Employment Policy Convention, 1964 (No. 122) - Mali (Ratification: 2016)

Direct Request (CEACR) - adopted 2024, published 113rd ILC session (2025)

Articles 1 and 2 of the Convention.Formulation and implementation of an active employment policy within the framework of a coordinated economic and social policy. Poverty reduction. While recognizing that Mali is going through a period of instability, the Committee, in the absence of information from the Government in this regard, once again requests the Government to provide information on the impact, in terms of promoting full, productive and freely chosen employment, of measures adopted in the context of the “National employment policy for 2015” (PNE 2015), the “Decent Work Country Programme 2016–18” (PPTD 2016–18), the “Growth and poverty reduction strategy framework” (CSCRP 2012–17) and the “Strategic framework for economic recovery and sustainable development in Mali” (CREDD 2016–18). Noting the recent adoption of a “Social stability and growth pact and plan of action (2023–27)”, a copy of which is attached to the Government’s report, and a new “Strategic framework for economic recovery and sustainable development” (CREDD 2019–23), the Committee also once again requests the Government to provide detailed, up-to-date information on the adoption and implementation of any new employment policy. It also once again requests the Government to describe the mechanisms in place or under consideration to ensure that employment policy measures are regularly evaluated and reviewed, as part of a coordinated overall economic and social policy.

Article 2. Employment trends. Collection and use of employment data. The Committee notes the Government’s indications, in reply to its previous comment, regarding the steps taken to improve the labour market information system and the manner in which data are used to implement and review employment policy measures. The Committee also notes the Government’s indications that, in the wake of the COVID-19 pandemic, unemployment is on the rise, particularly in the tertiary and secondary sectors. The Committee therefore requests the Government to include in its next report more detailed, up-to-date information, including statistical data disaggregated by age and sex, on employment trends and the scale of unemployment and underemployment.

Regional development. In its previous comment, the Committee noted the formulation of the “Accelerated development programme for the northern regions” (PDA/RN), whose overall objective is to consolidate peace and security through the socio-economic development of the regions affected by the crisis. The Committee also noted the adoption of the “Specific Strategy for the Development of the Northern Regions of Mali”. The Government indicates that the insecurity in the north of the country is continuing but has not provided any information on the implementation of the above-mentioned programmes or on the adoption of new measures to promote employment in the crisis regions. In this regard, the Committee points out that the Employment and Decent Work for Peace and Resilience Recommendation, 2017 (No. 205), contains guidance on measures to be taken to generate employment and decent work for the purposes of recovery, peace and resilience with respect to crisis situations. The Committee therefore once again requests the Government to indicate the measures taken in relation to employment and decent work to promote the recovery and resilience of the regions, especially in the north of the country, affected by crisis situations.

Transition from the informal to the formal economy. In its previous comment, the Committee noted that the informal sector occupied a key position in the economy of Mali, with a rate of 93.3 per cent in 2018. According to ILOSTAT statistics, the proportion of informal employment was even higher in 2020, standing at 94 per cent (95.4 per cent for women and 93 per cent for men). The Committee notes the Government’s brief indications that the following measures have been taken to facilitate the transition from the informal to the formal economy: (i) formulation of a national entrepreneurship strategy; (ii) implementation of a training project for persons working in the retail trade (PROFAC); and (iii) a project to provide support for retailers (PACD). In this regard, the Committee draws the Government’s attention to the fact that the Transition from the Informal to the Formal Economy Recommendation, 2015 (No. 204), provides comprehensive guidance on the elements to be taken into consideration in developing and implementing policy responses for the informal economy, including: the promotion of strategies for sustainable development, poverty eradication and inclusive growth; the generation of decent jobs in the formal economy; the promotion of a conducive business and investment environment; and the promotion of entrepreneurship, micro, small and medium-sized enterprises, and other forms of business models and economic units, such as cooperatives and other social and solidarity economy units (see 2021 Addendum to the General Survey of 2020, Promoting employment and decent work in a changing landscape, paragraph 130). The Committee requests the Government to provide detailed, up-to-date information on the measures taken or envisaged to promote the transition from informal to formal employment, particularly by incorporating the objective of formalization in public policies, in accordance with Recommendation No. 204. The Committee also requests the Government to provide detailed information on the impact of these measures, particularly in rural areas.

