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Navigating Borderlands in the Sahel Border Security Governance and Mixed Migration in Liptako-Gourma

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Navigating Borderlands in the Sahel Border Security Governance and Mixed Migration in Liptako-Gourma Navigating borderlands in the Sahel Border security governance and mixed migration in Liptako-Gourma MMC Research Report, November 2019 Cover photo credit: Joerg Boethling / Alamy Stock Photos / February 2013 Armed police patrol on road to Goudebo refugee camp at Mali border. Acknowledgments Authors and research: Luca Raineri, Ekaterina Golovko, The Mixed Migration Centre (MMC) is a global network Yida Diall, Amadou Bello, Moussa Tall consisting of six regional hubs (Asia, East Africa and Yemen, Europe, Middle East, North Africa & West Africa) Reviewed by: Vanessa Leigh, Jessamy Garver-Affeldt, and a central unit in Geneva. The MMC is a leading Johannes Claes, Bram Frouws, Roberto Forin, Ornella source for independent and high-quality data, research, Moderan analysis and expertise on mixed migration. The MMC aims to increase understanding of mixed migration, to Editing: Anthony Morland positively impact global and regional migration policies, to inform evidence-based protection responses for Layout and design: Simon Pegler people on the move and to stimulate forward thinking in public and policy debates on mixed migration. The MMC’s Suggested citation: Mixed Migration Centre overarching focus is on human rights and protection for (2019) Navigating borderlands in the Sahel: all people on the move. border security governance and mixed migration in Liptako-Gourma. Available at: The MMC is part of, and governed by, the Danish Refugee www. mixedmigration.org Council (DRC). While its institutional link to DRC ensures MMC’s work is grounded in operational reality, it acts as We would like to particularly thank the respondents an independent source of data, research, analysis and who were willing to share their time and insights during policy development on mixed migration for policy makers, interviews and focus groups, without which the research practitioners, journalists, and the broader humanitarian would not have been possible. sector. This publication was produced with the financial support The information and views set out in this report are those of the United Kingdom’s Department for International of the Mixed Migration Centre and do not necessarily Development (DFID), and the Ministry of Foreign Affairs reflect the official opinion of the Danish Refugee Council of the Netherlands. or any of the donors supporting the work of MMC. Responsibility for the content of this report lies entirely with the MMC. For more information on MMC visit our website: www.mixedmigration.org Navigating borderlands in the Sahel 3 4 Navigating borderlands in the Sahel Contents 06 List of acronyms 07 Executive summary 08 Key findings 11 Introduction 1. Border security 16 Key findings 17 Regional overview 19 Mali 24 Niger 28 Burkina Faso 2. Migration governance 33 Key findings 34 Regional overview 36 Mali 38 Niger 40 Burkina Faso 3. Mixed migration flows in detail 44 Key findings 44 Weak monitoring 45 Snapshots of mixed migration flows in the Liptako-Gourma 49 Who’s travelling? The demography of mixed migration flows in Liptako-Gourma 51 Why travel? Migration drivers and motivations 55 Which way? Choosing routes and destinations 56 Threat perceptions of migration 57 Smuggling as a security threat 4. Protection issues 59 Key findings 66 Fertile ground for exploitation 69 Conclusion Navigating borderlands in the Sahel 5 List of acronyms AfDB African Development Bank AFD Agence Française de Développement (French Development Agency) AfS Alliance for the Sahel ALG Autorité de Développement Intégré des Etats du Liptako-Gourma (Authority for the Integrated Development of the Liptako-Gourma States) CFA (franc) Communauté Financière en Afrique (African Financial Community) CIGEM Centre d'Information et de Gestion des Migration (Centre for Migration Management and Information) CMA Coordination des Mouvements de l’Azawad (Coordination of Azawad Movements) CSO Civil society organization DDG Danish Demining Group DGME Délégation Générale des Maliens de l’Extérieur (General Directorate for Malians Abroad) DRC Danish Refugee Council DST Direction de la Surveillance du Territoire (Directorate of Territorial Surveillance) DTM Displacement Tracking Matrix ECOWAS Economic Organization of West African States EIGS Etat Islamique au Grand Sahara (Islamic State in the Greater Sahara) EUCAP EU Capacity-building mission EUTF EU Trust Fund for Africa EUTM EU Training Mission to Mali FAMa Forces Armées Maliennes (Malian Armed Forces) FLM Front de Libération du Macina (Macina Liberation Front) FMP Flow monitoring point GAR-SI Groupes d'Action Rapide - Surveillance et Intervention au Sahel (Rapid Action Groups – Surveillance and Intervention