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From Cooperation to Contention spotlight From cooperation to contention Political unsettlement and farmer-pastoralist conflicts in Nigeria From cooperation to contention: political unsettlement and farmer- pastoralist conflicts in Nigeria Authors Adam Higazi is a post-doctoral researcher at the Department of Anthropology, University of Amsterdam, and a research fellow at the Centre for Peace and Security Studies, Modibbo Adama University of Technology, Yola (Adamawa State), Nigeria. Zahbia Yousuf is Senior Advisor, Peace and Transition Processes at Conciliation Resources. Acknowledgements Accord would like to give thanks to: Alexander Ramsbotham Fagbemi Ayokunle Felix Colchester Janet Adama Mohammed and CePSERD (Center for Peacebuilding and Socio-Economic Resources Development) Conciliation Resources is an independent international organisation working with people in conflict to prevent violence, resolve conflicts and promote peaceful societies. Our Accord series informs and strengthens peace process by documenting and analysing the lessons of peacebuilding. Accord spotlight provides focused analysis of key themes for peace and transition practice. This report is an output from the Political Settlements Research Programme (PSRP), funded by UK Aid from the UK Department for International Development (DFID) for the benefit of developing countries. The views expressed and information contained in it are not necessarily those of or endorsed by DFID, which can accept no responsibility for such views or information or for any reliance placed on them. www.politicalsettlements.org Twitter.com/PolSettlements Published by: Conciliation Resources Burghley Yard, 106 Burghley Road, London NW5 1AL www.c-r.org Telephone +44 (0) 207 359 7728 Email [email protected] Facebook.com/ConciliationResources Twitter.com/CRbuildpeace Charity registered in England and Wales (1055436) Company limited by guarantee registered in England and Wales (03196482) Design & layout: www.revangeldesigns.co.uk Cover photo: Fulani pastoralists with the Ardo (Fulani pastoralist leader) of Pinau, Wase Local Government Area (LGA), southern Plateau State, December 2016 Credit: Adam Higazi Overview Pastoralist livelihoods support millions of levels of pastoralist-farmer violence. Nigerians and form an important part of In particular, the politicisation of ethnic and the rural economy and society. There are religious divides in Nigeria, the intersection different types of pastoralism in Nigeria of rural violence with other forms of insecurity ranging from nomadic to semi-settled and including urban riots, and the incorrect settled agro-pastoralism. This report looks links made with Boko Haram activity in the at transhumant (or nomadic) pastoralism – north-east, have intensified the security and the movement of livestock from one place to political profile of Fulani pastoralists. another between wet and dry seasons – and the dynamics of conflicts between farmers There is an urgent need to clarify and pastoralists, which have steadily contemporary dimensions of pastoralist- increased in Nigeria in recent years. farmer conflicts, and to identify ways to de-escalate this type of violence and While these two essential components prevent spill over into other forms of of rural society have enjoyed cooperative conflict. This report outlines the causes relationships in many parts of the country, of increased pastoralist-farmer tensions such coexistence is now strained or has as well as the position of pastoralists broken down in many communities. The in Nigeria. It explores the challenges to pattern and scale of farmer-pastoralist developing conflict prevention mechanisms conflicts varies across Nigeria, and in some at local and national levels, and identifies places the two groups do still accommodate potential entry points for doing so. each other. But in many states clashes have intensified – killing and destruction The report is primarily based on fieldwork have reached unprecedented levels in conducted among pastoralists and farmers major flashpoint centres in northern and in Plateau, Kaduna and Nasarawa States central Nigeria, and tensions have now in November and December 2016, and extended to the south. How such tensions on individual meetings in Abuja with are categorised – in particular perceptions government officials and civil society of why violence happens and who is representatives. The analysis also utilises responsible – affects how responses are data and insights from Zamfara State in designed and implemented. January 2017 and from earlier fieldwork carried out in Plateau and Bauchi States Pastoralists lack meaningful political since 2005, and Borno, Adamawa, and representation or support at federal and Taraba States in 2015–16. In addition, it state levels. Rural areas are generally draws on workshop discussions held by lightly governed, and heavy dependence Conciliation Resources in Abuja in 2016 with on the oil economy has led to the neglect representatives of government ministries, and subsequent decline of the agricultural civil society organisations and relevant sector. The prominence of pastoralism as a interest groups from across Nigeria. political issue has grown alongside rising Political unsettlement and farmer-pastoralist conflicts in Nigeria 3 Key findings Options for conflict prevention and resolution 2 The creation of new or the revival of existing exist, particularly at the local level. However, coordination activities to manage and facilitate tensions between farmers and pastoralists have cooperation between farmers and pastoralists become increasingly dynamic: overlap with requires support at district and village levels. banditry and communal and religious violence This could include special committees set up in some areas has changed the scale of impact, at the local government level to bring together requiring a broader set of responses. The issue respective leaders. It would necessitate is further complicated by discordant political engaging with the various forms of authority settlements at federal, state and local levels, and governance that exist in rural areas which inhibit coordinated approaches and distort including traditional institutions, pastoralist appropriate analysis and responses. associations, farmers, local government officials, and the security agencies. Opportunities for conflict 2 To function effectively, sub-national prevention and resolution arrangements should include genuine representatives of pastoralists and farmers at the sub-national level from rural areas – those who have influence over participants in the conflicts or are 2 There are established practices for themselves directly involved, rather than coordinating activities of farmers and urban-based representatives who may have pastoralists. For example, grazing reserves access to development discussions in federal linked to transhumance routes provide a and state capitals but have less influence over historical model for reducing pastoralist the conflicting groups. encroachment onto farmland, as does seasonal or periodic rotation of land, which also increases agricultural productivity. But Political unsettlements at the such cooperation has broken down in many local, state and federal level communities, or is now struggling to address heightened tensions resulting from intensified 2 The effectiveness of local initiatives would be or new stresses: increasing competition enhanced by active federal and state policies for land and water due to demographic and to facilitate and support the management ecological pressure; reduced availability of and allocation of land to farmers and grazing land due to expansion of farmland; and pastoralists in rural areas. This could include blockages of transhumance routes. a comprehensive assessment and mapping of the existing network of transhumance routes 2 Current levels of cooperation between farmers and pastoralists vary across states. Existing - the maintenance of which is a requirement good practices in some communities could of national governments in the 1998 ECOWAS be emulated in other parts of the country. Transhumance Protocol - including those that Identifying where such approaches have have been blocked. This could facilitate the developed and how, and the key actors involved, reopening of blocked routes. is an important starting point for any conflict 2 Presently there is little political willingness prevention engagement on the issue. A better to resolve pastoralist-farmer disputes, and in understanding of how and why historical fact political discourse has contributed to an cooperative relationships have broken down increased scapegoating of Fulani pastoralists. could also help to identify adaptive strategies The conflation at state and national political for reducing tensions. levels of pastoralist-farmer conflicts with inter-communal tensions, and the activities and spread of Boko Haram, risks paralysing potential conflict resolution approaches. 4 Accord spotlight Recently purchased cattle being moved from Kampani market to Bashar, Wase Local Government Area (LGA), southern Plateau State, December 2016. Photo: Adam Higazi 2 The revival of grazing reserves and trans- 2 As part of Nigeria’s development strategy, humance routes requires existing legislation international donors should consider: to be updated by the federal government and i) Encouraging the Nigerian Federal implemented by states. It would also require Government to design and implement taking land from farmers, which is likely to disarmament, demobilisation and be met with concerted
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