Promotion of rural employment. In its previous comment, the Committee noted that the population of Mali was largely rural and that agriculture constituted one of the main drivers of the country’s economy. The Committee notes that, according to ILOSTAT data, this was still the case in 2020, with 68.1 per cent of the Malian population employed in agriculture. The Committee notes with interest the information sent by the Government on: (i) the implementation and impact of the project entitled Vocational training, employment and entrepreneurship support for young persons in rural areas (FIER I 2013–22); (ii) the impact of the project entitled Contribution to policy for the insertion of rural youth in Mali (GCP/MLI/044/Lux); and (iii) the renewal of the FIER project for a second phase (FIER II 2022–30). Recalling that a large proportion of informal work takes place in the rural economy, the Committee requests the Government to continue communicating up-to-date, detailed information on the adoption and the impact of measures promoting decent, productive and freely chosen employment in rural areas of the country.

Micro, small and medium-sized enterprises.In the absence of information on this matter, the Committee once again requests the Government to provide detailed, up-to-date information on the initiatives taken or envisaged to support micro, small and medium-sized enterprises (MSMEs) and to promote the creation of sustainable jobs through MSMEs.

Women’s employment. In its last comment, the Committee noted that the rate of economic participation of men in Mali was considerably higher than that of women. The Committee notes that, according to the ILOSTAT database, in 2020 the economic participation rate of women in Mali remained considerably lower than that of men (82.4 per cent for men compared with 51.6 per cent for women). In this regard, the Committee refers to its 2020 direct request relating to the Discrimination (Employment and Occupation) Convention, 1958 (No. 111), in which it noted the Government’s indication that women “could contribute much more in terms of growth and development if they were not confronted with so many obstacles to empowerment in the labour market”. This being the case, and since the Government has not provided any information on this matter, the Committee once again requests the Government to provide detailed, up-to-date information on the nature and impact of measures specifically adopted to promote decent work and sustainable employment for women.

The Committee wishes to draw the Government’s attention to the tools developed by the ILO to ensure gender mainstreaming in employment policies and to promote gender equality. The tools available for this purpose include examples of good practices and strategies to design and implement policies which respond to challenges encountered and opportunities linked to women’s employment and recommendations to improve women’s access to decent jobs (ILO, Employment Policy Design Lab).

Youth employment. In its previous comment, the Committee noted that access to employment is of vital importance for young people in Mali. In this regard, the Committee noted the establishment in 2023 of the Youth Employment Promotion Agency (APEJ). The Government has not provided any updated information on the activities of the APEJ. However, the Committee notes the information provided on the content and impact of the “Skills development and youth employment” (PROCEJ) project and the FIER project in terms of the promotion of youth employment. Nonetheless, the Committee notes that, according to the ILOSTAT database, the proportion of young persons neither in employment nor in an education or training programme remained very high in 2020, with an overall rate of 30.9 per cent (43.3 per cent for women and 15.2 per cent for men). The Committee therefore requests the Government to continue providing detailed, up-to-date information on the nature and impact of measures taken to facilitate the integration of young persons, especially young women, in the labour market, including in the context of APEJ activities and the FIER II and PROCEJ projects.

The Committee also draws the Government’s attention to the tools developed by the ILO to promote youth employment, which focus on the vital importance of training geared to improving youth skills and the adoption of inclusive policies responding to the needs of vulnerable young persons. The guidelines for national policies also recognize that it is crucial to encourage entrepreneurship with access to financing and also to ensure collaboration between governments, employers and youth organizations for sustainable solutions (ILO, Employment Policy Design Lab).

Particular categories of workers in situations of vulnerability.In the absence of information on this matter, the Committee once again requests the Government to provide detailed information on the nature and impact of measures taken to improve the integration of workers with disabilities in the labour market. The Committee also once again requests the Government to supply detailed information on the measures taken to facilitate the integration in the labour market of other categories of workers in situations of vulnerability, such as persons living with HIV.

Education and vocational training policies and programmes. Coordination with employment policy. The Committee notes the Government’s information provided in reply to its previous request concerning measures taken in the context of the “Ten-year programme for the development of vocational training for employment” (PRODEC I). The Committee also notes the adoption in 2019 of the second-generation “Ten-year programme for the development of education and vocational training” (PRODEC II 2019–28). The Committee further notes the Government’s indications concerning the implementation of the “Improving the competitiveness of enterprises through vocational training” (ACEFOR) project, which has resulted in the construction of two vocational training centres in the para-agricultural sphere. The Committee understands, on the basis of online information, that the ACEFOR project, funded by the French Development Agency, ended in July 2021. The Committee therefore requests the Government to provide up-to-date information on policies and measures relating to vocational training and rehabilitation, including in the context of the “Ten-year programme for the development of education and vocational training” (PRODEC II 2019–28). The Committee also once again requests the Government to provide information on the manner in which vocational training policies or measures are designed to enable the Malian labour force to develop skills which respond to the needs of the labour market. In this regard, the Committee once again requests the Government to indicate the manner in which education and vocational training policies are coordinated with national employment policy.

