Mauritania: Prevalence of forced marriage and its legal status; state protection; whether a woman can refuse a forced marriage (2015-July 2017)

Research Directorate, Immigration and Refugee Board of Canada, Ottawa

1. Prevalence of Early and Forced Marriage

Sources indicate that in Mauritania, early marriage is widespread (US 3 Mar. 2017, 22) or [translation] "very widespread" (Dune Voices 29 Nov. 2015). According to the Country Reports on Human Rights Practices for 2016 from the United States (US) Department of State, early and forced marriage are among the human rights abuses reported in Mauritania (US 3 Mar. 2017, 1). In a Universal Periodic Review from the United Nations (UN) Human Rights Council, the Human Rights Committee notes the persistence of early marriage in Mauritania (UN 24 Aug. 2015, para. 47).

A press release published in 2013 by PR Newswire, a US distributor of press releases, reports the statements of the Mauritanian delegation before the UN Human Rights Committee that was examining the initial report from Mauritania on the implementation of provisions of the International Covenant on Civil and Political Rights, according to which early marriage is still practised in the country [translation] "because of the traditional cultural heritage and, more specifically, the erroneous belief that Islam authorizes early marriage and so cannot be prohibited" (PR Newswire 25 Oct. 2013). A February 2014 article published by Radio France internationale (RFI) reports on the comments of the President of the Association of Women Heads of Family (Association des femmes chefs de famille, AFCF), who denounced [translation] "the Islamist discourse encouraging marriage with minors and … the increase in cases of rape, pushing fathers to marry their daughters - as soon as possible - to protect their honour" (RFI 19 Feb. 2014). Minority Rights Groups International (MRG) also invokes the cultural reaction to rape, with some Haratine parents offering a daughter who has been raped in marriage to preserve their honour (MRG July 2015, 21).

1.1. Statistics

A UNICEF report titled The State of the World's Children 2016, with statistical tables derived from the organization's global databases available as of January 2016 and drawing on [UNICEF English version] "inter-agency estimates and nationally representative household surveys" (UN June 2016, 108), indicates a rate of early marriage (before the age of 18) of around 34 percent for Mauritanian women between the ages of 20 and 24, 14 percent of whom were married before the age of 15 (UN June 2016, 151). According to the same report, 25 percent of Mauritanian girls between the ages of 15 and 19 were married at the time of the study (UN June 2016, 159).

According to the 2015 Multiple Indicator Cluster Survey for Mauritania (Enquête par grappes à indicateurs multiples de la Mauritanie de 2015, MICS 2015), a national household survey conducted by the country's National Statistics Office (Office national de la statistique, ONS), in which women aged 15 to 49 and children younger than 5 participated by filling out questionnaires (IHSN 14 Jan. 2016), 16 percent of women aged 15 to 49 were married before the age of 15, and 35 percent of women aged between 20 and 49 were married before the age of 18 (Mauritania Nov. 2016, 7). According to the same survey, in 2015, 28 percent of women aged 15 to 19 were married (Mauritania Nov. 2016, 213).

In a 2015 call for submissions [translation] "for a socio-anthropological study on the determinants of early marriage and lack of education for girls in Mauritania," the UNICEF office in Mauritania, relying on data from the 2011 MICS, notes [translation] "considerable ethnic disparities," such as the following:

[translation]

The highest rates of marriage before the age of 15 are recorded among the Arab and Pulaar communities (15% and 14% respectively), while the Wolof community has the lowest recorded rate (6.1%). The Pulaar community continues to have the highest rates of early marriage before the age of 15 and before the age of 18 (14% and 44% respectively). However, marriage before the legal age of 18 is more common among the Soninke (39%) than in the Arab community (33%). (UN 8 July 2015)

In correspondence with the Research Directorate, a representative of the Mauritanian Association for the Health of Mothers and Children (Association mauritanienne pour la santé de la mère et de l'enfant, AMSME), a state-recognized NGO whose primary mission is to [translation] "provide full support in the face of violations of the rights of women and children who are vulnerable or in distress" (AMSME, n.d.), said that Soninke and Fulani girls are given in marriage when they are very young, between the ages of 13 and 14, without their consent and often to cousins or close relatives who are older (sometimes their father's age) (AMSME 23 June 2017). The same source also said that some girls are offered without their consent for a polygamous marriage to a family friend or an authority figure in their village (AMSME 23 June 2017). The AMSME representative also stated that a man may marry his brother's wife after his death to protect the brother's children and to prevent his wife from remarrying outside the family (AMSME 23 June 2017). Corroborating information could not be found among the sources consulted by the Research Directorate within the time constraints of this Response.

