EU-UN Partnership TOOLKIT AND GUIDANCE FOR PREVENTING AND MANAGING Strengthening Capacity for the Consensual and Sustainable LAND AND NATURAL RESOURCES CONFLICT Management of Land and Natural Resources
The management of land and natural resources is one of the most critical challenges facing developing countries today. The exploitation of high-value natural resources, including oil, gas, minerals and timber has often been cited as a key factor in triggering, escalating or sustaining violent con icts around the globe. Furthermore, increasing competition and Renewable Resources and Conflict con ict for diminishing renewable resources, such as land and water, is on the rise. This is being further aggravated by environmental degradation, population growth and climate change. The mismanagement of land and natural resources is contributing to new con icts and obstructing the peaceful resolution of existing ones. EXECUTIVE SUMMARY To improve capacity for land and natural resource management and con ict prevention, the European Union partnered with the Expert Reference Group of the UN Framework Team (FT) in late 2008. The aim of this partnership was to develop and implement a strategic multi-agency project focused on building the capacity of national stakeholders, the United Nations system, and the European Union to prevent land and natural resources from contributing to violent con ict. Six UN agencies, programme or departments have been involved, including UNDP, DPA, UNEP, PBSO, UN-HABITAT and DESA. The partnership is also designed to enhance policy development and programme coordination between key actors at the eld level.
The rst outcome of this project is an inventory of existing tools and capacity within the UN system and a set of four Guidance Notes on addressing natural resource management and con ict prevention. These Guidance Notes cover: (i) Land and Con ict, (ii) Extractive Industries and Con ict, (iii) Renewable Resources and Con ict, (iv) Strengthening Capacity for Con ict-Sensitive Natural Resource Management.
Based on the Guidance Notes, the second outcome of the project is to deliver a series of training modules for UN and EU eld staff, as well as local partners, to enhance the knowledge and skills needed to understand, anticipate, prevent, and mitigate potential con icts over land and natural resources. Participants will acquire the skills to formulate and operationalize preventive measures in relation to natural resource management (NRM) and con ict.
In countries where speci c NRM and con ict challenges are identi ed, the project will aim to provide focused technical assistance in the development of con ict prevention strategies. This could include the deployment of staff and other experts to assist the UN Country Team (UNCT), including the Resident Coordinator (RC) or Peace and Development Advisor, in analysing options and designing programmes. Where needed, dedicated follow-up measures will also be undertaken on an inter-agency basis, in partnership with the EU.
This guidance note was developed under the lead of the United Nations Program for Environment. For more information, please contact: [email protected]
UN Interagency Framework Team for Preventive Action Hosted by: UNDP, Bureau for Crisis Prevention and Recovery One United Nations Plaza, Rm. 2084, New York, NY 10017, U.S.A. The United Nations Tel.: +1-212-906-5422 E-mail: [email protected] with funding and support from the European Union Interagency Framework Team for Preventive Action RENEWABLE RESOURCES AND CONFLICT
Executive Summary Drivers of Conflict Over Renewable Natural In order to provide a more practical and focused • Structural scarcity: “Structural scarcity” Resources approach for UN and EU practitioners, this occurs when different groups in a society Managing con icts that are related to natural Guidance Note identi es three main categories capacity to extend its presence and authority renewable natural resources, they are likely resource consumption rates, quantity and deprives local communities of resource Non-violent resolution of con ict is possible face unequal resource access. While resources is now more critical than ever before. of con ict drivers for renewable natural into rural areas in order to enforce laws and to oppose any related decisions or quality can cause inaccurate perceptions bene ts and can lead to con ict. At the same when individuals and groups trust their governing structural scarcity can result from poor As economic and population growth increase resources. These drivers are based on existing resolve disputes is often a key cause of poor outcomes. Lost access to key resources, leading to unfounded accusations. time, pressures such as violent con ict, state structures to manage incompatible interests. When natural resource governance (as described levels of global consumption, many countries academic theory, combined with UN and EU governance of natural resources. Likewise, a eviction without compensation or sudden failure, disasters or environmental mechanisms for managing and resolving them in driver 2, below), it can also occur in a face growing shortages of vital renewable eld experiences, assessments and case lack of understanding and insuf cient price increases for renewable resources • Impacts on renewable resources caused degradation can be powerful incentives for break down, con ict becomes problematic and well-functioning governance structure, as resources such as freshwater, cropland, studies. As these three drivers can interact with consideration of customary law by the state such as water, can lead to signi cant by infrastructure, industrial development people to migrate across borders, may give way to violence. Weak institutions, fragile the outcome of different land use decisions rangeland, forests, sheries and other wildlife. and reinforce each other, con ict prevention can exacerbate tensions. tensions between the affected and changed land use in neighboring establishing new resource-dependent political systems and divisive