest and most vulnerable segments of the Malian society.

A security situation that will allow the government to establish and deliver public services (including in the North) and the Malian authorities ability to absorb the considerable amount of funds mobilised for the implementation of the GAP in a transparent and accountable manner are among the key pre-conditions that must be present in order for the GAP to be successfully implemented.

At the overall country programme level, Denmark’s key partners will be the Malian authorities, the international partners providing support for the implementation of the GAP, and the international and regional forces charged with the task of providing the necessary protection and security.

2.4 Strategic considerations and justification of country programme

The context of continued fragility and the need to keep focus on the challenges identified in the Transition Roadmap means that many of the adjustments made to the portfolio of development activities in the immediate aftermath of the crisis remain relevant today and have been maintained. This includes the focus on addressing the significant and immediate need for basic social services, the need to empower civil society to facilitate local and national reconciliation processes, the need to strengthen mechanisms to increase transparency and hold the government accountable, and the need to build a platform for a stable and inclusive economic growth.

The efforts in 2012 to reshape the portfolio to better address these needs, combined with the general uncertainty in the aftermath of the coup has led to implementation delays. A strategic consideration has been to respect existing partnerships and the obligation to complete all major on-going interventions in as


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satisfactory manner as possible; but with a keen eye towards measures that will increase the prospects of long-term sustainability.

The simultaneous protection of a pro-poor focus in government expenditures and the promotion of good governance and transparency in the Malian government’s use of its own as well as donor funds has been another strategic consideration. This has been of particular relevance in the choice of the budget support modality and the simultaneous support to stakeholders in the Malian society that are dedicated to fighting mismanagement and corruption. The dual aim has been to enable the Government to maintain the social sectors’ current share of the total budget while enabling the public to track and assess how these resources are being used. The development of reliable structures with mechanisms to guarantee oversight of the expected high influx of resources, including with the National Assembly, media and civil society, is considered strategic and critical in view of the expected large inflows of aid over the next decade as a result of the agreement in Brussels in May 2013.

A final consideration has been to use the process of formulating the DTPM to assess the opportunities for better incorporating Danish strategic priorities together with partners. Although the resulting country programme has not followed the standard formulation process; it is highly relevant to the needs and respects Mali’s readiness to take responsibility for its own state re-building process. This is important because Denmark’s collective efforts to support Mali become more stable and peaceful through NGO, humanitarian-, multi- and bilateral assistance is ultimately a political endeavour to be rooted in political objectives and aspirations meant to have equitable effects on the ground for all Malians. The country programme builds on such jointly politically agreed and government owned development priorities and plans - and they correspond well with Denmark’s overall development strategy ‘The Right to a Better Life’.

2.5 Aid effectiveness and alignment to national objectives and partner strategies

Following the military coup all development aid channelled through the government was stopped. Most Danish funded development activities were redirected through international and civil society partners in order to maintain as far as possible the activities of benefit to the Malian people. The transition to civil rule and the Government’s presentation of a Transition Roadmap for Mali’s recovery and reform process made it possible for most development partners to resume their operations in Mali.

At the national level, the DTPM fully respects the national goals, priorities and strategies as laid down in the Transition Roadmap and the GAP. Together they outline a strategy for addressing the causes of the crisis. They place priority on restoring security, ending impunity, facilitating reconciliation and fighting corruption; but also aim at promoting ethical standards, improving citizens’ right of access to public services, participation and inclusion in decision making, and greater equality in access to opportunities.

The programme design has been informed by the EU joint programming process, thereby avoiding overlaps and duplication while pursuing synergies with the programmes of other donors. During implementation, the RDE will, through its participation in both country- and thematic-level coordination fora, pursue cooperation with other partners with the aim of regularly assessing opportunities for further increasing the country programme’s effectiveness.

In the process of preparing the more detailed intervention approaches, strategies and activities under each thematic programme and its development engagements, the RDE has applied a consultative approach based on partners existing strategies and plans as well as the support provided by other donors. The DAC evaluation criteria of relevance, impact, effectiveness, efficiency and sustainability have provided direction during these consultations. The aim has been to pursue programme effectiveness and to find common ground for adjusting existing strategies, approaches and plans to better accommodate new Danish development priorities.

During the implementation period meetings with development partners and beneficiaries, thematic-based steering arrangements as well as internal programme committee meetings will be used to review progress and assess possibilities for further improving effectiveness and the likely impact of the thematic programmes.


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2.6 Contextual risk analysis

The successful implementation of the DTPM and the achievement of the expected results will be subject to the overall contextual risks associated with Mali’s fragility. This includes risks related to security, political and social developments, the economy, the climate and corruption.

At the overall level, the recently completed EU joint programming exercise identified a worsening in the political stability as the major contextual risk followed by the risk of deterioration in the security situation. Both these risks have been included in the annexed risk matrix (risks 1 and 4) and are assessed as likely with a potentially major impact, even after applying a series of risk mitigating actions.

Although an opportune moment for investing in the control of corruption, improving transparency and accountability in PFM as well as public oversight of budget execution, an increase in the current level of corruption is likely. This is in part due to the significant increase in influx of development assistance that combined with a culture of impunity and continued weaknesses in the systems, practices and attitudes towards controlling corruption is likely to increase opportunities for corrupt behaviour. An increase in corruption levels will have a major impact on the prospects for delivering the intended results and achieving the desired impact.

The high dependency on gold and cotton exports for revenue at state-level and on imported oil to meet Mali’s energy needs makes the Malian economy and the government’s cash-flow situation very vulnerable to changes in the trading terms in the international commodity markets. The risk that recent favourable trading terms will change to Mali’s disadvantage is likely and will lead to a drop in public revenue which in turn will affect the ability to finance government plans. Despite the Government’s application of a range of risk mitigating measures (in close cooperation with international development partners) to address both the macro-economic situation and the conditions in the energy-, private- and agri-business sector, the combined residual risk is still assessed as major because Mali remains in the very early stage of its economic diversification process.

The 2011 drought that caused a significant increase in food insecurity and an escalation in food prices showed that Mali’s population of which 80% depend on agriculture for its livelihood is extremely vulnerable to climatic shocks. The increasing pressure on Mali’s natural resources and the escalating environmental degradation further adds to this vulnerability. In this context it is assessed that the risk of a negative climatic shock that leads to a further increase in food shortage and public pressure on the government to take action is likely. Due to the short duration of the country programme, the diversion of the government’s attention and resources towards addressing the consequences of such a food crisis is likely to have a major impact on the ability to achieve the expected results.

The risk management matrix in Annex A provides a more detailed description of these risks and the associated risk mitigating actions.

2.7 Budget for the country programme at the thematic level

The Country Programme presented in this document comprises all the bilateral development activities that will be administered by the RDE during the two-year period 2015-2016. However, the budget presented in the table below only presents the amounts required for the financing of the new or additional activities for the two-year period.

Table 1: Overview of Country Programme Budget by Thematic Programme Area (in million DKR)

Country Programme 2015 2016 Total

Promoting democracy, peace and reconciliation 25 30 55

Improving access to water and sanitation - 75 75

Promoting private sector development - - -

Development Contract (General Budget Support) 40 40 80

Total 65 145 210

Note: The table above shows the proposed allocation of new funds by thematic programmes; but does not reflect budget already approved and allocated for on-going programmes.


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3 Promoting Democracy, Peace and Reconciliation

The following part presents the elements of the Thematic Programme for Democracy, Peace and Reconciliation 2015-2016.

3.1 Strategic Considerations and Justification

Overall strategic considerations

Following the crisis in 2012, a Transition Roadmap was adopted in January 2013. It highlighted the importance of establishing an environment conducive to peace and reconciliation as well as the launch of an inclusive dialogue process which adheres to the principles of democracy and the rule of law. Through the thematic programme for Democracy, Peace and Reconciliation, the DTPM will contribute to strengthening the resilience of the Malian population, especially the most vulnerable groups, against the adversities caused by the current as well as possible future crises in line with the recommendation of the Transition Roadmap.

One of the major challenges facing Mali is the recurring conflict, which is further aggravated by the stagnation of peace talks in Algiers and the continuous unrest in the country. By supporting peace and reconciliation initiatives in Mali, Denmark will contribute to instigate the preconditions for conducting long term democratic reforms and enabling other actors, including the national assembly, government, other development partners, the humanitarian partners, the INGOs, the national civil society organisations etc., to implement their activities.

Despite both presidential and legislative elections being successfully held in 2013, Mali still faces several democratic challenges in particular the lack of a counterweight that can scrutinize the government’s performance as well as exercise democratic oversight of public finances. Denmark will thus support initiatives which seek to facilitate the oversight and control of government actions.

Impunity and poor access to justice have been identified as another cause of the conflict and a problem that is likely to persist. A strategic consideration behind the choice of this thematic programme has been the recognition of the crucial importance to maintain the fight against impunity and address the exclusion of a large majority of the Malian population from the justice system. It has been a strategic consideration to address Mali’s poor record in terms of including women in key processes and gender equality in general. With the continued violence in general and gender-based violence, women in particular remain in an extremely vulnerable position in Mali. Special attention has therefore been given to including women throughout the mediation process and to ensure their participation on an equal footing at all levels.

Finally, it is important to acknowledge that the challenges presented above are not new to the Malian context and have existed for many decades, yet they have never been as pronounced as during and following the current crisis. For any significant changes to take place in Mali, the root causes of these challenges must be addressed and the resilience of the population must be strengthened. Thus, the RDE

will aim at addressing both the immediate as well as the deep rooted challenges1.

Mali’s development priorities

The objective of the strategic axe 3: “Institution and Governance Development” in Mali’s national development strategy (CSCRP 2012-2017) is to make Mali a country well governed, secure and stable; to promote peace all over the country and to improve the legal and judicial framework. Moreover, the new Government’s Action Programme (PAG) emphasises i) building strong and credible institutions by further strengthening the instruments of participatory democracy and ii) initiating an active policy for national reconciliation by rebuilding the foundations of a national reconciliation.

1 Conseil des Droits de l’Homme, Rapport de l’Expert indépendant sur la situation des droits de l’homme au Mali, Suliman

Baldo (A/HRC/25/72) (Janvier 2014):92 : Les défis majeurs que le Mali devra relever en 2014 sont la consolidation de la sécurité au nord et le renforcement de l’ordre constitutionnel que le pays avait retrouvé grâce aux élections présidentielles et législatives. Le Mali devra aussi renforcer l’état de droit et la lutte contre l’impunité et faire des efforts importants pour réformer les secteurs de la justice et de la sécurité.


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Danish development policy

The Thematic Programme has also been designed to ensure that it is fully aligned with the Danish Development Cooperation Strategy: The Right to a Better Life. It is first and foremost aligned with priority area 1: Human Rights and Democracy, with emphasis on:

Supporting parliaments, civil society, and promoting good governance and the development of democratic institutions; and the fight against corruption.

Strengthen cooperation for human rights, democracy and good governance.

Strengthen gender equality and to ensure the rights of women and girls. It is further aligned with the principles behind Denmark’s policy towards fragile states and contributes to Denmark’s overall integrated approach to Mali. Denmark supports stabilisation and security, promotion of improved livelihoods and economic opportunities as well as regional conflict management through other programmes whereas this programme aims to support democratisation, good governance and human rights as well as conflict prevention.

Justification for programme design

The combination of engagements in the thematic program, including the weight of each engagement, has been based on the aim to address the most pressing challenges related to the current crisis without neglecting the root causes that has led to recurring conflict in the past and which continues to hinder Mali to move forward. Improving the inclusion of rights holders in decision making processes and in the national dialogue, particularly those affected the most by the crisis will be a common denominator of the development engagements to create a more stable and resilient Mali.

HRBA and Gender Equality as linked to conflict dynamics have been considered in the programming. Mostly implicitly, partners’ interventions have addressed some elements of HRBA and gender equality, largely through the principles of participation and non-discrimination in mediation and conflict prevention work as well as in the works of paralegals and processes of the national assembly. Empowering rights-holders on the one hand to claim their rights and reverse the dynamics of conflicts and strengthening duty bearers’ capacity to fulfil their duties and to strengthen accountability systems– whether as part of peace negotiations or as member of the national assembly, provide an opportunity in the long term, to strengthen the foundations for resilience against violent conflicts. The challenge lies in adopting a long term perspective whilst the focus may often be on the more immediate need for cessation of violence and peace negotiations. On a general level, the thematic programme is consistent with UPR analyses and recommendations and key country human rights analyses as it focuses on dialogue and participation as means towards peace, reconciliation and strengthening democratic processes.

With regard to Gender Equality, the programme focuses on the participation and inclusion of women. By promoting women’s full participation in the dialogue and democratic processes either on prevention and resolution of conflicts or in the national assembly, the programme provides an opportunity for fostering changes both in gender roles and masculinities but also in terms of gender relations.

Given the continuous volatile situation in Northern Mali, the engagements focusing on paving the way for an environment conducive to peace and reconciliation remain relevant and are expected to become high priority engagements over the next two years. However, the root causes triggering the recurrence of conflict and limiting progress must be addressed in order to ensure long term sustainable change. Such causes include lack of inclusion of vulnerable groups, their right of access to justice and peace negotiations as well as impunity. The DTPM, in line with the HRBA, will thus focus on strengthening legislative function, the government oversight role and the representation of the National Assembly. Moreover, the DTPM will contribute to facilitating the right of access to justice and protection of human rights. These areas are already the focus of the Danish financed Programme for Good Governance 2009-14. The most efficient and impact yielding engagements of the previous programme will be continued, thus allowing for previous results to be consolidated. Contrary to the previous programme design, the inclusion and empowerment of women will be mainstreamed in each engagement instead of being confined to a separate engagement.