An MRG report on the struggle of Haratine women in Mauritania notes that early marriage is [MRG English version] "a significant issue" among Haratine women in Mauritania [1] (MRG July 2015, 21). According to the same report, in interviews with 20 Haratine women, several of the women [MRG English version] "reported having been forced into early marriages by their parents" (MRG July 2015, 21). Corroborating information could not be found among the sources consulted by the Research Directorate within the time constraints of this Response.

In its 2015 call for submissions, the UNICEF office in Mauritania indicates that in [the wilaya (administrative region) of] Gorgol, 21 percent of women aged 15 to 49 were married before the age of 15, and 56 percent were married before the age of 18, while in Tagant, 8 percent were married before the age of 15 and 21 percent before the age of 18 (UN 8 July 2015). According to the 2015 ONS survey, Guidimakha has the highest percentage of women, that is, between 26 and 28 percent, who were married before the age of 15, while in Nouadhibou, the percentage is 11 percent (Mauritania Nov. 2016, 213). The statistics from the 2015 ONS survey also show that the percentage of women aged 15 to 19 who are currently married increases from 19 percent in urban areas to 36 percent in rural areas (Mauritania Nov. 2016, 213). According to the same source, the percentage of women aged 15 to 19 who are currently married also varies by level of education (41 percent for uneducated women, and 15 percent for women with high school or above) and income (38.5 percent among the poorest people and 17 percent among the wealthiest) (Mauritania Nov. 2016, 213-214). A 2014 RFI article cites the statements of Aminetou Mint El Moctar, the President of the AFCF [2], who mentions that it is [translation] "poverty 'that increases and incites families to sell their child'" (RFI 19 Feb. 2014). Similarly, the AMSME representative indicated that the marriage of girls is a source of income for their parents (AMSME 23 June 2017).

2. Legislation

Articles 5, 6, 9 and 26 of Mauritania's Personal Status Code (Code du statut personnel, CSP), adopted in 2001, reads as follows:

[translation]

Article 5: For a marriage to be contracted, the following elements must be present: two spouses, the guardian (weli), the dowry and the consent.

Article 6: Any person of sound mind who is at least 18 years old shall be able to marry. A disabled person may be married by his or her guardian (weli) if the guardian sees an obvious interest in the marriage.

…

Article 9: Guardianship (wilaya) is exercised in the interests of the woman. A woman who has reached the age of majority cannot be married without her consent and the presence of her guardian (weli). Silence implies that a young girl has given her consent.

…

Article 26: A marriage is contracted by the consent of the parties, expressed in the established words or using any expression acceptable by usage. If a person is unable to express himself or herself, valid consent can be expressed either in writing or by any sign expressing willingness with certainty. (Mauritania 2001)

Article 41 of Order No. 2005-015 on the Judicial Protection of Children (Ordonnance no 2005-015 portant protection pénale de l'enfant) reads as follows:

[translation]

Article 41. A father or mother who fails to meet their legal obligations to the extent of seriously jeopardizing the health, safety, moral well-being or education of their child shall be punished by a term of imprisonment of six months to one year and a fine of 80,000 [approximately C$287] to 120,000 ouguiyas [approximately C$430].

The parents and people with authority over the child who request that the child's marriage be registered and the authorities who proceed with the registration without respecting the legal age for marriage and consent shall be punished by a term of imprisonment of three to six months and a fine of 100,000 [C$358] to 200,000 ouguiyas.

This sanction is also applicable to any person who subjected a child to physical coercion resulting in long-lasting effects, mutilation or permanent incapacity in order to bring him or her to consent to the marriage.