in the Sahel) GATIA Groupe Autodéfense Touareg Imghad et Alliés (Imghad Tuareg Self-Defense Group and Allies) GIZ Deutsche Gesellschaft für Internationale Zusammenarbeit (German Corporation for International Corporation) G5S G5 Sahel (grouping Burkina Faso, Chad, Mali, Mauritania, and Niger) G5SJF G5 Sahel Joint Force IBM Integrated Border Management IDPs Internally displaced persons IOM International Organization for Migration JNIM Jama'a Nusrat ul-Islam wa al-Muslimin (Group to Support Islam and Muslims) MIDAS Migration Information and Data Analysis System MINUSMA Mission Multidimensionnelle Intégrée des Nations Unies pour la Stabilisation au Mali (United Nations Multidimensional Integrated Stabilization Mission in Mali) MMC Mixed Migration Centre MSA Mouvement du Salut de l’Azawad (Movement for the Salvation of Azawad) MUJAO Mouvement pour l’Unicité et le Jihad en Afrique de l’Ouest (Movement for the Oneness of Jihad in West Africa) PARSEC Programme d'Appui au Renforcement de la Sécurité (Support Program for Enhanced Security (in Mali)) PNF Politique Nationale des Frontières ((Malian) National Border Policy) PONAM Politique Nationale de Migration du Mali (Malian National Migration Policy) ProGEF Programme d'Appui à la Gestion des Frontières (Integrated Management of Borders Programme) (Burkina Faso) SDF Security and defense forces SNGF Stratégie Nationale de Gestion des Frontières (National Border Management Strategy (Burkina Faso)) SNMig Stratégie Nationale de Migration (National Migration Strategy (Burkina Faso)) UEMOA Union Economique et Monétaire Ouest-Africaine (West African Economic and Monetary Union) UNDP United Nations Development Programme UNODC United Nations Office on Drugs and Crime 6 Navigating borderlands in the Sahel Executive summary This research report explores the intersections between The first part of the study maps, compares and contrasts border security and cross-border mobility in the area border security and migration governance measures known as Liptako-Gourma straddling three fragile put in place in Mali, Niger and Burkina Faso, as well as states - Mali, Niger and Burkina Faso. The capacity to in their respective regions in Liptako-Gourma. Building regulate, constrain, and control people’s movement has on this analysis, the second part aims to shed lights on always been a key feature of the construction of political the mutual relationships between border management, authority. What is new is that border policing has been security governance and mixed migration in Liptako- elevated to the center stage of global political priorities, Gourma, addressing a variety of interrelated questions involving a shift in the definition of “security threats” and relevant to policy-makers, humanitarian actors and in border security practices. scholars: • how have the variations of border security, including This is especially so in the Sahelo-Saharan region, where the weakening and strengthening of border controls the ease of circulation and the necessity of connection by state and non-state actors, affected mixed combine with the weak capacity of local states to deploy migration flows across Liptako-Gourma? forces across remote borderlands and ensure effective • do unstable borderlands tend to reduce migration border enforcement. In particular, Liptako-Gourma has flows – because of insecurity, unpredictability, and attracted considerable attention both because of the disruption of communication – or to attract them – proliferation of violent extremist groups and militias, and because of reduced border controls? because of intense short and long-range cross-border • is the safety and security of refugees and migrants migration. better ensured by state presence or state absence? Is mobility a source of resilience or a source of danger in Border security governance has gained prominence as a conflict context? one of the standard responses to forestall the spread • what are the security perceptions of refugees, of transnational threats. Liptako-Gourma has been a migrants, IDPs, smugglers, local authorities, security laboratory for the experimentation of internationally- and defense forces and international actors in based policies aimed at supporting the strengthening Liptako-Gourma? of national sovereignties and international boundaries. Within this wielding of power, specific vulnerabilities Answers to these questions are elaborated building and protection needs tend to cluster around borders and on fieldwork in Mali, Niger and Burkina Faso, including exacerbate the tension between border security and a mixed migration monitoring (4Mi) survey with 805 patterns of mobility. refugees and migrants carried out between July and December 2018, complemented by 98 semi-structured interviews with key informants and five focus groups held between November 2018 and February 2019. Navigating borderlands in the Sahel 7 Key findings:
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