The Committee draws the Government’s attention to the resources developed by the ILO aimed at supporting comprehensive initiatives for skills development and lifelong learning, including: guides on developing national skills policies and strategies; self-assessment tools, financing guides and governance resources; guides on digital skills, inclusivity and the ecological transition of vocational education; manuals on skills-based training and capacity-building for training centre managers; and tools for skills anticipation, commercial diversification and promoting autonomy in the rural economy (ILO, Key ILO tools on Skills and Lifelong Learning).

Article 3. Consultation of representatives of persons affected, in particular workers’ and employers’ representatives. The Government indicates that it sent a copy of its report on the application of the Convention to employers’ and workers’ representatives. However, the Government has not provided any information on the manner in which representatives of the persons affected by active employment measures, particularly employers’ and workers’ representatives, are consulted on employment policies. The Committee therefore once again requests the Government to describe the manner in which, in accordance with Article 3 of the Convention, the representatives of the persons affected by employment policies are consulted on the formulation of these policies, so that full account is taken of their experience and views in this context.

COVID-19 pandemic. Socio-economic impact. Intervention and recovery measures. The Committee notes the information communicated by the Government in its report, received in September 2023, in reply to its previous request concerning the socio-economic impact of the COVID-19 pandemic.

Direct Request (CEACR) - adopted 2020, published 109th ILC session (2021)

The Committee takes note of the supplementary information provided by the Government in light of the decision adopted by the Governing Body at its 338th Session (June 2020). The Committee proceeded with the examination of the application of the Convention on the basis of the supplementary information received from the Government this year, as well as on the basis of the information at its disposal in 2019. In this context, the Committee welcomes the Government’s first report on the application of the Convention, received on 30 August 2018, and supplemented by a second report, received on 26 August 2019.

COVID-19 pandemic. Socio-economic impact. Intervention and recovery measures. The Committee notes the serious social and economic impact of the COVID-19 pandemic at the national and global levels. According to the ILO Monitor on national policy responses to the COVID-19 pandemic, on 17 March 2020 the President of the Republic of Mali announced a budget of 6.3 billion CFA francs to combat the pandemic. In addition, a plan of action to prevent and respond to COVID-19 has been drawn up by the Government, with a budget of 3,372,417,000 CFA francs. The Committee notes that the principal prevention measures taken in Mali to combat the spread of COVID-19 in the workplace include the application of the Labour Code especially to avoid dismissals and the adaptation of the Labour Code to the current economic conditions affecting certain sectors and enterprises. In this context, the Committee recalls the detailed guidance provided by international labour standards and would like to draw the Government’s attention to the Employment and Decent Work for Peace and Resilience Recommendation, 2017 (No. 205), which provides guidelines for formulating and implementing effective, consensual and inclusive responses to the profound socio-economic impact of the pandemic. The Committee requests the Government to provide up-to-date information in its next report on the impact of the COVID-19 global pandemic on the implementation of measures taken or contemplated to achieve the objectives of the Convention.

Articles 1 and 2 of the Convention. Formulation and implementation of an active employment policy within the framework of a coordinated economic and social policy. Coordination of employment policy with a social and economic policy aimed at poverty reduction. The Government indicates in its first report that it adopted two national employment policies (the first in July 1998 and the second in March 2015). It adds that the authorities that are responsible for the implementation of employment policies, plans and programmes are the sectoral ministries, together with the Ministry of Employment and Vocational Training. These authorities draw up a plan of action setting out initiatives which are to be implemented by various ministerial departments. The Committee notes the “2018 voluntary national report on the implementation of the sustainable development objectives” of the High-Level Sustainable Development Policy Forum (“2018 voluntary national report”), which indicates that the general objective of the 2015 national employment policy (PNE 2015) is to contribute to the growth of decent employment opportunities. The Committee notes that a draft “Decent Work Country Programme for 2016–18” (DWCP 2016–18) was drawn up in conjunction with the ILO. According to the DWCP 2016–18, the PNE 2015 aims to promote full, productive and freely chosen employment and also poverty reduction. The Committee notes the “Growth and poverty reduction strategy framework: Priority plans of action for 2012–17” (GPRSF 2012–17), published in 2011, whose first priority is the promotion of accelerated growth which is sustainable and favourable to the poor, and creates jobs and income-generating activities. The Committee also notes the “Strategic framework for economic recovery and sustainable development” (CREDD 2016–18), which highlights employment as a prime driver of the poverty reduction strategy. While recognizing that Mali is undergoing a period of instability in the wake of the coup d’état of 18 August 2020, the Committee requests the Government to provide information on the nature and impact of specific measures adopted and implemented in the context of the 2015 national employment policy (PNE 2015) and the plan of action for employment, the draft “Decent Work Country Programme for 2016–18” (DWCP 2016–18), the “Growth and poverty reduction strategy framework: Priority plans of action for 2012–17” (GPRSF 2012–17) and the “Strategic framework for economic recovery and sustainable development in Mali” (CREDD 2016–18), in terms of the promotion of full, productive and freely chosen employment. The Committee also requests the Government to provide detailed information, including statistical data disaggregated by sex and age, on the results achieved and the difficulties encountered in attaining the employment objectives of the national employment policy. The Committee further requests the Government to provide information on any new programmes adopted or envisaged in relation to employment policy and to indicate the manner in which employment policy measures are regularly reviewed, as part of a coordinated overall economic and social policy.