social relations can and tradeoffs. At the same time, cultural Depletion of renewable natural resources, strategies must often take all three into account: communities, the government and the countries: The quality or quantity of livelihoods in neighboring countries that fall perpetuate cycles of violent con ict. Preventing practices, gender dynamics as well as combined with environmental degradation • Discriminatory policies, rights and laws private sector. transboundary natural resources, such as outside of government regulation and this spiral and ensuring the peaceful resolution social and economic barriers may also and climate change, pose fundamental threats that marginalize specific groups: When one water, sheries, wildlife and air, can be control. of disputes is a core interest of both individual Driver 1. Competition over increasingly lead to structural scarcity. user group controls access to renewable Driver 3. Transboundary natural resource negatively impacted in one country by to human security. Separately or in combination states and the international community. scarce renewable resources: The concept of resources to the detriment of others, natural dynamics and pressures: The challenges of infrastructure, industrial development or Climate change is not a direct source of con ict, with other factors, they can destabilize “resource scarcity” describes a situation where Driver 2. Poor governance of renewable the supply of renewable resources – such as resource-dependent communities are often managing renewable natural resources often changes in land use in another country. In but rather compounds each of the drivers listed livelihoods, negatively affect ecosystems Con icts over renewable resources generally arise natural resources and the environment: water, forests, rangelands and croplands – is marginalized. Violence can occur as extend beyond national borders. This is particular, pollution generated in one country above. In this regard, climate change can be and undermine peace and development. over issues such as who should have access to Policies, institutions and processes governing not suf cient to meet the demand. Increasing individuals and groups seek greater or fairer particularly the case for water, wildlife, can easily cross national borders, creating understood as a threat multiplier, leading to Governments in developing countries, fragile and control over resources, and who can in uence the access, use, ownership and management scarcity of renewable natural resources needed and more equitable access to key resources. sheries, and air quality. Similarly, risks to health risks in another. Similarly, changes in further resource scarcity, overstretching states and emerging economies, are under decisions regarding their allocation, sharing of of natural resources can be critical drivers of to sustain livelihoods can increase competition The struggle for increased equity can become renewable resources from waste management, land use in one country, including high levels societies’ adaptive capacities and weakening the increasing pressure to sustainably manage bene ts, management and rate of use. It is critical con ict. In many cases, they contribute to both between user groups. Social responses to rising linked to the recognition of identity, status pollution, climate change and disasters are of deforestation and soil erosion, can institutional capacity of states to resolve con ict natural resources and resolve con icts around to note that disputes and grievances over natural structural scarcity as well as grievances competition can include migration, technologi- and political rights, making con ict resolution often transboundary in nature. While states heighten vulnerabilities to natural hazards in through peaceful and democratic means. Future their ownership, management, allocation resources are rarely, if ever, the sole cause of associated with political exclusion, corruption, cal innovation, cooperation and violent con ict. processes more of a challenge. As discussed have the sovereign right, in accordance with another. risks from climate change, as well as from natural and control. violent con ict. The drivers of violence are most and an unequal distribution of bene ts. At the There are three main causes for increasing above, this can be a key factor causing the Charter of the United Nations and the hazards, must therefore be taken into account in often multi-faceted. However, disputes and same time, resource governance plays a critical resource scarcity working separately or in structural scarcity. principles of international law, to exploit their • Traditional livelihood practices or wildlife any strategy to prevent con icts over renewable Con ict itself is not a negative phenomenon; grievances over natural resources can contribute role in managing con icts caused by increasing combination: own resources pursuant to their own populations that migrate across national natural resource. indeed, well managed con ict can be an to violent con ict when they overlap with other resource scarcity and in resolving grievances • Unequal distribution of benefits and environmental and developmental policies, borders: While national borders de ne the essential component of social change, factors, such as ethnic polarization, high levels of before they contribute to violence. burdens from development projects: they also have the responsibility to ensure that sovereign boundary of states, these are often democracy and development. However, where inequity, poverty, injustice and poor governance. Understanding the governance framework for Conflict Prevention Strategies for Renewable • Demand-induced scarcity: Extractive industries, industrial sites or major activities within their jurisdiction or control do not respected by pastoral livelihood groups local and national institutions lack the capacity natural resources at the national and local Natural Resources Demand-induced scarcity arises when the infrastructure projects can provide