This sanction is applicable to the parents, people with authority over the child and civil status authorities who refuse the registration in accordance with the provisions of Law No. 96.020 of 20 July 1996 establishing the Civil Status Code (Loi n° 96.020 du 20 juillet 1996 portant code de l'état civil) regardless of the nature of the relationship (Mauritania 2005).

Sources report that in August 2015, the Mauritanian parliament adopted a harsher law against slavery, which is now considered a crime against humanity (RFI 15 Aug. 2015; AFP 11 Dec. 2015; Amnesty International 24 Feb. 2016). Sources indicate that the law criminalizes more practices, including forced marriage (MRG 5 Oct. 2015, 6; RFI 15 Aug. 2015; Freedom House 9 Aug. 2016).

Article 3 of Law No. 2015-031 Criminalizing Slavery and Punishing Slavery-like Practices (Loi no 2015-031 portant incrimination de l'esclavage et réprimant les pratiques esclavagistes) defines various terms, including placement:

Placement: A practice whereby:

• a women, without having the right to refuse, is promised or given in marriage for cash or in-kind compensation paid to her parents, guardian, family or any other person or group of persons;
• the husband of a woman or his family gives or tries to give the woman to another person for value received in cash or otherwise;
• a woman, on the death of her husband, is inherited by another person;
• a child is given, by either or both of the child's parents or by the child's guardian, to another person, for payment or otherwise, with a view to exploiting the child or forcing the child into labour (Mauritania 2015, emphasis in original).

Article 8 of Law No. 2015-031 Criminalizing Slavery and Punishing Slavery-like Practices provides the following:

Article 8: Anyone who commits placement as set out in Article 3 of this law shall be punished by a term of imprisonment of between five (5) and seven (7) years and a fine of two hundred and fifty thousand (250,000) [approximately C$895] to five million (5,000,000) [approximately C$17,908] ouguiyas. … (Mauritania 2015)

The United Nations Population Fund (UNFPA) states in a 2016 report on Mauritania that the adoption of an article penalizing the marriage of children younger than 18 in the CSP is one of the projects it is working on with the Mauritanian government (UN Oct. 2016, 24). According to the Country Reports 2016, the government is also working with UNICEF to implement a program to combat early marriage through judicial and political reforms (US 3 Mar. 2017, 22). UNFPA notes the following:

[translation]

Mauritania, through technical and financial support from UNFPA and UNICEF, has launched the African campaign against child marriage. A multisectoral committee has been set up and a draft action plan for combatting child marriage has been prepared. There has been significant progress in strengthening the legal and institutional framework through two (2) bills, one establishing a draft framework law on gender-related violence and the other on the Child Protection Code (Code de [p]rotection de l'[e]nfant), prepared by the Ministry of Social Affairs, Children and Family ([m]inistère des Affaires sociales de l'Enfance et de la Famille) and by the Ministry of Justice ([m]inistère de la Justice). (UN Oct. 2016, 40)

Additional information on these legal reforms could not be found among the sources consulted by the Research Directorate within the time constraints of this Response.

2.1. Application of Legislation

In a July 2014 report on Mauritania, the UN Committee on the Elimination of Discrimination against Women (CEDAW) refers to [CEDAW English version] "discriminatory provisions of the Personal Status Code (Code du statut personnel) regarding the authorization of marriages of girls under 18 years of age by their guardians" (UN 24 July 2014, para. 46).

The Country Reports 2016 indicates that the authorities rarely enforce the law on the legal marriage age (US 3 Mar. 2017, 22). The same report also says that since consensual sex outside of marriage is illegal, a legal guardian can ask local authorities to permit a girl younger than 18 to marry and that the authorities frequently grant permission (US 3 Mar. 2017, 22). As to who may force a woman or young girl to marry, the AMSME representative stated that it could be her father, mother, uncles, aunts or extended family (AMSME 23 June 2017). Corroborating information could not be found among the sources consulted by the Research Directorate within the time constraints of this Response.