Article 2. Employment trends. Collection and use of employment data. The Government indicates in its report that the National Employment and Training Observatory (ONEF), established by Ordinance No. 2013-024/P-RM of 30 December 2013, is responsible for the collection of statistical data on employment, for the organization of modular household surveys on an annual basis and for the organization of regular monitoring of initiatives established in the plan of action. However, the Committee notes the indication in the DWCP 2016–18 that there is a lack of labour statistics, and particularly of reliable data. Underlining the importance of a labour market data collection system for determining measures to be adopted to attain the objectives of the Convention and to review those measures regularly, the Committee requests the Government to indicate the measures taken or contemplated to improve the labour market information system and to indicate in particular the manner in which collected data are used to formulate, implement and review employment policy measures. In this context, the Committee requests the Government to provide up-to-date information illustrating the situation and trends of the active population, employment, unemployment and underemployment, disaggregated by age and sex.

Education and vocational training policies and programmes. Coordination with employment policy. The Committee notes that the general objective of the national vocational training policy adopted on 29 July 2009 is to develop human resources for productivity and competitiveness. The Committee notes that implementation of the national vocational training policy occurs through the “10-year programme for the development of vocational training for employment” (PRODEFPE), drawn up to support the active employment policy, and its first action plan was adopted in 2014 for the 2015–17 period. This involves a programme supporting the active employment policy which is based on skills development for economic growth and increased competitiveness of human capital. The Committee also notes that the CREDD gives priority to skills development for the people of Mali and aims to improve education at all levels and literacy, and also job creation by directing vocational training towards productive sectors. The Committee further notes that a legislative and regulatory framework was established through the promulgation of Act No. 2016-026 of 14 June 2016 concerning vocational training. The Committee requests the Government to provide up-to-date information on the measures taken in the context of the “10-year programme for the development of vocational training for employment” (PRODEFPE) and to indicate the results achieved. It also invites the Government to provide specific information on the measures taken or envisaged to ensure that the Malian labour force is equipped with skills that meet the current needs of the labour market. The Committee requests the Government to indicate the manner in which education and vocational training policies are coordinated with national employment policy and employment prospects.

Regional development. The Committee recalls that the northern regions of the country have been seriously disrupted by the armed conflict since 2012. The Government has drawn up and implemented an “Accelerated development programme for the northern regions” (PDA/RN), whose overall objective is to “consolidate peace and security through the socio-economic development of the regions affected by the crisis”. The Committee notes the “Specific development strategy for the northern regions of Mali”, which covers three phases provided for by the Accord for Peace and Reconciliation in Mali: (i) 2015–17: urgent measures and rapid recovery; (ii) 2017–22: the medium term, corresponding to economic structuring and institutional reforms; and (iii) 2022–30: the long term, aimed at the national convergence of regional development and the future economic emergence of Mali. The Committee requests the Government to include information in it next report on the measures taken to rectify regional imbalances and promote the raising of employment levels in the northern regions of the country.

Promotion of rural employment. The Committee notes that the DWCP indicates that the population of Mali is largely rural and that agriculture constitutes one of the main drivers of the Malian economy. The Committee notes that programmes are being formulated in the rural development and rural employment sectors (FIER) and also in skills development and youth employment (PROCEJ). The Committee requests the Government to provide up-to-date, detailed information illustrating the measures taken or contemplated to promote the creation of productive jobs in rural areas, including through the promotion of entrepreneurship.