multiple not cause damage to the environment of other that migrate seasonally along traditional to resolve disputes over the degradation or In other words, it is when grievances over natural levels, and the mechanisms for resolving demand for a speci c renewable resource bene ts to local communities as well as states. Yet, transboundary dynamics and routes, based on the availability of natural While competing interests over natural resources depletion of natural resources, violent con icts resources – perceived or actual – drive, reinforce disputes, can provide critical insights into why cannot be met by the existing supply. While seriously degrade, exhaust or pollute pressures are often beyond the capacity of a resources such as water and grazing land. can be a source of con ict, they can equally be a can and do emerge. It is therefore crucial that or further compound economic, political or con icts over renewable resources occur, and a resource such as water or cropland may renewable natural resources and become a single sovereign state to manage unilaterally, Similarly, wildlife populations commonly shared opportunity for cooperation, con dence- UN and EU development practitioners security tensions and stress factors that violent how they may be addressed. There are four initially meet all local needs, population major source of grievance. The environmental requiring cooperation and co-management migrate across national boundaries, shifting building and sustainable development. Under- understand the key drivers of con ict over con ict may ensue. Simple causal relations main causes of poor resource governance, growth, new technologies or increases in impacts of development projects can create with neighboring countries. There are four main economic opportunities from one country to standing how to transform con icts over natural renewable resources and what speci c role between disputes over natural resources and which may work separately or in combination: consumption rates can reduce the per tensions if communities are not compensated types of transboundary challenges that can another. Both situations can be important resources into mutually bene cial outcomes that UN and EU policies, programmes and projects violent con ict rarely follow a direct or linear path. capita availability of the resource over time. for the damage and do not receive a share of contribute to con icts over renewable sources of con ict as user groups are faced deepen trust and inter-dependence between can play in the identi cation of con ict risks as What generally determines whether a con ict • Unclear, overlapping or poor enforcement the development bene ts, nancial or resources: with increasing competition or lost parties is a key aim of effective con ict preven- well as entry points to prevent and manage escalates to the point of violence is related to: • Supply-induced scarcity: Supply-induced of resource rights and laws: Land and otherwise. livelihoods. In addition, these dynamics can tion and con ict management strategies. Such con icts through the use of sustainable Natural political systems – particularly the degree to which scarcity occurs when environmental resource tenure systems, rights and related contribute to the loss of indigenous efforts should focus on building consensus and Resource Management (NRM) practices. these are based on marginalization and exclusion; • Allocation or consumption of degradation, pollution, natural variation or laws determine who can use what resource • Lack of public participation and communities together with their cultural and mutual trust around the co-management of the presence and extent of state authority and the transboundary renewable resources is a breakdown in the delivery infrastructure of the land, for how long, and under what transparency in decision-making: Natural spiritual heritage. natural resources and the environment, determin- rule of law; socio-economic factors – particularly unequal or inflexible: When Using the available knowledge and best constrains or reduces the total supply or conditions. In many countries, land and resource policies and interventions are often ing equitable sharing of bene ts and resolving when associated with patterns of discrimination transboundary natural resources such as practices that have been collected from existing local availability of a speci c resource. As renewable natural resources are regulated made by the state, in conjunction with private • Activities involving the illegal exploitation, disputes in non-violent ways. and inequity; and, the prevailing security situation. water or sheries are shared between eld operations, this Guidance Note aims to the supply of natural resources is reduced, under a combination of statutory, customary, sector actors, without the active participation consumption and trade of natural They way in which con icts over natural resources countries, con icts can arise when one catalyze a common, coordinated and strategic options for pursuing productive livelihood informal and religious forms of tenure. of affected communities or suf cient resources across borders: One of the In most cases, con icts over renewable natural become politicized within the broader con ict and country consumes the resource at higher response by the UN and EU - as well as other strategies are undermined, potentially Disagreements, contradictions or transparency and consultation with emerging threats to the natural resource base resources interact with pre-existing political, political context is also a determining factor in rates than another, violates agreed international actors - to prevent and manage creating competition between livelihood overlapping rights regarding these ‘rules’ as stakeholders. Where communities and of many countries comes from illegal socioeconomic or security tensions and stresses, whether the con ict becomes violent or not. allocations or demonstrates in exibility con icts over renewable natural resources. groups. well as uncertainty over resource rights are stakeholders are poorly engaged or excluded exploitation of natural resources by global requiring a response on multiple levels and when faced with natural variation. often at the heart of con ict. A lack of state from the decision-making process over and transboundary criminal networks. Illicit across multiple sectors. In other words, there is Alternatively, a lack of sound data on extraction and trade of natural resources often no “quick x” to the problem. Appropriate