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The DTPM will partner with the national and international civil society as well as the Malian National Assembly for the next two years to strengthen their ability to hold government to account for its actions. The reason for not working directly with the government is, that the Malian government is an active partaker in the peace negotiations. In addition the political system’s trustworthiness and credibility has been undermined by amongst other corruption charges.

Certain engagements have in some cases been delayed as a result of the wider context in which they operate. Nevertheless, all engagements and engagement partners included in this thematic programme have a reasonable level of performance track record and have proven to be adequately resilient to the blows of the crisis. Thus, the RDE will consolidate the results of ongoing and relevant engagements which contribute to a) addressing the immediate challenges facing Mali as well as b) laying the foundation for a peaceful and democratic Mali in the long term.

Integration of experience and results from previous cooperation

The previous Governance Programme (2009 - 2014) consisted of a mix of interventions, supporting both the rights holders and duty bearers within governance. The interventions focused on: 1) strengthening the National Assembly’s performance in order to ensure the effective execution of its parliamentary duties, 2) strengthening Rule of Law and access to justice, and 3) strengthen the mechanisms for participation and citizen influence in good governance and development.

A midterm review in 2011 concluded that the programme remained highly relevant in the Malian context. It also underlined that it was important to have realistic expectations concerning results in the short term, stressing that the organizational capacity within several of the supported entities was limited. The review advised the RDE to rely more on TA and to bring on board trusted organisations that could help improve management and implementation. The crisis in 2012-2013 further underlined the importance of having realistic expectations as well as having on-board trusted organisations that could provide adequate TA in a very challenging context where addressing impunity and malfunctioning governance as well as supporting mediation and reconciliation efforts are some of the most pressing challenges related to the current crisis. Some key achievements have been retained from the previous programme. Among these are: a) the reinforcement of the National Assembly, including members of parliament and the staff, b) the increase in the number of paralegals as well as in the number of members of vulnerable groups having accessed justice, c) an inclusive participatory research process at community level having determined the main challenges and opportunities in Mali to be addressed in order to ensure long term peace and reconciliation and d) the support to actors involved in the peace process i.e. the government, the armed groups, the civil society and the international development partners in the mediation process.

However, these achievements are still in need of further consolidation to ensure their long term sustainability. Thus, the new programme will maintain the support to the interventions focusing on strengthening the National Assembly, strengthening the right of access to justice, reconciliation and peace-making due to the continuous relevance of engaging in these areas in light of the current context in Mali. However, as a consequence of lessons learned from previous cooperation, a) there will be changes in support modalities and approved methods based on an assessment of what has been effective and efficient during the previous programme, b) a realistic ambition level in terms of expected outcomes and outputs of the engagements will be ensured given the limited time frame of 21 months for the implementation of the DPTM.

3.2 Thematic Programme Summary

Thematic programme objective

The development objective of the thematic programme is to promote an environment conducive to democracy, peace and reconciliation in Mali in order to strengthen the resilience of the Malian population, especially vulnerable groups, against current and future crises.


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Development engagements, partners and budget

Table 2: Budget for promoting democracy, peace and reconciliation (in million DKK)

Partner Objective of Engagement 2015 2016 Total %

Implementing partner chosen through a EU tender

To strengthen the legislative functions, the control of government action and the representation of the National Assembly.

4.5 4.5 9.0 16.3

SIDA Provide legal assistance to vulnerable groups and promote citizen participation in DEME SO’s intervention zones.

2.0 2.0 4.0 7.3

Centre for Humanitarian Dialogue (CHD)

To contribute to paving the way for an inclusive and sustainable peace in Mali. 8.0 7.0 15.0 27.3

Interpeace

To contribute to the restoration of trust as well as the development and implementation of sustainable solutions for peace and reconciliation

3.75 3.75 7.5 13.6

Un-allocated funds - 4.0 4.0 7.3

Monitoring, studies and evaluation, audits 1.75 1.75 3.5 6.4

Preparation of country policy and next phase 5.0 7.0 12.0 21.8

Total 25.0 30.0 55.0 100

Results framework

The expected outcomes* of the thematic programme are the following:

Thematic Programme Democracy, Peace and Reconciliation

Thematic Programme Objective

Promoting an environment conducive to democracy, peace and reconciliation in Mali in order to strengthen the resilience of the Malian population, especially vulnerable groups, against current and future crises.

Impact Indicator Number of refugees returning to North Mali and % decrease in violent attacks in North Mali

Engagement Title Strengthening the Malian National Assembly

Outcome indicator The members of parliament, the staff and the members of the High Court of Justice

have strengthened their capacities and are executing their roles and responsibilities.

Baseline Year 2014 0%

Target Year 2016 The annual action plans for 2015-2016 are implemented 90%

Engagement Title Support to Deme So’s three years action plan: Promoting democracy and protecting

human rights in Mali

Outcome indicator Vulnerable groups in Deme So’s intervention zones have access to justice

Baseline Year 2014 12300 legal consultations

Target Year 2016 Increase in # of legal consultations

Engagement Title Support to the Peace Process in Mali

Outcome indicator The conflict resolution capacity of parties to the conflicts and its mediators is

strengthened

Baseline 2014 2014 Baseline study describing the situation prior to engagement

Target 2016 2016 Armed Groups have enhanced capacities to coordinate amongst each other and to negotiate with the Government and the Governmental team in


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charge of the negotiations has sufficient expertise to negotiate with the Armed Groups and the leadership of the Malian Army and the Armed Groups have engaged in constructive dialogue, with at least one joint declaration

Engagement Title Inclusive national dialogue for the effective implementation of the Agenda for Peace

and Reconciliation in Mali

Outcome indicator The Malian population and key stakeholders are engaged in the search, formulation

and implementation of consensus-based and action-oriented solutions to the obstacles to peace as prioritized by the National Group.

Baseline Year 2015 Baseline study describing the situation prior to the engagement

Target Year 2016 By the end of 2016, a number of local communities and key stakeholders in Mali recognize inclusive and participatory dialogue as a mechanism to effectively develop solutions for peace and foster trust and have institutions which drive this process.

* Please consult the individual DEDs for comprehensive presentations of all the outcomes indicators.

Choice of development engagement partner

The choice of development engagement partners is based on i) their ability to remain active and yield results despite volatile and ever changing conditions, ii) their long term focus in terms of engagement in their various domains and with their local partners, iii) their thorough and well-proven methodologies and approaches which have been adapted to the Malian context to provide the highest possible impact and iv) that they are the leaders within their fields. It should be noticed that the choice of development engagement partner has also been constraint by the limited number of capable partners in Mali. The greater part of civil society organisations moreover cannot be considered as independent due to existing links with political parties/elites.

Given the overwhelming schedule of the members of the national assembly as well as its staff, a continuous presence and follow-up is necessary in order to ensure an efficient execution of the engagement. The RDE will through an EU tender process contract a capable external facilitator with an in-depth experience of working with strengthening legislative institutions and promoting women’s political participation. The organisation will be responsible for the implementation of the engagement i.e. operational planning, daily administration and management in general.

Both CHD and Interpeace are international organisations with unique capacities within peace-making, peacebuilding and reconciliation. They possess extensive network which include key representatives from the government, civil society, armed groups and international development partners. Moreover, both organisations are able to include and convince opposing parties to engage around the same negotiating table e.g. CHD is the only organisation involved in the preparation of the current peace process alongside the peacekeeping mission in Mali (MINUSMA). Moreover, the prerequisites for working within highly sensitive areas of intervention i.e. managing to maintain a position as a neutral actor as well as to instil trust among all stakeholders involved in an engagement, is mastered by both organisations. CHD as well as InterPeace contribute to laying the ground work for positive change and long term reform in Mali due to their high level of inclusion of the Malian communities at all levels of society as well as their thorough methodologies and well-tested approaches.

SIDA is along with Danida currently supporting Danish Institute for Human Rights (DIHR) and the Malian NGO Deme So’s 3 year action plan for 2014-2016. The RDE wishes to fully harmonise with SIDA who has already committed to supporting all three years of the plan. The predominant arguments for establishing a delegated partnership with SIDA are the following: i) ensuring efficiency by avoiding to double the work of each development partner and by reducing the work burden and transaction costs of DIHR and Deme SO and finally, iii) providing an exit strategy by slowly decreasing and incrementally handing over our involvement in the engagement to SIDA.


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Monitoring framework

The RDE is responsible for monitoring across all the engagements and taking stock of progress against the outcome targets and objectives with the exception of the engagement with SIDA. There will be no overarching thematic steering committee for all the development engagements. The thematic team at the RDE will be responsible for receiving, analysing and, when required, initiating follow up activities requested by the information received in the narrative and financial reports as well as the audit reports received from the partners and implementing organisation. The development engagement partners will in return be responsible for monitoring and measuring progress of their corresponding engagement on a daily basis, for elaborating quarterly narrative and financial reports as well as for informing the RDE immediately of any major changes. Annual audits adhering to Danida’s rules and guidelines for audit reporting as stated on www.amg.um.dk must be submitted to the RDE no later than 6 months following the end of the calendar year.

The RDE in collaboration with the partners and implementing organisation will elaborate realistic meeting schedules for each engagement. Given the short time perspective of the DPTM, the RDE will meet frequently with the partners in order to measure progress and be able to make adjustments and adaptations more rapidly. When other development partners support a partner or engagement, the RDE will harmonise reporting as well as follow up and conduct joint meetings to the extent possible.

The delegated cooperation with SIDA is following the Nordic+ model i.e. the RDE will fully align with the financial and administrative management procedures of SIDA. SIDA will be responsible for the daily administration and management of the engagement. The RDE will function as a silent partner. The RDE and SIDA will meet once a year no later than 2 weeks prior to the SIDA’s annual meeting with DIHR in order to discuss the progress of the engagement and the status of the cooperation. SIDA will consult with the RDE in case any fundamental changes occur which adversely affect the engagement as well as before making any decision of principle regarding the engagement.

Summary of risks and risk response

Risk Risk Response

Failure to bring the on-going peace-talks in Algiers to a successful conclusion of the negotiations (or lack of commitment to implement agreements) can negatively affect the programme's possibilities to facilitate peace and reconciliation.

The risk is mitigated through the direct support to the mediation and reconciliation activities of CHD and InterPeace; and through the Regional Peace and Stability Programme for Sahel that similarly supports activities addressing the underlying conflicts in the region. Continued political dialogue with the Malian state and key stakeholders will be used to further mitigate the risk.

Slow moving reforms in the judicial sector negatively affect access to justice.

The risk is mitigated through other development partners programmes aimed at reforming the justice sector (UNDP and Canada). The Embassy will work with these partners while also strengthening the policy dialogue with Malian stakeholders, including the Planning and Strategic Cell in the Ministry of Justice.

Lack of independence and understanding of role and responsibilities among elected officials can negatively affect the ability to promote democracy.

The programme aims to build the capacity of the National Assembly and the High Court, including elected officials and employees. The risk is also mitigated through the support to the strengthening of the capacity of the civil society, including Groupe de Suivi Budgetaire, to hold their representatives in the National Assembly as well as the government accountable.

Increasing demand for the services of civil society partners may overstretch their capacity, thereby causing implementation delays or affecting the quality of the Danish-funded activities.

The embassy will coordinate with other partners, to ensure that due consideration is taken to the need for a patient and consolidated approach to smaller civil society partners.

http://www.amg.um.dk/


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4 Improving Access to Water and Sanitation

The originally envisaged implementation period for the ongoing Danish Water and Sanitation Programme was 2010-2014; but due to the crisis there have been implementation delays.

The Rural Water Supply component aims at providing villages with hand-pumps and piped water supply schemes. The construction of these infrastructures started several years behind the original schedule and an extension to 2016 is necessary to ensure the post-implementation and the strengthening of the actor’s capacities. This extension will be financed by remaining funds from the ongoing component.

The Sanitation component aims to promote hygiene and sanitation in schools, in public centres and at household level and to develop municipalities’ capacity to manage public sanitation infrastructures. The component will be extended to allow completion of latrine and drainage constructions. This extension does not require any additional budget.

An important strategic change will be in the Urban Water Supply component. Originally the component aimed mainly to increase available drinking water in four Malian towns. Boreholes that cover the water demand have already been drilled. However, existing water distribution networks do not cover recent extensions of the urban centres.

4.1 Overall strategic considerations and justification

The thematic Water and Sanitation programme will during 2015-2016 consolidate results from the period 2010-2014. Its strategy will focus on four priorities: (i) ensure access to drinking water through rural and urban water infrastructures, (ii) improve the health situation through access to sanitary public latrines, (iii) ensure the sustainability of infrastructures by strengthening management capacities, (iv) ensure more equitable access to drinking water at a lower cost, especially for poor households.

Having access to drinking water is recognized by the Constitution of the Republic of Mali as a human right. However, the National Plan and Budget addressing access to drinking water is not adequate to meet present challenges in urban centres and rural areas.

Women and children are carrying most of the burden of water collection and are suffering from diseases related to water, especially among children. Lack of adequate access to drinking water often generates local conflicts and demonstrations are regularly organized by the population calling elected members of local governments to put pressure on the central Government. Providing poor people with adequate water services at a fair price will strengthen the legitimacy of the Government by enabling it to perform its legal role and thus strengthen the public confidence, the social progress and the stability of the State.

Justification in terms of priorities for country development and Danish development policies

Water and sanitation are priority areas in the Government's strategic framework for growth and poverty reduction. The main objective of the National Water Policy is to meet the water needs, in quantity and quality, taking into account the growing population. The MDG target for Mali within drinking water supply is a coverage of 82% of the rural and urban population in 2015. This target will not be reached. The coverage in 2013 was 64% at national level.