Informal sector. The Committee notes that the informal sector occupies an important position in the economy of Mali. According to statistical data from ILOSTAT, in 2018 the proportion of informal employment was 93.4 per cent (90.9 per cent for men and 96.6 per cent for women). The Committee also notes that, according to the DWCP, informal jobs represent 92.9 per cent of employment in rural areas compared with 68.39 per cent of employment in urban areas. Noting that a very large proportion of the labour force in Mali is employed in the informal economy, the Committee requests the Government to provide detailed information on the programmes and measures implemented to facilitate workers’ transition from the informal to the formal economy, particularly in rural areas.

Small and medium-sized enterprises. The Committee requests the Government to provide detailed information on the initiatives taken or envisaged to support micro, small and medium-sized enterprises and to promote the creation of sustainable jobs through micro and small enterprises.

Women’s employment. In its “2018 voluntary national report”, the Government indicates that it seeks to create sustainable jobs, particularly for women and young persons in all sectors of activity. The Committee refers to its direct request of 2018 relating to the Discrimination (Employment and Occupation) Convention, 1958 (No. 111), in which it noted that, according to the DWCP 2016–18, “decent work indicators show numerous inequalities between men and women in the world of work, including unemployment rates (11.4 per cent for women compared with 6.4 per cent for men) and underemployment rates related to hours of work (28.7 per cent for men compared with 37.1 per cent for women).” Moreover, the Committee notes that the rate of economic participation of men is considerably higher than that of women. According to the ILOSTAT database, the labour force participation rate was 77.4 per cent for men and 51.6 per cent for women in 2018. The Committee notes that section 2 of Ordinance No. 01-016/P-RM of 27 February 2001 provides that the National Employment Agency (ANPE) is responsible for designing and implementing mechanisms and actions aimed at ensuring the promotion of employment, especially women’s employment. The Committee requests the Government to supply up-to-date information on the nature and impact of the measures taken to promote decent work and sustainable employment for women.

Youth employment. The Government considers that access to employment is of key importance for young people and the promotion of decent employment for them is considered a priority in several documents such as the CREDD and the DWCP 2016–18. In this regard, the Government refers to a specialist structure, the Youth Employment Promotion Agency (APEJ), established by Act No. 03-031 of 25 August 2003. The prime mission of the APEJ is to assist with promoting employment for Malian men and women between 15 and 40 years of age, in rural and urban settings, residents or expatriates, facilitating their access to the labour market and to credit. The Committee also notes Act No. 2016-038 of 7 July 2016 instituting national service for young persons and Act No. 2017-0241 of 13 March 2017 establishing structures and procedures for the functioning of the youth national service department. According to the ILOSTAT database, the overall youth participation rate was 47.9 per cent in 2018, this rate being respectively 56.8 per cent for young men and 40.2 per cent for young women. The Committee requests the Government to provide detailed information in its next report on the measures taken to facilitate the integration of young persons in the labour market and the results achieved.

Particular categories of workers in vulnerable situations. The Committee refers to its direct request of 2020 on the Vocational Rehabilitation and Employment (Disabled Persons) Convention, 1983 (No. 159), in which it notes the adoption of Act 2018-027 of 12 June 2018 concerning the rights of persons with disabilities, aimed at promoting and protecting these rights. It notes with interest that sections 15–19 of that Act are devoted to vocational training and employment for persons with disabilities and that its implementing decree is being drawn up with the participation of persons with disabilities themselves. It also notes the “Strategic plan for the protection of persons with disabilities for the 2015–24 period”, which, however, has experienced significant delays in the mobilization of resources. The Committee requests the Government to provide detailed information, including on the impact of these measures on the integration of workers with disabilities in the labour market. The Committee also requests the Government to supply further information on the measures taken to facilitate the integration in the labour market of other specific categories of workers in vulnerable situations, such as persons living with HIV.

Article 3. Participation of the social partners in the formulation and implementation of policies. The Government indicates that the representatives of employers and workers are consulted regarding the formulation or evaluation of policy through working meetings where necessary, but there are no formal consultation procedures. The Committee notes that the social partners were consulted at the time of validation of the framework document for the PNE 2015 and the DWCP 2016–18. It also notes that the DWCP 2016–18 gives priority to strengthening social dialogue and its role in contributing to decent work. The Committee requests the Government to describe in specific detail the manner in which the Government ensures that representatives of the stakeholders concerned are consulted on the formulation, implementation and review of employment policies, regarding both consultations with the social partners and consultations with representatives of other sectors of the active population. It also requests the Government to indicate whether steps have been taken to establish formal consultation procedures and to provide information on the role played by the social partners in the formulation and implementation of employment policy measures adopted to address the socio-economic impact of the COVID-19 pandemic.