Dune Voices, a Media Diversity Institute platform that, with assistance from partners and local journalists, gives a voice to local populations of the Sahara region (Dune Voices n.d.), explains the following:

[translation]

[The] Personal Status Code … prohibits a girl under the age of 18 to marry, barring exceptional circumstances, which are often improperly exploited by families. The exception concerns the girl expressing her desire to marry, and it is up to the justice system to rule on this. However, this law has not been enforced. It has not been accompanied by any controls or monitoring by the authorities. As a result, it has not put an end to the phenomenon of early marriage. (Dune Voices 29 Nov. 2015)

MRG explains that [MRG English version] "[t]he 2001 Personal Status Code calls for the free consent of both parties to a marriage; however, while an adult woman must give her consent, for a young girl silence can be taken as consent ('le silence de la jeune fille vaut consentement')" (MRG July 2015, 21). Corroborating information could not be found among the sources consulted by the Research Directorate within the time constraints of this Response.

Sources indicate that the 2015 antislavery law provides for the creation of special tribunals to deal with cases of slavery (MRG 5 Oct. 2015, 6; AFP 11 Dec. 2015; US 30 June 2016). According to some sources, under this new law, human rights organizations have the right to represent victims before the tribunals (MRG 5 Oct. 2015, 6; Freedom House 9 Aug. 2016). However, according to a 2016 US Department of State report on human trafficking in Mauritania, these tribunals do not receive adequate funding and judges do not receive sufficient training (US 30 June 2016). Freedom House reports that the requirement for NGOs to be registered for five years to be involved disqualifies groups which the state has refused to register (Freedom House 9 Aug. 2016). According to the same source, "[v]ictims often lack awareness of their legal rights, and both investigating agencies and courts are seen as biased against victims" (Freedom House 9 Aug. 2016). Freedom House mentions that there were no successful prosecutions for slavery by the end of 2015 (Freedom House 9 Aug. 2016). Similarly, according to Global Post, whose country-based correspondents produce reports on international events for a worldwide audience online (PRI n.d.), "[w]hile a new law … criminalizes other forms of slavery such as forced marriage, it is very rare that anyone is found guilty" (Global Post 22 Oct. 2015). According to a 2015 RFI article, certain antislavery organizations deplore the government's denial of slavery (RFI 15 Aug. 2015). Sources indicate that some activists have criticized the fact that the authorities do not enforce the antislavery legislation but pursue anti-slavery activists (AFP 19 Aug. 2015; ATS 20 Aug. 2015).

As for legislation protecting Mauritanian women from forced marriage, the AMSME representative listed five conventions ratified by Mauritania, including the Convention on the Elimination of All Forms of Discrimination Against Women and the Convention on the Rights of the Child, and stated that [translation] "the primary obstacle is enforcement, which is often obstructed by immense societal pressure" (AMSME 23 June 2017).

An article published in 2016 by the Secours populaire français (SPF), a French nonprofit organization whose mission is [SPF English version] "to fight against poverty and exclusion in France and throughout the world" (SPF n.d.), notes the comments of the President of El Karamat, an organization operating in Mauritania that advocates for women's rights, who stated that [translation] "[d]espite some legislative advances, it is difficult to effectively enforce laws on the protection of women's rights given the burden of traditions and the patriarchal structure of a society that continues to see women as inferior" (SPF 8 Mar. 2016).

In a February 2014 report, RFI states that the marriage of a 13yearold girl, who had been married by her father at the age of 9 to a man in his 50s, was dissolved by a court decision and that the AFCF was [translation] "taking care" of the young girl (RFI 19 Feb. 2014). The same RFI article says the following: [translation] "Proceedings usually run their full course when there has also been abuse. In the case of Raja Mint Abdelkader, who obtained a divorce a few days ago, her body was covered with cigarette burns when she arrived at the hospital. That is what worked against her husband" (RFI 19 Feb. 2014). According to the AFCF, one or two marriages are annulled each year, but hundreds are entered into and that number is rising (RFI 19 Feb. 2014).

3. Refusing a Forced Marriage and State Protection

The AMSME representative provided the following explanation:

[translation]

A woman who refuses a marriage may certainly go to the authorities to have her decision enforced with the kadi [cadi/qadi, religious jurist] or the prosecutor of the Republic, but it is rare and difficult and the woman faces a risk of being marginalized by her parents and by society. (AMSME 23 June 2017)

In its 2014 article, RFI notes the remarks of the President of the AFCF: [translation] "Even though, legally, these forced marriages are prohibited, 'few judges agree to annul them' [because] 'these are traditional judges who often fail to see a problem'" (RFI 19 Feb. 2014).