The Danish development policy in terms of social progress gives priority to the distribution of social resources and rights. The Water and Sanitation thematic programme will focus on the construction and extension of distribution networks in four urban centres with the following challenges: i) the drinking water access rate vary from 15% to 56% and the majority of households not served are under the poverty line, ii) the urban growth rate is 4%, iii) water expenses in household budgets can be as high 30%.

Rationale of the programme design based on the 5 quality criteria

The programme will improve access to drinking water to a large population by reducing the cost of water in the household budgets especially within the poorest households in urban centres and it will help reducing the burden of water collection for women and children and improve public health. It is estimated that 60% of diseases in Mali are related to the use of unsafe water.


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The efficiency related to urban water supply will be ensured by capacity building in the para-governmental structure SOMAPEP created in 2010 and responsible for construction of urban water infrastructures. They work in close cooperation with SOMAGEP in charge of operation and maintenance.

The sustainability will be addressed through the close cooperation with governance and decision-making bodies at national, regional and local level. The National Directorate for Water, the Regional Offices for Water and Municipalities are fully involved in the thematic programme and will play their role as coordinator for the sector and they will monitor and control activities in the field.

The extension of the distribution network in urban centres and the location of the public standpipes will be identified with full involvement of municipalities and the population, to make sure that locations are adapted to their needs. Management and maintenance of infrastructures will be improved and regulated with the involvement of all actors. A strategy for location of promotional private connections will be developed with the participation of all actors to make sure that particularly the poorest households will have their voice. The involvement of women in decision making and management structures will be a priority.

Integrating the experience and results from the previous cooperation

To align with the sector programme approach in Mali, over 70% of the budget in the original Water and Sanitation Programme was planned to be channelled through the government, but the approach showed its limits and was reoriented in 2011 to be more focused on public-private partnerships.

The Urban Water Supply component aimed originally to increase available drinking water in four Malian towns. Boreholes have been drilled, but the existing water distribution networks in the four urban centres do not cover recent extensions of the towns. By putting emphasis on expansion of water distribution rather than focusing on water production the thematic programme will ensure a better impact regarding access to drinking water. The current engagement from 2013-2015 with SOMAPEP have shown acceptable results and will be continued.

4.2 Short Summary of the Development Engagement

Since 2011, the Urban Water Supply component has operated in four priority centres (Kayes, Kati, Koutiala and Sikasso) with the aim of providing the population with safe drinking water. However, large gaps in the water distribution schemes have been noted and investments in the extension of the water scheme are needed. Through an engagement with SOMAPEP, the Urban Water component will consist of: i) extending the water network in order to bring water to all neighbourhoods ii) developing the distribution to bring water to more costumers iii) establishing standpipes iv) carrying out promotional household connection campaigns v) developing subsidy schemes financially supported by SOMAPEP and SOMAGEP.

The engagement will be a strategic opportunity to put in place a human rights-based approach, an enabling environment for gender equality and inclusion of the poorest households and efficient information campaigns to promote good hygiene practices. A strategy for distribution of promotional household connections will be developed to make sure that the poorest population groups will be targeted and benefit from access to water.

An ongoing agreement with AGETIER scheduled to end in December 2015 will be extended by one year to allow for the completion of rural water construction works and to further strengthen management capacities. Another ongoing agreement with UNICEF as technical and financial partner in the implementation of the sanitation component is foreseen to end during 2015.

Objectives of the Thematic Programme

The immediate concern is to sustain the results from the Water and Sanitation programme investments in strengthening the management and operation structures in rural areas and in ensuring access to safe drinking water for a much larger group of the urban population. Finally results in the sanitation component will be consolidated.


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The objective for the two-year period is to ensure better and more equitable access to safe drinking water in a sustainable way and at a fair price. The ‘end-of-programme’ aim is to reduce household expenditures for water, to reduce water related diseases and to make time available for more useful pursuits.

Results Framework

Thematic Programme Improving access to safe water and sanitation


To improve access to safe water and sanitation

Impact Indicator % of population with access to safe drinking water

Engagement Title Urban water supply (extension and expansion of on-going programme)

Outcome indicator No. of additional persons who have gained access to safe water in the 4 urban centres

of Kati, Kayes, Koutiala, and Sikasso

Baseline Year 2014 It is estimated in 2014 that 390.000 persons in 4 urban centres currently do not have access to safe water

Target Year 2016 Through an extension of the current water supply system, an additional 277.700 (out of 390.000) persons will gain access to safe water.

Engagement Title Rural water supply (no-cost extension of on-going programme)

Outcome indicator No. of additional rural persons who have gained access to safe water in Sikasso,

Mopti, and Koulikoro rural areas

Baseline Year 2015 78.800 persons in rural area have access to safe drinking water

Target Year 2016 137.600 additional persons in the rural areas have gained access to drinking safe water

Engagement Title Sanitation (short extension of on-going programme to allow for completion)

Outcome indicator No. of additional persons who have gained access to safe sanitation in public areas

Baseline Year 2014 20.000 persons have access to public latrines in the programme area

Target Year 2015 79.000 additional persons will have gained access to pubic latrines

Choice of development engagement partner

The para-governmental structure SOMAPEP was created in accordance with the Government of Mali institutional water sector reform in 2010. This reform has been supported by the donors including Denmark having the reform as a precondition in 2009 for the engagement in the Water and Sanitation program, 2010-2014. SOMAPEP is in charge of the development and management of State owned urban water supply schemes; thus it plays a highly strategic role in order to improve access to drinking water in all major urban centres in Mali. SOMAPEP is the only structure empowered by the Government of Mali for the dialogue with the donors within urban water supply. It will work continuously to strengthen the water sector institutional reform and the operational framework. SOMAPEP has since 2012 been in charge of the urban water supply component.

Permanent TA will continue to assist SOMAPEP facing challenges in terms of availability of human resources in quantity and quality. TA will be in terms of strengthening organizational capacity and planning, as well as quality assurance in order to ensure the application of procedures.

Framework for monitoring

SOMAPEP will monitor the implementation of Urban Water support activities. It will provide detailed planning of activities and semi-annual reports including the status of progress of the work. Based on the results framework included in the original programme document, SOMAPEP will monitor progress and


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assess indicators. The RDE will put an emphasis on a pro-poor approach examining if the criteria used in the selection of beneficiaries of promotional connections have played its expected role.

Budget

The budget for expanding the Urban Water Supply engagement with SOMAPEP will be DKK 75 million. For on-going engagements with UNICEF and AGETIER no complementary fund is needed.

Table 3: Budget for improving access to water and sanitation (in million DKK)


SOMAPEP Urban water supply - 75.0 75.0 100

AGETIER Rural water supply - - - -

UNICEF Sanitation - - - -

Total - 75.0 75.0

SOMAPEP and SOMAGEP will from own funds contribute to the budget with DKK 12,882,000 corresponding to a promotional campaign for 5,000 household connections and the implementation of 50 km of network distribution in relation to these connections.


Risks Risk Response

Lack of sustainability for infrastructure investments Strengthening management and technical capacities in SOMAPEP and SOMAGEP and involving local authorities.

Insufficient mobilization of funds from SOMAPEP for promotional connections

Elaboration of an investment plan for household connections and monthly monitoring meetings

Poor households have limited access to promotional connections

Define access criteria that have a poor-pro bias

Parts of the population prefer to continue using unsafe water from wells

Targeted information and awareness campaign on the importance of water quality for consumption

Joint management arrangements

Regional consultations will be held twice a year with TA and Regional Services, SOMAPEP, SOMAGEP, Regional Assembly, Municipalities concerned, AGETIER, and the RDE. The aim is to share information on progress, capitalize results and to implement recommendations of sector reviews and former consultations. The Governor will chair the consultations. For the Urban Water Supply engagement with SOMAPEP, consultations at national level will be held according to needs. For each meeting, minutes will be elaborated and approved by all participants.

The RDE will provide funding according to financing plans. Tender processes and major deviation related to the agreed implementation plan shall be subject to prior consultation and approval of the RDE. The RDE reserves the right to field independent Value for Money audits.

5 Promoting Private Sector Development

The second phase of the Danish financed Private Sector Programme in Mali was appraised and approved in 2013. Adjustments have been made since to take into consideration priorities regarding the Green Growth and the Human Rights Based Approach. The implementation period is from 2013 to 2018. This document focuses primarily on achievements expected in the two-year period from 2015 to 2016.


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At the international donor conference in Brussels in 2012, the international donor community emphasised that for Mali to revive its ailing economy and bring the development process back on track, private sector engagements through investments, public-private partnerships and the facilitation of an enabling environment are necessary prerequisites.

One of Mali’s most significant challenges is to create employment and income opportunities. The agricultural and agribusiness sectors account for around 40% of GDP, and 80% of employment. Despite this importance, Mali’s agri-business sector faces numerous challenges. Most products are produced by small-sized farms with little mechanisation and capacity and products are not competitive. Fragmented markets and poor infrastructure further hamper production.

The importance of productive sectors to develop Mali’s agriculture, financial services, small and medium-sized enterprises (SME) and to create employment is highlighted in the CSCRP for the period 2012-2017. The need for infrastructure development is underlined and the productive sector (including infrastructure) is considered a main priority.

According to the 2013 Doing Business Survey, Mali ranks as 151 among 185 countries. Malian enterprises face a variety of obstacles like insufficient supply of business development services and access to finance, poorly educated workforce, product quality not meeting international standards, heavy regulation and taxation, high transaction costs, weak public-private dialogue and corruption.

To address these challenges the thematic programme targets actors to improve their performance and increase their competitiveness in selected value chains with economic potential. The programme will facilitate improved access to finance, develop public infrastructures to support the selected value chains, improve human resources with capacities and skills relevant for the private sector and finally promote green technologies to support the sustainability of investments.

Danish development policies

The Programme was appraised in 2013 and found fully aligned with Danish development policies. However, the formulation of the DTPM has been an opportunity to identify areas where Danish priorities could be further strengthened. Agreements with implementing partners have been updated to reflect the principles of non-discrimination, participation and inclusion, transparency and accountability. Similarly, the associated implementation procedures have been reviewed to translate these principles into practice.

An outcome of the process is the consensus that human rights due diligence will be undertaken. Implementation actors will be trained and informed on key human right risks and the M&E system will be supported by human rights indicators. At the beneficiary level, there are now firm clauses in the standard construction contracts to prevent the use of child labour and to promote gender aspects.

Green Growth will be promoted through targeted selection criteria for interventions, a quota system and enterprises will be introduced to renewable energy solutions and energy saving solutions. Finally, energy audits will be executed for all enterprises receiving support from the programme. An inception review in early 2015 will serve to take stock of progress and identify the scope for further improvements.

Value chains have been chosen with consideration to the actions of other donors, in close dialogue with the Government and on the basis of the following criteria: potential for employment generation, added value, contribution to revenues and distributive economic growth, strong possibility of complementarity between agricultural and non-agricultural activities to promote a sustainable and integrated development strategy. The choice of 4 out of 9 regions in Mali is based on potentials for production and development of selected value chains, market proximity and the dynamism of economic actors.

Justification for programme design

Many interlinked development challenges in the private sector suggest that the value-chain approach with its focus on understanding a production and market system in its totality holds considerable potential for facilitating a sustainable development process. The approach appears to accelerate economic growth and promote income generation for rural populations. An example of support to the value chain of mango by


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the Malian State, the World Bank and USAID has increased mango export from 3.000 to 9.000 tons between 2005 and 2009 and thus created important income opportunities.

The main value chains targeted will be livestock, meat, milk, poultry-corn, fruit, vegetables and crafts. Most of the rural population is occupied in one or several of these value chains and women particularly are involved in regard to production, processing and marketing.

The thematic programme will be implemented by existing public and private institutions and operate in coherence with the existing legal framework and the Malian government’s priorities. The support builds on the modalities established during the earlier phase and aims at ensuring proper checks and balances, creates partnership with financial institutions, and on giving preferential treatment to women as well as opening a special window for green projects. The previous private sector programme has developed analytical tools and innovative green technologies to SMEs. This initiative will be strengthened during the current program.

The current high unemployment rate in Mali is a threat to security and stability. An estimated 300,000 young people with or without qualifications enter the job market every year. The lack of income opportunities in rural areas has caused a significant migration of youth towards urban centres and Bamako in particular. Most rural youth migrate in search of work; but without luck. In worst case scenarios they end up contributing to the increasing crime rates or as targets for terrorist recruitment. Regarding the production, the lack of infrastructure hinders the supply of local raw materials and this weak link between the areas of production and consumption is a factor of fragility. The programme aims to improve and consolidate employment through increasing commodity production and to strengthen the capacities and skills of young persons and women in the private sector. The expected increase in production and associated enhancement in food security is also a source of stability and strength of the country.


The development objective of the thematic programme is to promote private sector driven inclusive growth leading to increased income and employment generation. The thematic programme will target a number of value chains and cover the regions of Mopti, Sikasso, Ségou and Bamako.

The Programme revolves around three immediate objectives:

Strengthen the competitiveness of the private sector by providing access to business development services as well as facilitating improved access to finance.

Develop economic infrastructure to promote production and access to markets.

Contribute to the competitiveness of economic sectors through vocational training focused on employment.

For the period 2015-2016; the Programme aims to:

establish access for SMEs to business development services and credit,

carry out feasibility studies and contribute to the development of economic infrastructure promoting production and facilitating access to markets,

increase the employability (capacities and skills) of actors in selected value chains.

Development engagements, partners and budget

The total budget including studies, training, M&E and unallocated funds amounts to DKK 300 million of which DKK 108 million is budgeted for the two-year period 2015-16. The budget subject for approval by the external grant committee through this DTPM does not include the budget below that only has been included with the aim to facilitate an overview of the country programme in its entirety.


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Table 4: Budget for the promotion of private sector development (in million DKK)

Partner Objective of Engagement Total %

CNPM Strengthen private sector competitiveness 84.0 28.0

FGSP Facilitate access to credit for SMEs 15.0 5.0

MIPI Strengthen public institutions to improve the environment of targeted value chains

4.9 1.6

AGETIER Develop and improve economic infrastructure 99.3 33.2

Swiss Cooperation

Strengthen capacities and skills in the private sector

40.0 13.3

Technical assistance component 1 & 2 32.8 10.9

Monitoring, studies and evaluation, audits 14.0 4.7

Un-allocated funds 10.0 3.3

Total 300.0

Results framework

As mentioned above, the programme is designed for a five-year period with expected key results to be delivered towards the end of the programme in 2018. Over the coming two years, the programme focus will be on establishing the enabling environment necessary to achieve the programme objective. The results framework presented below is a positive estimate of the early signs of progress that could be measured within the narrow time-frame of the DTPM.

Thematic Programme Promoting private sector development


To promote private sector development

Impact Indicator Increased commodity production and jobs creation and consolidation in the Mopti, Segou, Sikasso, and Bamako regions.

Engagement Title Enhancing the competitiveness of the private sector

Outcome indicator No. of SMEs that invest to increase their production

Baseline Year 2015 0

Target Year 2016 150 SMEs (including 50% green projects); 15 integrated projects.

Engagement Title Developing economic infrastructure to promote production and market access

Outcome indicator % increase in the production in supported value-chains that reaches markets in Sikasso,

Mopti, Segou, and Bamako

Baseline Year 2015 N/A. A baseline survey will be undertaken in 2015.

Target Year 2016 5% increase over 2015 baseline

Engagement Title Contributing to the competitiveness of promising economic sectors through training

focused on employment (partnership with Switzerland)

Outcome indicator % of people employed after training

Baseline Year 2015 N/A

Target Year 2016 20% (of an estimated 10,000 trained)


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Choice of development engagement partners

The National Council of Employers (CNPM) has been identified to host a technical and financial advisory service aimed directly at private sector actors. The Malian private sector institutions comprise different chambers, associations and federations (agriculture, commerce/industry and artisan professions), who in turn often are members of the National Council of Employers. Further credit access for private sector actors will be facilitated though an agreement between the Guarantee Fund for the Private Sector in Mali (FGSP), CNPM and Danida. Relevant institutions in the Ministry of Industry and Investment Promotion (MIPI) are supported to improve the environment of targeted value chains.

The National Agency for Executing Rural Infrastructure (AGETIER) will be responsible for executing the infrastructure projects, while the National Directorate for Rural Engineering (DNGR) will monitor implementation of these projects according to national standards, policies and strategies.

The choice to work with these institutions and the innovative character of the Programme, require a relatively solid input of Technical Assistance to support implementation, but also to empower the employees of partner institutions and build structures and systems to ensure that the organisations will be capable of continuing and expanding activities after the programme ends.

The Swiss Cooperation is the partner most deeply engaged in vocational training in Mali, with many years of valuable experience and a track-record for producing good results. In order to minimise transaction costs for the Malian partners, the vocational training has been delegated to Swiss Cooperation.

Monitoring framework

The Monitoring Framework is focused on the results and targets in the programme document. Each partner has its monitoring, evaluation and reporting system and all data are consolidated by an M&E expert within the CNPM. An external M&E expert will conduct specific studies and "value for money" evaluations. Progress reports are submitted every six months to the Strategic Orientation Committee (COS), which will ensure the consistency of activities with national policies and strategies. The COS will make strategic decisions for the programme and ensure complementarity and synergy within the Programme and with other similar development activities.

Joint management arrangements

The thematic private sector programme places the private sector centrally in the decision-making and management processes. Nevertheless it will be implemented by both public and private existing institutions and it operates in coherence with the existing legal framework and the Malian government’s priorities.

For each component, a committee has been established to oversee the implementation and provide overall strategic directions for the implementation. Members of the committees are representatives of implementing organisations (chair), relevant government institutions according to their mandate and role, as well as the RDE and other relevant donors. At technical level, meetings will be facilitated between the partners of the three components. Joint sector reviews are foreseen on an annual basis. The implementing partners will have their organisations strengthened with external management consultants embedded in their organisations.

The RDE is in relation to the delegated partnership with the Swiss Cooperation fully aligned with the financial and administrative management procedures of Swiss Cooperation. The Swiss Cooperation will be responsible for the daily administration and management of the engagement. The RDE will participate in meetings when deemed relevant and will receive and provide comments to narrative, financial and audit reports. The RDE will also be involved in any decisions regarding major programme and budget changes.


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Risk Risk Response

Members of decision committee for selection of SME projects lack independence.

Transparency tools, clear procedures for selection of members of decision committee, regular renewal of members and Technical Assistance.

Stretched capacity of AGETIER, due to increasing portfolio, results in delays or reduced quality of services.

Bilateral dialogue with donor counterparts. Recruitment of additional personnel at AGETIER in case of significant non-performance, and use of alternative delivery mechanisms.

Low quality and inadequate vocational training in certain regions due to a small number of qualified trainers creating monopoly.

Extend the selection of trainers to regions where the skills exist and strengthen the competitive bidding system.

6 Thematic Programme: Development Contract

The aim of this section is to outline the Development Contract that will represent the continuation of the on-going Danish GBS to Mali through the collaborative partnership, mechanisms and procedures established with the EU. The Development Contract will be subject to the approval of the EU’s State-Building Contract with Mali for the three-year period 2015 to 2017 that is currently in the process of being formulated. Focus is expected to be on the implementation of the institutional and economic reforms that will strengthen the rule of law and Mali’s economic recovery. The EU State Building Contract is expected to amount to more than one billion DKK. Once the EU State-building Contract has been approved, the RDE will finalise the development engagement documents for the two planned engagements under this thematic programme and submit these first for TAS appraisal and subsequently for the External Grant Committee. The presentation made in this chapter is based on previous experiences and the current expectation with regard to a new Development Contract and the associated development engagements.


Strategic considerations

In keeping with Danish development policy, the objective of the Danish budget support is to reduce poverty and promote human rights. Within the two-year framework of the DTPM, the more immediate aim is to enable the government to respond to the current context and needs of the Malian people as laid out in the internationally endorsed Transition Roadmap and GAP. For Denmark, a key strategic consideration has been to enable the Government to protect a pro-poor focus in its plans, budgets and expenditures as this is considered a prerequisite for long-term poverty reduction. A related strategic consideration has been to support the government’s efforts towards greater stability and to continue the political dialogue on key reforms. These considerations correspond well with the general perception among Mali’s traditional providers of budget support where the current situation is seen as a window of opportunity for pursuing reforms and strengthening the government’s focus on the delivery of essential public services while avoiding deterioration of the economic and political environment that must underpin stabilisation efforts.

Justification in terms of Mali’s development priorities

The recent conflict severely affected the Malian economy and the ability of the government to implement its development plan. During the crisis the government pursued a policy of fiscal discipline, prioritising paying wages, pensions, army and security force expenses and protected public spending in the areas of education, health and social protection. The sharp decline in foreign aid and foreign direct investments led to a deterioration of the capital account, financial transactions declined and the increase of the overall deficit of the balance of payments. In 2013, Mali’s overall fiscal balance (commitment basis, including grants) recorded a deficit of 145 billion CFA (2.6% of GDP) and a deficit of CFA 27 billion (0.5% of GDP) in its basic fiscal balance. In this context of fragility and a significant budget deficit, the use of a Development Contract seems a particularly relevant modality that can help increase the financial capacity


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of the government and enable it to protect social expenditures and implement necessary reforms. In addition GBS is the government’s preferred funding modality.

Mali’s immediate priorities are reflected in the GAP that represents the operationalization of the vision for a new Mali. GBS has been the most predictable aid modality in Mali and has in the past been the modality with the highest level of harmonisation and alignment, and probably also the modality with the lowest level of transaction costs per CFA disbursed. A joint evaluation finalised in 2011 concluded that budget support funds had been utilised in a manner consistent with the priorities identified in national and sector strategies, and in particular to strengthen macroeconomic stability and increase spending in priority sectors.

With regard to the five budget support principles, Denmark will align with the outcome of the EU eligibility criteria evaluation. Despite certain weaknesses in terms of security and institutions and in particular public financial management, it is the opinion among the traditional GBS donors that the preconditions for budget support are in place. The risk of non-intervention and lack of leverage as provided by the modality can have negative consequences far greater than the risks associated with GBS. The lesson learned from the recent cases of extra-budgetary expenditures and lapses in PFM control procedures is that development partners jointly must work to minimize risks through the use of accompanying measures such as TA and rigorous monitoring, as well as empowering civil society to play a stronger role in oversight, and through the continued political dialogue with the Malian authorities.

Justification in terms of programme design

Denmark’s GBS will be channelled through a Development Contract with the Malian government and will be fully aligned with the EU’s state-building contract currently under development. The detailed aspects of the modality and associated procedures for transfer and utilisation of Danish budget support will be elaborated once the EU’s state-building contract has been finalised. The experience over recent years in terms of fully aligning with the EU’s support has been positive as it not only has increased Denmark’s leverage in relation to the policy dialogue; but also because Denmark has been able to benefit from the EU’s much more resourceful set-up in the continuous monitoring and analysis of developments of relevance to the GBS.

Following the crisis, the government has built a vision for change in Mali that is rooted in the CSCRP, but also takes into account new challenges resulting from the crisis. The GAP operationalises this vision and is organised around themes: establishing strong and credible institutions; restoring the safety of people and goods throughout the national territory; implementing an active policy for national reconciliation; re-constructing the Malian schools; building an emerging economy; and implementing an active policy for social development. The GAP has also led to additional operational programs, including an accelerated development programme for the northern region to facilitate the return of the administration, refugees and IDPs and to restart economic activities in the North. Thus the government has not only built reform priorities and stabilisation activities into its national plans and budgets; but it has also put dialogue and reconciliation firmly on the priority list.

The Development Contract will increase the financial capacity of the government to maintain focus on the provision of much needed social sector services and the capacity to facilitate the simultaneous implementation of critical reforms. The thematic programme (including participation in the budget support group, annual reviews, support to civil society and the on-going policy dialogue with the government) will have special focus on the reforms aimed at strengthening the democratic processes in the post-crisis management of public finances and for the revival of public investment needed for inclusive and sustainable growth. This is expected to reinforce the contributions made by the other thematic programmes, in particular in terms of capacities and motivation. The design is based on consultation with these key stakeholders, various meetings held at both local- and international level, and Denmark’s experiences during the earlier phases of budget support.

The DE with the ‘Groupe de Suivi Budgétaire’ (GSB) will reinforce public oversight and budget control of public funds through support to a nation-wide network of civil society organisations with proven capacity to analyse public budgets and expenditures and communicate key observations to the public through national media. The DE will contribute to increased visibility, awareness and public discussion of public


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financial management issues. It will offer Malian citizens an opportunity to follow their government’s adherence to agreed priorities and plans as well as a platform for voicing their expectations and opinions on their government’s performance.

The Development Contract with the Malian government is the most significant DE in terms of share of the total country programme budget. Through the provision of budget support to Mali’s own development plan and by pursuing full alignment with the approach and procedures jointly established with the EU, Denmark will be addressing the five OECD/DAC evaluation criteria of relevance, impact, effectiveness, efficiency and sustainability in an integrated manner. In this regard, it should be noted that the joint evaluation from 2011 not only concluded that budget support had the lowest transaction costs, but also that the most important contributions made by budget support in Mali have been their financial transfers and support to the creation of structures for the coordination, programming and monitoring of policies and reform programmes. The GBS modality in itself and the set-up in Mali with full alignment with the EU and with other donors, such as France, the World Bank, the African Development Bank and the International Monetary Fund on board is a very strong platform for addressing risks in a systematic manner and for pursuing overall effectiveness.

Integration of experiences and results from previous cooperation

The Development Contract will be the third Danish budget support programme to Mali. The design has drawn on lessons from the earlier phases, including joint evaluations and specific donor reports. It has also taken into consideration Denmark’s experiences from being in the “troika” (along with Germany and the World Bank) with the responsibility of conducting the policy dialogue with the Malian government on behalf of the larger development community.

A key lesson has been that ownership of efforts to improve PFM and of the commitment to implement plans and key reforms is critical to success. The focus on supporting Mali’s development plans has allowed budget support before the crisis to make major contributions to the achievement of the goals of the earlier CSCRP. For this reason, Denmark’s approach will be based on seeking consensus for major policy decisions and the immediate focus will be on finalising already agreed and initiated reforms (such as those in the field of PFM) and on supporting reforms for which consensus is strong, such as the protection of pro-poor expenditures. GBS as a modality has been effective when the primary aim has been to finance and monitor the implementation of a given policy, as opposed to changing a given policy or adapt through conditionality, where efforts to promote decentralisation and public sector reforms have generated inconsistencies in policy implementation and high transaction costs in policy and budget support monitoring. The lesson is that GBS works best as a means of supporting a well-established national policy for which there is a clear and coherent commitment and for which there is a relatively clear implementation structure.

Another result achieved during the earlier phase has been the introduction of a harmonised annual calendar of policy reviews, the provision of technical assistance support, and an on-going policy dialogue.2 With the suspension of aid in 2012, these donor harmonization structures were also affected, including the budget support group under which joint approaches (such as policy matrices, disbursement calendars, and annual reviews) were discussed. The recent experience with the purchase of the presidential plane has underlined the need to re-establish the earlier constructive and critical policy dialogue on public revenue and expenditure while continuing the joint efforts to strengthen public financial management through the provision of technical assistance services.

A related lesson is that the quality and reliability of data to measure outcomes are limited in Mali. This calls for attention to and realism in the selection of indicators and targets. If efforts at multi-sectoral monitoring and evaluation are to be useful, indicators and targets need to reflect joint agreement in order to ensure ownership and the ability to monitor and report without imposing additional costs.