According to the AMSME representative, the Ministry of Social Affairs, Children and the Family can provide advice to parents if their daughter refuses a forced marriage (AMSME 23 June 2017). The same source also said that a woman who refuses to marry can contact an imam at a mosque, who can mediate with the parents to [have] the marriage annulled (AMSME 23 June 2017). Corroborating information could not be found among the sources consulted by the Research Directorate within the time constraints of this Response.

In its July 2014 on Mauritania, CEDAW notes [UN English version] "the persistence of deeply rooted gender stereotypes, in addition to practices that are harmful to women, such as … child and forced marriages" (UN 24 July 2014, para. 22). Sources describe a practice that has [translation] "deep roots among the populations" (ANI 18 Feb. 2015; Xinhua News Agency 27 Jan. 2017). Dune Voices mentions that early marriage [translation] "even has deep roots in popular culture, which glorifies family and daughters who marry at a young age" (Dune Voices 29 Nov. 2015). Most of the young Haratine women interviewed by MRG for its 2015 study who stated that their parents had forced them to marry early [MRG English version] "cited tradition as the reason for their forced marriage or early marriage and their inability to refuse it" (MRG July 2015, 21).

4. Support Services

According to the AMSME representative, a woman who refuses to marry may turn to human rights NGOs like AMSME, AFCF, the Association for the Fight Against Dependence (Association de lutte contre la dépendance, ALCD) [3] and the Mauritanian Human Rights Association (Association mauritanienne des droits de l'homme, AMDH) [4] for assistance in the form of temporary shelter, social mediation, legal advice and support, and psychological and health support (AMSME 23 June 2017).

In its 2016 annual report, the AMSME notes, with respect to combatting gender-based violence under its protection program, the care and support for survivors of early marriages (AMSME n.d.). According to the same source, the AMSME handled 27 cases of early marriage in 2016, 12 involving girls between the ages of 11 and 15, and 15 involving girls between the ages of 16 and 18 (AMSME n.d.). According to the AMSME 2016 annual report, of the 27 cases of early marriage, 23 were considered [translation] "forced marriages" and 4 fell into the category of "early marriage and abuse" (AMSME n.d.). In its annual report, the AMSME describes itself as a national NGO whose head office is in Nouakchott and which has satellite offices in Nouadhibou, Kaédi and Tintane, as well as representatives in the regions of Hodh Elgarbi, Hodh Echargui, Brakna and Zouerate (AMSME n.d.). According to the same source, the AMSME has a centre called ELWAFA, which offers advice and takes in women and children who have been victims of sexual violence (AMSME n.d.). The AMSME annual report mentions that the ELWAFA centre [translation] "works closely with the police units responsible for minors, urban police stations in Nouakchott, the courts in the three [w]ilayas of the capital, the main health structures and the Community Protection Systems (Systèmes de [p]rotection [c]ommunaux, SPC)" (AMSME N.d.). According to the same source, this centre is located in a neighbourhood in the outskirts of Nouakchott and is open 24 hours a day (AMSME n.d.). Sources indicate that the AMSME operates a telephone helpline for women and children called the [translation] "Green Line" (AMSME n.d.; Journal Tahalil 17 Mar. 2016). According to the AMSME representative, the Green Line can be called from anywhere in Mauritania, it is available 24 hours a day, 7 days a week, and it works with other organizations that help abused women and children (AMSME 23 June 2017).

Some sources mention organizations that have launched awareness campaigns about early marriage, including the following:

• The Mauritanian Midwife Association (Association des sages-femmes mauritaniennes), which offered a one-day training session for social workers in Kiffa in September 2016 (AMI 1 Sept. 2016);
• The AFCF, with a regional workshop advocating against [translation] "harmful traditional practices," which was launched in Kaédi in May 2016 (AMI 4 May 2016);
• El Karamat, offering an awareness program in the adouabas of Hodh El Gharbi (SPF [2015]).