2 Reference is made to the Joint Evaluation carried out on behalf of the Commission of the European Union, Belgium, and

Canada of the Budget Support Operations in Mali, 2003-2009, September 2011.


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The immediate objective is to support the implementation of the GAP designed to address the underlying causes of the recent crisis. In this sense, the GBS will be linked with and contribute to the other thematic programmes.

The Development Contract will support the Malian government in its efforts to perform its core regulatory functions and duties. It will also enable it to maintain focus on the provision of much needed basic social services and the need to address key institutional weaknesses and continue key reform processes. The programme will support the government’s measures to strengthen and modernise PFM and budget transparency, and allow the National Assembly and civil society to hold the government to account which is expected to contribute to a reduction of fiduciary risks and non-approved budgetary deviations.

Short Summary of Development Engagements

The programme consists of two DEs: i) support to reinforce the Malian government through a Development Contract, based on the EU’s State-building Contract; and ii) support to civil society for the strengthening of public oversight and monitoring of public spending.

Partner Type of Support Objective Budget

Ministry of Finance

Development Contract- General Budget Support

To support the implementation of the Transition Roadmap and the Government Action Plan

DKK 76 million

Groupe de Suivi Budgétaire

Core funding Support to increase public oversight of public financial management

DKK 4 million

The two DEs will reinforce the simultaneous efforts to: (i) increase the capacity of the government to manage public funds in order to strengthen macro-economic stability and the government’s capacity to spur development, (ii) improve governance within public financial management, (iii) support the government in its efforts to foster national reconciliation and reconstruction, (iv) strengthen the government's authority throughout national territory, and (v) promote economic recovery.

The aim is to strengthen the government’s ability to carry out its regulatory functions and duties, deliver basic social services according to the CSCRP and the GAP. The Malian government is the primary partner and the on-going policy dialogue and technical discussions will be carried out with the Ministry of Economy and Finance. The EU will be a key secondary partner, and responsible for the administration of the state-building contract and carrying out reviews of the budget support provided. In keeping with general EU practice, it is expected that the EU’s State-building Contract will provide budget support in a combination of fixed tranches linked to eligibility criteria, and variable tranches linked to progress in meeting agreed targets (usually related to health, education, public financial management etc.). Visible commitment to democratic practices is normally a key criterion in awarding such contracts; but the EU normally takes a long-term approach in which the risk of inaction is weighed against the needs of the country. As a technical and financial partner to Mali, Denmark will participate in various reviews and policy dialogue through existing donor frameworks and development fora.

The objective of the second DE with Groupe Suivi Budgetaire is to reinforce public oversight and budget control of public funds. Specifically, the DE will seek to: (i) strengthen public oversight, (ii) improve the efficiency of public spending, (iii) promote the fight against corruption and impunity, and (iv) strengthen the capacity of civil society to carry out analysis and advocacy. The DE will supplement the Development Contract by increasing the oversight of the management and the implementation of public funds, including resources channelled to the Malian state through GBS. The DE addresses the relationship between good governance and the pursuit of improved economic and social results by strengthening civil society’s watch dog role vis-à-vis the government. A key challenge to be addressed is the restoration of public confidence in governmental institutions and administration and to foster political dialogue between


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different development actors and stakeholders, including civil society. To this end, the development engagement will offer Malian citizens the opportunity to voice their expectations and opinions on the quality of governmental services and infrastructure.

Results Framework

The results framework presented below is tentative and reflects the RDE’s current identifications. Due to the relatively short duration of the programme, efforts have been made to identify indicators that reflect the government’s ability to progress towards the objectives set out in the Transition Roadmap and the GAP, taking into consideration the availability of reliable data. The final version of the Results Framework will be based on key results and performance indicators that will figure in the EU’s State-building Contract. Each development engagement has its own results framework that is included in the overall Country Programme Results Framework in Annex C.

Thematic Programme Development Contract (General Budget Support)


To support the Government in its implementation of the Government Action Plan with particular focus on improving access to basic social services

Impact Indicator % of communes with functioning health centres

% of communes with functioning primary schools

Engagement Title Development Contract (General Budget Support)

Outcome indicator Share of priority pro-poor expenditures as a percentage of total expenditures and as a

percentage of GDP.

Baseline Year 2011 28% of total expenditures / 7.4% of GDP

Target Year 2016 33% of total expenditures / 7.4% of GDP

Engagement Title Groupe Suivi Budgetarie

Outcome indicator % of observations by Groupe Suivi Budgetaire that the Government has responded

to in public or in documented meetings.

Baseline Year [Situation prior to engagement activities]

Target Year [intended situation by the end of engagement (phase)]

It should be explained that 2011 has been selected the baseline, because the crisis in 2012 has had an extraordinary impact on the budget for the past three years. For example the government prioritised basic social service provision during the crisis; and although actual expenditures fell, the social sector’s share of total expenditures increased from 28% in 2011 to 29.8% in 2012. Pro-poor expenditures in the Malian context are defined as expenditures on the provision of basic social services such as education, health and water and sanitation, including current expenditures on salaries.

Monitoring Framework

The final monitoring framework will be the result of joint efforts among development partners and the Malian government. Monitoring will focus on results that the government and its development partners jointly can be held accountable for. Monitoring and dialogue will follow the harmonised annual review process that is aligned with the government’s planning process. The annual reviews will focus on the jointly agreed Performance Assessment Framework that will be reviewed and updated annually.

Denmark will actively participate in the donor co-ordination group concerned with macro-economic and budgetary issues and private sector development. This group is actively engaged in policy dialogue with high-level stakeholders involved in the implementation of GBS. The RDE will actively participate in various stakeholder reviews and donor committees, including the technical and political work sessions under the Joint Budgetary Review, CSCRP reviews, the technical committee under PAGAM/GFP and work sessions with the Ministry of Economy and Finance.


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In terms of the support to GSB, the RDE pursue bi-annual financial and physical progress reporting that will be supplemented by at least quarterly meetings during which the status of progress of the current plan will be discussed along with the group’s observations and opinions on public financial management issues of current interest.

Budget

The total budget is DKK 80 million of which 76 million will constitute the maximum tranche payment in the development contract.

Table 5: Budget for Development Contract (in million DKK)


Ministry of Finance

To support the implementation of the Transition Roadmap and the Government Action Plan

38.0 38.0 76.0 95.0

Groupe de Suivi Budgétaire

Support to increase public oversight of public financial management 2.0 2.0 4.0

5.0

Total 40.0 40.0 80.0 100


Risk Risk Response

New events leading to the suspension of budgetary support, such as for example the recent extra-budgetary transactions in 2014 or failure to implement sanctions related to the event.

The risk is mitigated through the ongoing dialogue with the government, and by the support to the strengthening of audit functions and public financial management capacity as well as the efforts to strengthen the capacity of the civil society to carry out public oversight functions.

Deteriorating government commitment to and willingness to implement the Transition Roadmap and the associated Government Action Plan.

The risk is mitigated through the ongoing political dialogue and the Embassy's participation in regular budget support donor meetings. The risk is also mitigated by the support to the strengthening of the civil society's capacity to participate in and influence public decision-making and to oversee the execution of national plans and budgets.

Refusal of the National Assembly to approve the budget or other measures that affect the implementation of the Roadmap (more specifically elements included in the indicators of variable tranches)

The Country Programme works with the National Assembly and seeks to improve its capacity to perform its functions. It does not entail measures directly aimed at mitigating the possible refusal to approve budgets or measures that negatively will affect implementation of the GAP.

Deteriorating accessibility to the northern regions negatively affect the government's ability to implement the budget in the north

The risk is to some degree mitigated through the thematic programme for promoting democracy, peace and reconciliation.

Deteriorating government commitment to the fight against corruption, leading to failure to comply with eligibility or release criteria

The Embassy's presence in Mali and the on-going donor dialogue with the government and other development partners mitigate this risk.

Reduced government commitment to continue major reforms in key areas such as decentralisation and public financial management

The Embassy's presence in Mali and the on-going donor dialogue with the government and other development partners mitigate this risk.

In the event it will be necessary to suspend the GBS for a longer period, due to the occurrence of one or more of the risks mentioned above, the RDE, in consultation with the other development partners, will assess alternative ways of contributing towards the overall objective.


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7 Overview of Management Set-up

7.1 Management at Country Level

The management setup for the DTPM is designed to provide guidance, monitoring and quality assurance of a total of 14 DEs distributed in four thematic areas.

At country programme level, the main forum for joint monitoring will be annual consultations between the Ministry of Foreign Affairs and Cooperation (adequately represented by the Permanent Secretary) and the Ambassador of Denmark, with a focus on a) status of implementation of the DTPM; b) progress in the indicators of the results framework; and c) stock-taking on developments in the risk management matrix.

The RDE will prepare short annual country reports, presenting among other issues a summary of key developments over the year, changes in key assumptions and risk factors, progress achieved over the year, and a proposal for disbursements over the coming year. Key at this overall level will be assessments of the continued relevance of the underlying ‘Theory of Change’, interpreting and discussing policy developments and their connection to Mali’s and Denmark’s overall development policies and strategic priorities.

7.2 Thematic Programme-Level

It is assessed that value added of setting up bilateral management structures at the thematic level would be limited, given the nature of the proposed engagements, and the key function of steering committees at DE level under the overall guidance of the consultative committee at country programme level. Thematic policy discussions will take place in already established sector and thematic coordination fora for government, donor and civil society partners. Denmark will take part in thematic joint government-partner annual reviews such as the joint annual review of the budget support. Due to the limited duration of the transition programme only the thematic programme on development of the private sector that will continue till 2018 will be subject to a joint external review.

7.3 Engagement Level

All DEs include descriptions of management structures, and each DE will define management committees, progress monitoring and coordination mechanisms. Monitoring will as far as possible be done through the routine monitoring systems of the partners. The results framework with an indication of expected outcomes, outputs and associated targets and indicators is available from Annex C.

Management modalities of individual engagements make use of a wide range of instruments from GBS, to direct support to Malian non-governmental structures, delegated cooperation, international and national CSO contracts and a public tender for a service provider. Only the GBS is channelled through government structures in an arrangement closely coordinated with other GBS donors and government.

Monitoring of progress and results will be based on the monitoring and evaluation frameworks of the partner organisations.

Due to weak institutions and organisations in Mali, particularly after the crisis, Danish support is in some cases channelled through international organisations and in cases of direct support to Malian structures, comprehensive technical assistance is included in the support including for planning, monitoring and evaluation.

The day-to-day management and implementation will be handled by implementing partners of the DEs. The role of the embassy will entail regular strategic dialogue with partners, usually on the basis of progress and financial reports on implementation and results achieved. A strong monitoring framework of the country programme that may capture developments and guide partners and the embassy has been developed.


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7.4 Financial Management

Financial management arrangements at the level of DEs are described in bilateral agreements aligned with Danida’s “General Guidelines for Accounting and Auditing”. Zero tolerance towards corruption is a key principle for financial management of the DEs.

DE partners will in general be responsible for managing funds. Efforts have been made to align with partners’ existing financial management and accounting systems. Partners will submit bi-annual progress and financial reports, with the exception of the budget support.

Funds earmarked for TA, including for studies, the formulation of a country policy and a country programme, and for reviews and audits will be managed directly by the RDE.

All DEs are subject to independent annual audits (with the exception of the budget support). In addition all agreements specify that the Danish National Audit Office as well as the Embassy reserve the right to commission its own audits, including Value for Money audits, if found pertinent and have access to all relevant information regarding the administration of Danish funds. For the two major on-going programmes (water and sanitation and private sector development) TA provisions have been made to strengthen financial management capacities.

DEs will request the RDE for release of funds on six-monthly basis and against approved annual work plans and budgets. Normally at least 70% of earlier disbursements must have been utilised before additional funds are transferred. The RDE will release funds to the account designated in the bilateral agreements. Cash balance and the status of financial progress (understood as expenditures incurred against approved budgets) will be compared to physical progress during the regular status meetings with a view to ensure that implementation progresses as smoothly as possible while sound financial management practices are maintained. An updated financial monitoring visit plan will be prepared by the RDE. The plan will take into account the nature and amount of the grant, the grant modality, the partner’s capacity, risks associated with the specific DE and the RDE’s own resources.

Reallocation of funds will take place based on considerations on how to achieve specified outcomes most effectively. Due to the short time-horizon all funds have been programmed at the outset. The government and the embassy will carefully assess progress during 2015, and, if required, use the option to reallocate funds to channel resources in the direction where they can be utilised most effectively during 2016.


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8 Country Programme Budget

Table 6: Country Programme Budget by Development Engagements (in million DKK)

Country Programme 2015 2016 Total

1 Promoting democracy, peace and reconciliation 25 30 55

1.1 To strengthen the legislative functions, the control of government action and the representation of the National Assembly.

4.5 4.5 9.0

1.2 Provide legal assistance to vulnerable groups and promote citizen participation in DEME SO’s intervention zones

2.0 2.0 4.0

1.3 To contribute to paving the way for an inclusive and sustainable peace. 8.0 7.0 15.0

1.4 To contribute to the restoration of trust as well as the development and implementation of sustainable solutions for peace and reconciliation.

3.75 3.75 7.5

1.5 Monitoring, studies, evaluation and audit 1.75 1.75 3.5

1.6 Preparation of Country Policy and Country Programme, 2017-21 5.0 7.0 12.0

1.7 Un-allocated 0 4.0 4.0

2 Improving access to water and sanitation * - 75 75

2.1 Urban water supply - 75.0 75.0

2.2 Rural water supply - - -

2.3 Sanitation - - -

3 Promoting private sector development - - -

3.1 Enhancing the competitiveness of the private sector in a supportive environment. - - -

3.2 Developing economic infrastructure to promote production and market access. - - -

3.3 Contributing to the competitiveness of promising economic sectors through training focused on employment.

- - -

4 Development Contract (General Budget Support) 40 40 80

4.1 Development Contract (General Budget Support) 38.0 38.0 76.0

4.2 Groupe de Suivi Budgetaire 2.0 2.0 4.0

Total 65 145 210

Note: * includes only the additional budget to the on-going programme to cover the extension of the urban water supply network in 4 urban centres;


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Annexes: a. Country policy paper b. Partners – brief descriptions c. Results Framework at output level d. Budget at output level e. Risk Management Matrix f. Approved response by representation to summary of appraisal recommendations g. List of supplementary material


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Annex A: Country Policy Paper

There is no Country Policy Paper for Mali.


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Annex B: Partners brief description

# Brief partner description by thematic programme

Promoting democracy, peace and reconciliation

1 Swedish International Development Cooperation Agency (SIDA)

SIDA began providing development assistance to Mali in the late 90s. The overall strategic objective is to

contribute to creating opportunities for poor people to improve their lives. The development cooperation mainly focuses on the following areas: i) Economic development for poor, ii) Sustainable development of natural resources and iii) Democratic governance and social development. SIDA’s support for democracy and human rights has a special focus on women’s and girls’ influence, security and equal opportunities. SIDA is a likeminded partner and Denmark and SIDA cooperate and harmonise their support in the Malian context whenever possible and relevant. SIDA has supported the Danish Institute for Human Rights and Deme So alongside Denmark since 2014.

2

The Centre for Humanitarian Dialogue (CHD)

CHD was created in 1999 and is one of the world's leading conflict mediation INGO. The organisation has been present in Mali since 2011 and covers all regions. It became part of the Danish Governance

Programme (2009-2014) in 2013 when the programme was adapted as a result of the crisis in 2012. The mandate of CHD is to provide mediation in the peace process and conflict prevention and solution. CHD has a strong track record on mediation and negotiations in the Sahel and Mali. The organisation possesses an extensive network and is able to work directly with the armed groups and local communities in the conflict affected areas in Northern Mali. In the current ongoing peace process in Mali, CHD plays a decisive role by providing technical assistance and shuttle diplomacy to the Malian authorities, the armed groups and the UN’s peacekeeping Mission to Mali (MINUSMA). Access to an extensive pool of experts provides added value to CHD’s activities.

3 Interpeace

Interpeace was established in 1994 and has been working in Mali since 2013 through its local partner IMRAP which it actively helped establish. The organisation’s mandate is to contribute to the reconciliation and peace process in Mali. Interpeace focuses on i) reconstructing and increasing the trust between different sectors and levels of society, ii) securing the effective implementation of the peace and reconciliation agenda as well as iii) creating a new social contract in Mali. Interpeace fosters inclusive participation and constructive dialogue and has consolidated experience with reconciliation and national dialogue in Mali. Coverage includes all regions of Mali but Kidal. Interpeace and IMRAP’s work mainly takes place on community level with all actors being a 100% involved in the work process. Thus, Interpeace and IMRAP have an in-depth understanding of the local communities in Mali which is not matched by other actors within the field of reconciliation in Mali.

4 Implementing partner chosen through a EU tender for the engagement regarding the Malian National assembly

The embassy will select a partner that has the required competence and capacity to ensure the successfully implement the activities, including the strengthening the legislative functions, control of the government activities and the representation of the National Assembly which will be responsible for the effective and efficient implementation, monitoring and evaluation of the engagement. The organisation will have experiences within institutional development of democratic institutions in the region and possess institutional expertise, especially on strengthening legislative institutions and promoting women’s political participation, amongst others.

Improving access to water and sanitation

5 La Société Malienne de Patrimoine de l’Eau Potable – SOMAPEP (www.somapep.org)

The Malian Company for the Administration of Drinking Water (SOMAPEP) is a public limited company created in 2010 as part of a reform of public service institutions and of the water sector. It manages all programmes and projects related to the water supply for the 18 principal urban centres of Mali. SOMAPEP promotes and manages the strategies, technical capacity and financial means to carry out the plans and projects related to the production and distribution of safe drinking water in urban centres. SOMAPEP is charged with the implementation of Danish financed urban water activities in the four centres – Kati, Sikasso, Koulikouro and Kayes.

6 The United National Children Fund - UNICEF (www.unicef.org)

UNICEF is a United Nations Programme that provides humanitarian and development assistance to children and mothers in developing countries. UNICEF have ensured the successful implementation of sanitation activities tied to Community Led Total Sanitation – primarily public and school latrines, drainage systems, as well as education and raising awareness in relation to the sustainable management of sanitation facilities. UNICEF has been engaged in the sanitation component of the Danish Water and Sanitation Programme in Mali since 2010.

http://www.unicef.org/


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7 Agence d’Exécution des Travaux d’Infrastructures et des Équipements Rurales – AGETIER

(www.agetier.com)

The National Agency for Executing Rural Infrastructure (AGETIER) was established in 1999 as an autonomous body with the mandate to execute public works. It has particular procedures for financial management, tendering and procurement different from the much heavier procedures that apply in public institutions, which often are causing delays in project and programme execution. The Agency has extensive documented experience in realising rural infrastructure like rural roads, water channels, water points, irrigation, port-upgrading, fish processing centres, primary education facilities and training centres. The National Agency for Executing Rural Infrastructure has well tested institutional capacity with relatively solid systems and procedures for overseeing infrastructure construction. Since 2013, AGETIER is charged with the implementation of the rural water component of the Danish Water and Sanitation Programme in Mali. AGETIER is also charged with the implementation of the infrastructure component of the Private Sector Programme in Mali.

Promoting private sector development

8 Conseil National du Patronat du Mali - CNPM (www.cnpmali.org)

The National Council of Employers in Mali (CNPM) was created in 1980 as an autonomous structure independent of the state depending primarily on the members for finances. As umbrella organisation for currently 39 private sector associations in Mali representing an extensive collective of professional organisation and companies, it has emerged as the most notable private sector interest organisation in Mali, and the only one represented in seven out of eight regions. CNPM plays an important role in

organising the private sector to speak with one voice vis-à-vis the government of Mali. It already has some experience in managing government and donor projects. While CNPM is a relatively well consolidated organisation, the institutional capacity assessment has revealed a number of challenges such as insufficient organisational procedures as well as a shortcoming in human capacity.

9 Fond de Garantie pour le Secteur Privé – FGSP

The Guarantee Fund for the Private Sector was created in 2014 by the Minister of Economy and Finance as a partnership between the Malian State, the private sector and the banking system. The mission of the FGSP is to bring more solutions to banks in terms of partial coverage of risks related to the granting of credit to SMEs in order to permit their development. The Embassy has been in partnership with FGSP since 2014.

10 Ministère de l’Industrie et de la Promotion des Investissements - MIPI

The Ministry of Industry and Investments was established in 2014. Its mission is to develop and implement policies and national strategies in relation to industrial development, promotion of investments and the private sector, normalization and promotion of quality, disposition and management of industrial areas, restructuring and upgrading of industrial enterprises. This is a first experience of partnership with this Ministry whose supports are mainly directed towards the strengthening of technical structures for the development of the targeted networks. The Embassy has been in partnership with MIPI since 2014.

11 Agence d’Exécution des Travaux d’Infrastructures et des Équipements Rurales – AGETIER

The National Agency for Executing Rural Infrastructure was established in 1999 as an autonomous body with the mandate to execute public works. It has particular procedures for financial management, tendering and procurement different from the much heavier procedures that apply in public institutions, which often are causing delays in project and programme execution. The Agency has extensive documented experience in realising rural infrastructure like rural roads, water channels, water points, irrigation, port-upgrading, fish processing centres, primary education facilities and training centres. The National Agency for Executing Rural Infrastructure has well tested institutional capacity with relatively solid systems and procedures for overseeing infrastructure construction. The Embassy has been in partnership with AGETIER concerning infrastructures for the Privat Sector programme since 2014.

12 Swiss Agency for Development and Cooperation - SDC (www.sdc.admin.ch)

SDC is Switzerland’s international cooperation agency within the Federal Department of Foreign Affairs. In Mali, SDC has supported the skills development agenda since 1996. From 1996 to 2005 the focus was on strengthening the apprentice systems. From 2005 it shifted to the formal training system supporting the development of vocational education and training master plans in five out of eight regions and testing a number of different training approaches. The SDC has been a partner to the Embassy since December 2013.

Development contract (General budget support)

13 The European Union (EU)

The EU is by far the largest provider of budget support with about one quarter of all its development assistance being channelled through this modality. The EU distinguishes between three types of general budget support contracts, namely: Good Governance and Development Contracts, Sector Reform Contracts, and State Building Contracts. The last type is the modality currently in use in Mali and intended used for the next phase covering the period 2015-2017 and expected to amount to between


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€130 and €160 million. The ‘State Building Contract’ type of budget support has been specially developed

to help address situations of fragility and support transition processes. Denmark’s budget support is currently fully aligned with the EU’s modality, using the same conditions and targets, and the experience from the joint cooperation with the EU has been positive. The EU resumed its budget support to Mali in December 2014 after it was suspended in June due to suspected irregularities in government spending, including the purchase of a $40 million presidential jet.

14 Groupe de Suivi Budgétaire (GSB)

The Budget Monitoring Group (GSB) was established in March 2007 with the aim of improving and institutionalizing citizen control of public spending. The GSB is represented and active in all eight regions of Mali and has played a key role in bringing representatives of the broader civil society and the public administration into an open dialogue on financial responsibility, openness and accountability in the

establishment and execution of the public budget. Denmark has been supporting both the first and second phase of the GSB project “Support for initiatives of citizen control of public action” with the implicit aim of strengthening the civil society’ awareness of and capacity to provide oversight of public actions. The GSB carries out activities to inform citizens about public policy and citizen control to position itself on the stage as a leading player in analysis and citizen control of development budgets.


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Annex C: Results Framework at Output Level

Country

Programme Denmark’s Transition Programme to Mali

Strategic Objective To contribute towards laying the foundation for a sustainable peace and economic recovery

Impact Indicators - Return of refugees and IDPs

- Children’s enrolment in schools

- Registered visits at public health facilities

Changes in international surveys, such as the Fund for Peace’s ‘ Fragility States Index’; the World Bank’s ‘Doing Business’ ranking; and Freedom House’s ‘Freedom in the World’ survey.

Thematic Programme 1

Promoting democracy, peace and reconciliation

Objective To strengthen the resilience of the Malian population especially vulnerable groups against current and future crises.

Impact Indicator No. of refugees returning to North Mali

% decrease in violent attacks in North Mali

Engagement Title Strengthening the Malian National Assembly (with external facilitator to be contracted)

Outcome indicator The capacity of Staff and members at the National Assembly and High Court of Justice to

carry out their responsibilities properly has been strengthened.

Baseline Year 2014 The National Assembly is currently finalising its strategic plan outlining competency development needs and providing a baseline.

Target Year 2016 90% of the annual action plans for 2015 and 2016 are executed (Source: Annual progress report AN)

Engagement Title Provide legal assistance to vulnerable groups and promote citizen participation in DEME

SO’s intervention zones (partnership with SIDA)

Outcome indicator No. of women and men in vulnerable groups/segments, who have gained access to their

rights and to justice.

Baseline Year 2013 12,300 legal consultations (Ref. 2014-16 plan, p. 7)

Target Year 2016 X% increase in the no. of legal consultations

Output indicator A network of 102 paralegals trained in the national curriculum and are active in Kayes,

Koulikoro, Sikasso, Segou, Mopti, Timbuktu and Bamako


Target Year 2016 A network of 102 paralegals have been trained

Output indicator Paralegals from 30 selected municipalities are equipped and trained to help targeted

communities to know their rights and resolve the rights issues they face


Target Year 2016 65 new paralegals form 30 selected municipalities have been equipped and trained

Output indicator Number of people informed and assisted disaggregated by sex

Baseline Year 2013 4900 files have been dealt with before the court disaggregated by sex

Target Year 2016 20% increase

Output indicator Number of detained and imprisoned people in Bollé prison assisted disaggregated by sex


Target Year 2016 Number of people informed and assisted disaggregated by sex (to be determined before beginning of engagement)


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Output indicator Number of cases of abuse identified and treated

Baseline Year 2013 Number to be identified before beginning of engagement

Target Year 2016 10 % increase

Output indicator Number of victims of GBV who is assisted by a lawyer and referred to a specialist


Target Year 2016 Number of victims of GBV who is assisted by a lawyer and referred to a specialist (to be determined before beginning of engagement)

Output indicator Number detained women and children assisted


Target Year 2016 Number detained women and children assisted (to be determined before beginning of engagement)

Output indicator Municipal councilors formed


Target Year 2016 66

Output indicator Number of new techniques learned by the team of Deme So


Target Year 2016 4 new techniques learned

Output indicator Achievement rate of planned activities in each axis

Baseline Year 2013 0 %

Target Year 2016 85 % achievement rate in each axis

Engagement Title Support to the peace process in Mali (in partnership with CHD)

Outcome indicator Strengthened conflict resolution capacity among parties to the conflicts and mediators

Baseline Year 2015 Baseline study describing the situation prior to engagement

Target Year 2016 Armed Groups have enhanced capacities to coordinate amongst each other and to negotiate with the Government. Government team in charge of the negotiations has sufficient expertise to negotiate with the Armed Groups. Leadership of the Malian Army and the Armed Groups have engaged in constructive dialogue, with at least one joint declaration

Output indicator A new coordination structure for the armed groups created


Target Year 2016 New coordination structure for armed groups in place

Output indicator No. of joint field missions to the bases of the armed groups carried out


Target Year 2016 Subject to mutual agreement

Output indicator No. of experience-sharing sessions on human rights laws and international humanitarian

law, and on perceptions of actors from the North with the TJRC


Target Year 2016 Leadership and combatants from at least 3 armed groups participate in sessions

Output indicator A commission for the follow-up of Ouagadougou 2014 and the armed groups conflict

management committee is organised


Target Year 2016 The armed groups conflict management committee addresses at least 1 case of conflict amongst communities after Algiers and the commission makes at least 2 field visits


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Output indicator Number of experience sharing sessions on human rights law and international

humanitarian law and on perceptions of actors from the North with the TJRC


Target Year 2016 75% of TJRC membership has participated in at least 1 session on human rights law and international humanitarian law before the end of 2015)

Output indicator No. of training sessions held for the government negotiation team on various key themes,

including leadership, mediation and negotiation skills, monitoring of peace agreements.