This Response was prepared after researching publicly accessible information currently available to the Research Directorate within time constraints. This Response is not, and does not purport to be, conclusive as to the merit of any particular claim for refugee protection. Please find below the list of sources consulted in researching this Information Request.

Notes

[1] According to MRG, the Haratine minority, also called [MRG English version] "Black Moors," have historically been forced into slavery by the "White Moors" or the "Arab Berber population" (MRG July 2015, 5).

[2] The AFCF describes itself as an organization that promotes human rights and advocates for the rights of women and children (AFCF 20 June 2012). Its primary objectives are to support victims of slavery, encourage women's organizations to force public authorities to enforce the law, investigate violations of women's rights and improve economic conditions for women (AFCF 20 June 2012).

[3] According to the website Courants de femmes, the Association for the Fight Against Dependence (Association de lutte contre la dépendance, ALCD) is an NGO that assists victims of family disputes in Nouakchott [translation] "and in various other places in Mauritania, including M'bout," in the Gorgol region (Courants de femmes N.d.).

[4] On its website, AMDH describes itself as an organization that stands up against human rights violations in Mauritania; its areas of activity include women's and children's rights, and its head office is in Nouakchott (AMDH N.d.).

References

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Agence France-Presse (AFP). 19 August 2015. Hamedine Ould Sadi and Fran Blandy. "Mauritania's Tough Anti-Slavery Laws Face Tougher Resistance." (Factiva) [Accessed 21 June 2017]

Agence mauritanienne d'information (AMI). 1 September 2016. "Journée de formation sur les pratiques nocives à la santé des filles." (Factiva) [Accessed 20 June 2017]

Agence mauritanienne d'information (AMI). 4 May 2016. "Gorgol : plaidoyer sur les MGF." (Factiva) [Accessed 20 June 2017]

Agence Nouakchott d'information (ANI). 18 February 2015. "Lancement d'une campagne de sensibilisation contre l'excision et le mariage précoce." (Factiva) [Accessed 19 June 2017]

Agence télégraphique suisse (ATS). 20 August 2015. "L'esclavage au coeur d'un procès qui s'ouvre aujourd'hui à Aleg." (Factiva) [Accessed 21 June 2017]

Amnesty International. 24 February 2016. "Mauritanie." Amnesty International - Rapport 2015/16 : la situation des droits humains dans le monde. [Accessed 20 June 2017]

Association des femmes chefs de famille (AFCF). 20 June 2012. "Objectifs." [Accessed 27 June 2017]

Association mauritanienne des droits de l'homme (AMDH). N.d. "Nos domaines d'action." [Accessed 27 June 2017]

Association mauritanienne pour la santé de la mère et de l'enfant (AMSME). 23 June 2017. Correspondence sent to the Research Directorate by a representative.

Association mauritanienne pour la santé de la mère et de l'enfant (AMSME). N.d. Rapport 2016. [Accessed 19 June 2017]

Courants de femmes. N.d. "ALCD - Association de lutte contre la dépendance." [Accessed 27 June 2017]

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Additional Sources Consulted

Oral sources: Association des femmes chefs de famille en Mauritanie; Association mauritanienne des droits de l'homme; Association mauritanienne des femmes juristes; Association pour la défense des droits des femmes en Mauritanie; Commission for the Defense of Human Rights in Mauritania; Forum des organisations nationales des droits de l'homme; Mauritania - ministère des Affaires sociales, de l'Enfance et de la Famille; SOS Esclaves Mauritania; UN - UNDP, UNICEF Mauritania, UN Women Mauritania.

Internet sites, including: Africa for Women's Rights; ecoi.net; Ford Foundation; France - Office français de protection des réfugiés et apatrides; International Federation for Human Rights; Human Rights Watch; Initiative de résurgence du mouvement abolitionniste; International Crisis Group; IRIN; Mauritania - ministère des Affaires sociales, de l'Enfance et de la Famille; Organisation for Economic Co-operation and Development - Social Institutions & Gender Index; Radio Free Europe; ReliefWeb; UN - Refworld, UNDP, UN Women.