Target Year 2016 1 session held in 2015 and followed up by evaluation in the following months

Output indicator Number of inter-communitarian and mixed (civil society/armed groups) meetings

facilitated CHD


Target Year 2016 5 inter-communitarian meetings a year and 3 mixed meetings in total facilitated by

Output indicator Number of representatives from marginalised groups (women, youths and refugees)

representatives who participate in the official peace negotiations


Target Year 2016 4 meetings a year with marginalised groups

Output indicator Number of leaders who regularly participate in the intra religious dialogue and coordinate

with other interlocutors in the government and civil society


Target Year 2016 20 religious leaders from the 4 regions of Gao, Toumbouctou, Kidal and Mopti participate regularly in the intra religious dialogue

Output indicator No. of workshops with participation of brotherhood leaders, presidents of the Islamic

organisations and international experts.


Target Year 2016 1 workshop a year held

Engagement Title Inclusive national dialogue for the effective implementation of the Agenda for Peace and

Reconciliation in Mali (in partnership with INTERPEACE/IMRAP)

Outcome indicator The Malian population and key stakeholders are engaged in the search, formulation and

implementation of consensus-based and action-oriented solutions to the prioritized obstacles to peace prioritized by the National Group.

Baseline Year 2015 Baseline study describing the situation prior to the engagement

Target Year 2016 By the end of 2016, a number of local communities and key stakeholders in Mali recognize inclusive and participatory dialogue as a mechanism to effectively develop solutions for peace and foster trust and have institutions which drive this process.

Output indicator An operational Plan for PAR process and track 6 engagement is in place for the

identification of solutions and national dialogue


Target Year 2016 One operational Plan for PAR process and track 6 engagement is in place for the identification of solutions and national dialogue

Output indicator Number of public outreach (such as reports, screenings of the film and number of

participants to the screenings, radio programmes, print media) discussing solutions


Target Year 2016 Number of public outreach products discussing solutions (number to be determined early 2015)

Output indicator Number of permanent dialogue architecture components/ number of focus groups /

number of participants in dialogue sessions / number of dialogue sessions with national


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group, regional groups and dialogue clubs


Target Year 2016 1 national group, 8 regional groups, 16 local dialogue clubs, 4 training workshops on dialogue facilitation and conflict management

Output indicator % of women and youth participants who voice their perspectives in clips and discussion

papers and number of self-initiated dialogue sessions by communities or authorities across levels of society


Target Year 2016 % women and youth participants who voice their perspectives in clips and discussion papers and number of self-initiated dialogue sessions by communities or authorities across levels of society (number to be determined early 2015)

Output indicator Number of film-based dialogue forums


Target Year 2016 Number of public film-based dialogue forums conducted in Mali, France, Côte d’Ivoire, Niger, Mauritania and Burkina Faso (number to be determined early 2015)

Output indicator Number of trainings for IMRAP, number of training modules for peacebuilding and number

of trainings by IMRAP for other peacebuilding actors

Baseline Year 2014 [Situation prior to engagement activity]

Target Year 2016 [Intended situation when activity under the engagement ends ]

Output indicator Number of programme proposals submitted


Target Year 2016 Number of programme proposals submitted (number to be determined early 2015)

Output indicator Number of invited actors who participate in the bi-annual meetings and number of

discussion papers


Target Year 2016 Number of invited actors who participate in the bi-annual meetings and number of discussion papers (number to be determined early 2015)

Output indicator Number of MoUs signed/ number of initiated collaborations


Target Year 2016 Number of MoUs signed and number of initiated collaborations (number to be determined early 2015)

Thematic Programme 2

Improving access to water and sanitation

Objective To improve access to water and sanitation

Impact Indicator % of population with access to safe drinking water

Engagement Title Urban water supply (extension and expansion of on-going programme)

Outcome indicator No. of additional people who have gained access to safe water in the 4 urban centres of

Kati, Kayes, Koutiala, and Sikasso

Baseline Year 2014 It is estimated in 2014 that 390.000 people in 4 urban centres currently do not have access to safe water

Target Year 2016 Through an extension of the current water supply system, an additional 277.700 out of 390.000 people will gain access to safe water.

Output indicator No. of km of tertiary network laid


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Baseline Year 2015 0 km

Target Year 2016 308 km (50 km financed on SOMAPEP budget)

Output indicator No. of public standpipes constructed


Target Year 2016 170

Output indicator No. of promotional household connections established by SOMAGEP


Target Year 2016 5,000 households

Output indicator No. of fire hydrants established


Target Year 2016 50 hydrants

Engagement Title Rural water supply (no-cost extension of on-going programme)

Outcome indicator No. of additional rural people who have gained access to safe water in Sikasso, Mopti, and

Koulikoro rural areas

Baseline Year 2015 78.800 people of people in rural area have access to safe drinking water

Target Year 2016 137.600 additional people in the rural areas have gained access to drinking safe water

Output indicator No. of drinking water supply systems and No. of boreholes equipped with manual pump

Baseline Year 2015 0 drinking water supply systems

117 boreholes equipped with manual pump

Target Year 2016 39 drinking water supply systems

306 boreholes equipped with manual pump

Engagement Title Sanitation (short extension of on-going programme to allow for completion)

Outcome indicator No. of additional people who have gained access to safe sanitation in public places

Baseline Year 2014 20.000 people have access to public latrines in the programme area

Target Year 2016 79.000 additional people will have gained access to pubic latrines

Output indicator No. of blocks of latrines constructed in 105 places with identified needs.



Output indicator No. of kms of water drainage constructed to ensure safe sanitation


Target Year 2016 6.81 km

Output indicator No. of public Latrine Management Committees with strengthened capacity



Thematic Programme

Promoting private sector development


To promote private sector development

Impact Indicator No. of new jobs created by programme-supported enterprises in the programme area of


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Mopti, Segou, Sikasso, and Bamako

Engagement Title Enhancing the competitiveness of the private sector

Outcome indicator No. of SMEs that invest to increase their production


Target Year 2016 150 SMEs (including 50% green projects); 15 integrated projects.

Output indicator Strengthen the public-private dialogue to improve the institutional management of

selected value chains.

Baseline Year 2014 Inadequate public-private consultation in the management of value chains

Target Year 2016 4 consultations held between the public sector and inter-branch organisations

Output indicator No. of SMEs guaranteed by the private sector guarantee fund


Target Year 2016 60

Output indicator No. of SMEs that have received bank financing for investments



Engagement Title Developing economic infrastructure to promote production and market access

Outcome indicator % increase in the production that reaches markets in Sikasso, Mopti, Segou, and Bamako

Baseline Year 2014 N/A. A baseline survey will be created in 2015.

Target Year 2016 5% increase over 2015 baseline

Output indicator No. of kms of rural roadways, market infrastructure, business infrastructure projects in

commercial areas.

Baseline Year 2014 [Situation prior to engagement activity]

Target Year 2018 67 km of rural roadways; 8 market infrastructure projects completed; 34 business infrastructure projects in commercial areas completed.

Output indicator No. of public-private partnerships to operate for each economic infrastructure

Baseline Year 2015 Few public-private partnerships for each economic infrastructure

Target Year 2016 One public-private partnership to operate for each economic infrastructure.

Engagement Title Contributing to the competitiveness of promising economic sectors through training

focused on employment (partnership with the Switzerland)

Outcome indicator % of people employed after training

Baseline Year 2014 N/A

Target Year 2016 20% (of an estimated 10,000 trained)

Output indicator [Short-term result in the form of goods and services which result from an engagement

activity]

Baseline Year [Situation prior to engagement activity]

Target Year [Intended situation when activity under the engagement ends ]

Thematic

Programme Development Contract (General Budget Support)


To support the Government in its implementation of the Government Action Plan with particular focus on improving access to basic social services

Impact Indicator % of communes with functioning health centres


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% of communes with functioning primary schools

Engagement Title Development Contract (General Budget Support)

Outcome indicator Share of priority pro-poor expenditures as a percentage of total expenditures and as a

percentage of GDP.

Baseline Year 2011 28% of total expenditures / 7.4% of GDP

Target Year 2016 33% of total expenditures / 7.4% of GDP

Engagement Title Groupe Suivi Budgetarie

Outcome indicator % of observations by Groupe Suivi Budgetaire that the Government has responded to in

public or in documented meetings.

Baseline Year [Situation prior to engagement activities]

Target Year [intended situation by the end of engagement (phase)]

Note: The above Results Framework for the Development Contract is tentative and can only be completed upon the finalisation of the EU State-building Contract.


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Annex E: Risk Management Matrix

Reference is made to separate XL-file


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Annex F: Approved response by representation to summary of appraisal recommendations

Template for summary of recommendations of the appraisal

The final appraisal report3 must include this table summarising the recommendations regarding the further preparation of the Country programme. Only major recommendations of the appraisal report requiring action from the Danish Mission must be specified in the left column below, and the table must be signed by the team leader/TAS representative and received by the Danish Mission no later than 14 days after the end of the appraisal process. “N.a.” is indicated in case there are no recommendations regarding the issue concerned.

The right column is filled in by the Danish Mission, when the final country programme document and development engagement documentation have been prepared, and the table must be forwarded to the Under-Secretary for Global Development and Cooperation and TAS as soon as possible, and no later than six weeks before the planned presentation of the Country programme to the External Grant Committee of Danida, i.e. two weeks before the request for inclusion of the country programme on the External Grant Committee’s agenda is forwarded to KVA.

Title of (Country) Programme Denmark’s Transition Programme for Mali, 2015-2016 (DTPM)

File number 104.Mali.10-4

Appraisal report date 17 December 2014

Grant Committee meeting date 3 February 2015

Summary of possible recommendations not followed

The Embassy has followed all recommendations.

3 This table is only mandatory for programme support appropriations when TAS is involved in the appraisal, but may also be

useful in smaller instances of programme support, when the appraisal is undertaken by external consultants.


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Overall conclusion of the appraisal

A field appraisal conducted in August 2014 concluded that the programme was not yet ready for approval and that a subsequent desk appraisal would be required. The summary of recommendations reflects the conclusions and recommendations of this desk appraisal based on the resubmitted programme documentation.

Overall, the proposed support for a two-year transition phase is found to be relevant and appropriate taking into consideration the current context in Mali which is marked by a continued fragile political and security situation. The appraisal acknowledges the limitations constituted by the short time frame of the programme and the fact that a full country programme will be developed on the basis of a new country policy for Mali. The design of the programme with focus mainly on consolidation within existing areas of intervention is therefore found appropriate.

The thematic programme on Promoting Democracy, Peace and Reconciliation could be further strengthened with a particular emphasis on complementarities between engagements in relation to opportunities and challenges of applying a human rights based approach, including gender, in a context affected by fragility and conflict. In addition, a thorough editing and revision of the DEDs is required to address inconsistencies in the budgets and results frameworks as well as to provide a clearer description of the substance of the collaboration in line with the theory of change.

With regard to the thematic programme on Water and Sanitation the development engagement document on urban water supply has been further oriented towards ensuring that more people, including the poor, in the four target cities will benefit from access to clean water. Still, certain aspects could be improved in relation to the quality of the documentation as recommended by the desk appraisal.

Within the Development Contract thematic programme the State-building Contract is not yet ready for submission for reasons beyond the control of the Embassy. The engagement submitted for desk appraisal concerning civil-society budget monitoring is deemed very relevant as a supplement to providing budget support through the State-building Contract. It was found, however, that the engagement document will need some revision and it is therefore recommended that this engagement should be resubmitted jointly with the State-building Contract for subsequent appraisal.

The overall conclusion of the appraisal is that the proposed country programme is recommended for presentation to the Danida external grant committee taking the recommendations of the desk appraisal into consideration, and with the reservation mentioned above regarding the thematic programme for budget support.

Recommendations by the appraisal team Follow up by the Representation

1. Country programme Level:

1. Justification and rationale of the (transition) country programme, preparation process and strategic linkages between country programme vis-à-vis the country policy document.

1.1 Rationale for the Transition Phase

It should be explained more clearly in the programme document that the programme is a transitional programme that does not comprise all the elements required for a full-fledged country programme. The limited options for changing strategies and partners as a consequence of this situation should be explained.

1.1 The Embassy has addressed this in the introduction section.


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1.2 Strategic choices

The description of the country context is well elaborated with regard to the political and security situation, whereas other elements in particular justifying the thematic programmes for water and sanitation and economic development are less elaborated.

The description of the programme context should be refined with a view to better justifying the thematic programmes included in the transition programme.

1.2 The Embassy has elaborated section 2.1 on the country context to address these concerns.

1.3 Relevance with regard to Danish policies and strategic priorities

The programme document does not explicitly refer to Danish policy priorities within the areas of social protection and stability and protection as part of the rationale and justification for the programme.

More explicit reference to relevant Danish policies and priorities should be made thereby supporting the strategic considerations and justifications underlying the programme design.

1.3 The Embassy has addressed this concern in section 2.3 on strategic objectives. This has been done by adding a paragraph that makes reference to the ‘comprehensive approach’ which is the Danish policy in contexts of fragility, and by explicitly mentioning the three of the four strategic priority areas (namely human rights and democracy, social progress, and stabilisation and protection) that have been considered in the design process.

1.4 Results Framework and Monitoring

The programme document does not include a description of the theory of change for the transition period.

A theory of change at the overall programme level should be presented as suggested by the field appraisal team.

1.4. Based on the recently received 3-page ‘How to apply a Theory of Change in Country Programmes, and Programmes and projects’, the Embassy has developed and added a new section (2.3) on the theory of change at the overall programme level.

1.5 Management of Risks

The appraisal noted that risks were not treated in a uniform way throughout the programme documentation. The presentation of risks should be systematised throughout the programme documentation.

The risk management matrix at programme document and development engagement levels should be revised based on the observations made by the appraisal team regarding the wording of the risks and the evaluation of the probability and magnitude of certain risks. It should also be considered to add certain risks as suggested by the appraisal team.

1.5. The Embassy has addressed this recommendation. The summary of risks and risk response is now presented in the same format across all thematic programmes. The risk management matrix has been updated based on the recommendations made by the Appraisal Team, including the inclusion of the suggested additional risks. Evidently, this is a work-in-progress with a first review and update exercise coinciding with the finalisation of the DEDs for the Development Contract.

1.6 Budget

The overall programme budget should correspond to budgets presented in the thematic programmes, and the general programme costs (studies, reviews, audits and preparation of new country programme) should be detailed.

1.6. The recommendation has been followed. The Embassy has separated the expected costs of formulating a country policy and a new country programme (2017-21) from the costs of monitoring and audit.


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2. Thematic Programme Level:

2. Consideration of relevant Danida strategies.

2.1 Promotion of Democracy, Peace and Reconciliation The appraisal noted that the thematic programme should consider the nature of the engagements and the context in which they will be implemented when applying the human rights based approach. In a situation of conflict, the approach should be operationalised in a way that does not exacerbate tensions, but which lays the foundation for a more sustainable peace.

The application of a human rights based approach should thus be addressed in a more nuanced manner which specifies opportunities and challenges in relation to conflict transformation. More concrete strategies for an effective redefinition of gender relations should in this context be explored.

2.1. The Embassy has addressed this concern in the section “Justification for programme design” in the Thematic Programme for Democracy, Peace and Reconciliation document as well as in the four DEDs. It has done so by elaborating on how the human rights based approach will be utilised in a way that does not exacerbate conflict. The interventions seek to empower rights-holders to reverse the dynamics of conflicts through addressing the causes of conflicts and their linkages to basic socio-economic and civil rights while at the same time strengthening duty bearers’ capacity to fulfil their duties. This should provide an opportunity in the long term to strengthen the foundations for resilience against violent conflicts and a more sustainable peace. It has further been addressed by explicitly explaining how the interventions seek to promote women’s full participation which represents an opportunity for fostering changes both in gender roles and gender relations. The manners in which the DEDs foster behavioral changes in gender relations and reduces gender inequalities in the long term through increased inclusion of women, men and youth has been presented more explicitly in each DED as well as the overall thematic programme.

3. Proposed thematic programme support design including rationale, effectiveness, efficiency, impact and sustainability and partner choices.

3.1. 3.1.

4. Adherence to the aid effectiveness agenda

4.1. 4.1.

5. Budget

5.1

5.1

6. Identified risks and risk management

6.1 6.1

7. Follow-up to the recommendations of the Danida Programme Committee

7.1 7.1

8. Other recommendations

8.1. 8.1.


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9. Engagement Level

9. Capacity of partners

9.1. Promotion of Democracy, Peace and Reconciliation Development engagement : Support to the Peace Process in Mali Support to the engagement partner ‘Centre for Humanitarian Dialogue’ should be focused on activities related to conflict mediation - an area in which the organisation has a unique role to play due to its contacts with armed groups in the Northern part of Mali. It should be carefully reassessed whether the Centre for Humanitarian Dialogue has a comparative advantage and adequate capacity to provide convincing results in other suggested intervention areas, in particular intra-religious dialogue.

9.1. The embassy has addressed this concern by describing in detail in the DED related to the CHD, how the three components are interrelated and interdependent in the pursuit of sustainable solutions. It has been elaborated how component 2 and 3 feed into and support the activities related to conflict mediation (component 1). In addition, the capacity of CHD has been further assessed and it has been concluded that CHD possesses the adequate resources and competences to deliver results within all three components. This conclusion is based on the observation that a budget has been established for the technical assistance within this field and that the concerned persons have confirmed their availability.

9.2. Promotion of Democracy, Peace and Reconciliation Development engagement : Inclusive national dialogue for effective implementation of the Agenda for Peace and Reconciliation in Mali As continued EU support to the engagement partner ‘Interpeace/IMRAP’ beyond May 2015 remains uncertain, the embassy should focus the suggested support more on areas in which it is likely that concrete results can be achieved with the resources available within the development engagement.

9.2. The embassy has addressed this matter through dialogue with Interpeace/Imrap as well as consultations with other donors and judges it likely that additional funding will be obtained by Interpeace/Imrap. However, if, against expectations, this does not happen and/or the amount of additional funding does not make up for the current funding gap, the RDE will enter into a dialogue with Interpeace/Imrap on how to adjust the project accordingly. A full contingency plan is not yet in place but a dialogue has been initiated with Interpeace/Imrap on the possibility of reducing the scope of the project in the case that additional funding is not obtained.

10. Results Framework

10.1.

Promotion of Democracy, Peace and Reconciliation

Possibilities should be explored in the development engagements for formulating expected outcomes in such a way that they can constitute clearer benchmarks that can help articulate the theory of change. The definition of baselines should also be explored based on existing data and targets drawing on lessons learnt from previous cooperation.

10.1. The embassy finds this recommendation very important and has initiated the process by carrying out a ‘theory-of-change’ exercise. It is an ongoing process that the embassy will continue to pursue in cooperation with the partners.

As all engagements are a continuation and consolidation of current engagements, baselines will be based on existing data and lessons learnt. The engagement partners are in the midst of evaluating current engagements and the findings will feed into the final programming for 2015-2016.

11. Budget allocation


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11.1. Promotion of Democracy, Peace and Reconciliation Budgets presented in the development engagement documents should be based on more detailed underlying budgets making it possible to assess costs for human resources and general operations in relation to the envisaged deliverables and results. The embassy should monitor this in order to ensure efficiency and effectiveness.

11.1. The embassy has followed up on this recommendation by requesting more detailed budgets, including budget notes and explications. Based on this, certain adjustments and reductions have already been applied related to costs for human resources and general operations. The embassy will continue the dialogue with the partners related to these costs and continue to scrutinize and monitor expenses related to hereto.

11.2 11.2.

12. Identified risks and risk management

12.1. 12.1.

13. Monitoring and reporting arrangements

13.1. 13.1.

14. Others

14.1.

Water and Sanitation Development engagement: Urban water supply The development engagement document should be revised by taking into consideration the observations made by the appraisal team regarding the budget, the private connections and public standpipes, the promotion of enhanced hygiene practices, the results framework, the risk analysis and the general quality of the thematic programme documentation.

14.1

The Embassy has updated the DED based on the Appraisal Team’s recommendations and in consultation with SOMAPEP.


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14.2.

State-building contract

Development engagement: Civil society budget monitoring

The proposed support for strengthening civil society budget monitoring through the engagement partner ‘Groupe de Suivi Budgetaire’ should be resubmitted for final appraisal together with the State-building engagement. The development engagement document should provide a minimum of information on the financial situation, the organisational structure, the management set-up, availability of human resources and procedures for monitoring and reporting of the Groupe de Suivi Budgetaire. Furthermore, coherence within the results framework should be ensured and the risk assessment should be revised.

The Embassy has noted this recommendation and will implement it at the earliest possible.

It is noted that this process will include a review and update of the Risk Management matrix as well as the Results Framework.

I hereby confirm that the above-mentioned issues have been addressed properly as part of the appraisal and that the appraisal team has provided the recommendations stated above.

Signed in Copenhagen on the 8 January 2015 Hanne Carus Team leader/TAS representative

I hereby confirm that the Danish Mission has undertaken the follow-up activities stated above. In cases where recommendations have not been accepted, reasons for this are given either in the table or in the notes enclosed.

Signed in Bamako, Mali, .on the 13th of January 2015

Ambassador/Head of Danish Mission

Winnie Estrup Petersen


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Annex G: List of supplementary material

# Narrative description

1 Avenant n°1 Accord de partenariat (UNICEF)

2 CHD - DEVELOPMENT ENGAGEMENT DOCUMENT, Support to the Peace Process in Mali

3 Contrat d’Appui à la Consolidation de l’Etat du Mali (Annexe à la Convention No CRIS FED 2013/024692)

4 Convention de maîtrise d’ouvrage Déléguée (AGETIER)

5 Convention de maîtrise d’ouvrage (SOMAPEP)

6 Delegeret partnerskab med SIDA - DEVELOPMENT ENGAGEMENT DOCUMENT, Appui au Plan Triennal de l’Association Deme So : Promotion de la Démocratie et Protection des Droits Humains au

7 Description de Composante Appui au budget programme par objectifs ‘Eau’

8 Description de composante appui au budget programme par objectifs : ‘‘Hygiène et Assainissement’’

9 Description de la sous-composante Hydraulique rurale : Programme dano-suédois d’appui au PROSEA 2010-2014

10 Description de la sous-composante Hydraulique urbaine : Programme dano-suédois d’appui au PROSEA 2010-2014

11 Document de programme : Appui Dano-Suédois au programme sectoriel eau et assainissement (PROSEA), mali, 2010-2014

12 Drivers of Change study

13 Feuille de Route pour la Transition, Republique du Mali, 29 Janvier 2013

14 Interpeace/Imrap - DEVELOPMENT ENGAGEMENT DOCUMENT, Inclusive national dialogue for the effective implementation of the Agenda for Peace and Reconciliation in Mali

15 Joint Chairs’ Conclusions, International Donors Conference ‘Together for a New Mali’, Brussels, 15 May 2013

16 Mali : Poverty Reduction Strategy Paper, International Monetary Fund, May 2013

17 Orientations et Priorites du Gouvernement Pour la Periode 2013-2018, Cabinet du Premier Ministre, Republique

du Mali

18 Programme d'Appui à la Croissance Économique et Promotion de l'Emploi stimulées par le Secteur Privé du Mali (PACEPEP) et ses composantes

19 Partner to be selected through tender - DEVELOPMENT ENGAGEMENT DOCUMENT, Renforcement de l’Assemblée Nationale Malienne

20 Plan pour la Relance Durable du Mali, 2013-2014, Republique du Mali, Avril, 2013

21 Programme d’Actions du Gouvernement (PAG) 2013-2018, Cabinet du Premier Ministre, Republique du Mali, Novembre 2013

22 Rapport du Secrétaire general sur la situation au Mali, Conseil de sécurité, Nations Unies, 22 septembre 2014

23 Report of the independent expert on the situation of human rights in Mali, Suliman Baldo, Human Rights Council, General Assembly, United Nations, 10 January 2014

24 Supporting Positive Social, Political, Cultural and Economic Change in Mali (Drivers of Change Study), Research report

25 2014-16, Strategic Response Plan, Sahel Region, OCHA on behalf of the Humanitarian Partners in Sahel, January 2014


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Annex H: Overview of Country Programme ‘Theory of Change’

Strategic objective:

to contribute towards laying the foundations for a sustainable peace and economic recovery.

INPUTS OUTPUTS INTERMEDIATE

OUTCOMES

OUTCOMES

We provide that produce or delivers

which when used results in

. . and over time will lead to

Funding for the

promotion of

democracy, peace

and reconciliation

Staff and members of the national assembly who are trained and capable of performing their roles and responsibilities

Improved functioning of the national assembly, including oversight of government actions and budget execution

Strengthened

resilience of the

Malian population

especially vulnerable

groups against

current and future

crises

X no. of paralegals trained who can offer legal consultations to vulnerable groups/segments of the Malian society

Improved access to legal consultation for vulnerable groups/segments of the Malian society

Access to training and professional mediation for the armed groups to the North and the government to the South.

Strengthened conflict resolution capacity among the parties to the conflicts in Mali

Consensus-based and action-oriented solutions to prioritised obstacles to peace identified and endorsed by stakeholders in X no. of local communities

Reduced tensions and a recognition of inclusive and participatory dialogue as an effective mechanism for pursuing peace and developing trust

Funding for improving

access to water and

sanitation

Safe water for 278,000 additional people in 4 urban centres Improved access to safe

water

Reduced cost and

time required to

obtain safe water and

reduced risk of faecal

contamination

Safe water for 137,600 additional people in rural areas

Access to sanitary public latrines for 79,000 people in public places

Improved access to safe sanitation

Funding for the

promotion of private

sector development

150 SMEs and 15 integrated projects supported with access to credit and technical assistance

Sustainable increase in production and jobs in selected value chains

Increased commodity

production in selected

value chains creating

and consolidating

jobs

Productive infrastructures and access to markets for agricultural produce in the programme area

Increase in the production that reaches markets

10,000 people completed vocational training in relevant value chains

Increase in number of people employed or self-employed in the agriculture and agri-business sector

Budget support for

the implementation of

the Government

Action Plan

Key institutional reform processes on-track

Pro-poor focus in government expenditures maintained

Public Financial Management and oversight capacities strengthened

Improved performance of key public institutions

Increased access to basic social services

Increase in transparency and public oversight of budget execution processes

Increase in the public

trust in and

legitimacy of the

Malian government.


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