interventions depend on the mix of drivers, • Increasing the availability of renewable degradation; establishing and enforcing rights preventing con icts over natural resources livelihood responses, existing governance resources through protection, restoration, and rules over natural resource use; fostering is to ensure a con ict-sensitive approach structures and the level of con ict intensity. infrastructure and efficient use: These parliamentary oversight; enhancing public is integrated within all natural resource In many cases, solutions will require targeted measures focus on addressing the quality, participation in the design and acceptance management, development and climate interventions at the local, national and trans- quantity and availability of renewable of such rules; ensuring the transparent change adaptation policies and programmes. boundary levels. For renewable natural natural resources in order to reduce scarcity identi cation of any potential social and Stakeholders and donors need to anticipate resources, con ict prevention and con ict and competition. Supply-side interventions environmental impacts from development the potential sources of con ict that could be management strategies often encompass a focus on increasing the overall supply of, projects; and, establishing mechanisms generated by their interventions and adopt a blend of four main types of linked objectives or access to, renewable resources, as well for the resolution of diverging disputes. con ict-sensitive approach at all phases. and associated interventions: as stopping sources of environmental degradation and pollution. Demand-side • Building capacity of stakeholders and civil • Conducting early warning, risk assessments Objective 1. Reduce competition over strategies focus on improving the ef ciency society to participate in decision-making, and scenario analysis to identify potential scarce resources between livelihood of resource use and reducing the per capita to monitor compliance with the governance conflict hotspots: The use of early warning, risk groups: rate of consumption. Substitution measures frameworks, and to access justice assessments and scenario analysis to identify attempt to replace scarce renewable mechanisms: Even when governance potential con ict hotspots involving renewable resources with alternatives. • Supporting sustainable livelihoods frameworks for natural resources exist, resources is an important input to any targeted and reducing vulnerability to resource stakeholders and civil society groups con ict prevention programme. These tools scarcity: The sustainable livelihoods Objective 2. Improve resource governance, often lack the capacity to participate in should be used on a systematic basis to identify framework is one method to analyze accountability and dispute resolution decision-making, to monitor compliance existing and potential con ict hotspots. options and help determine suitable capacity: with the governance frameworks, to promote interventions that reduce vulnerability accountability and transparency, and to and help prevent con ict. Understanding While all con ict prevention and con ict manage- • Establishing the governance framework access justice mechanisms and dispute livelihood strategies in a speci c area, ment programmes involving natural resources must for natural resources, strengthening resolution processes. As these are essential particularly where livelihoods compete be owned by national actors, there are ve distinct implementation capacity and recognizing components of good governance and can for the same limited natural resources, is roles that the UN and EU can be requested to play resource rights: Improving resource contribute to con ict prevention, targeted key to designing con ict prevention or to support national governments and stakeholders: governance includes a range of measures capacity-building is often required. management strategies. In particular, the such as: addressing inequitable access; risks to minority groups and indigenous • Provide capacity-building support to reducing corruption and improving people must be assessed. Objective 3. Improve transboundary governments and civil society on environmental transparency; preventing environmental management institutions and cooperation: governance, sustainable resource management and con ict resolution; • Establish or strengthen transboundary • Act as an impartial actor and trusted third-party information, resource-sharing agreements, in dispute resolution processes; joint institutions, and dispute resolution • Provide early warning alerts when vulnerabilities processes: The effective management of and risks are detected from global or regional transboundary resources often relies on a environmental monitoring programmes and combination of tools and approaches. These assessments; can include joint management institutions, exible resource-sharing agreements, • Catalyze an international response to emerging harmonized laws and access to dispute resource con icts and leverage nancing; and, resolution processes. These measures often • Broker transboundary cooperation and related need to be strengthened as part of con ict agreements. prevention efforts. In addition to the four thematic con ict prevention Objective 4. Implement cross-cutting objectives discussed above, sector-speci c measures across all programmes: strategies are also needed. In this regard, this Guidance Note includes 50 speci c con ict • Designing conflict-sensitive resource prevention activities that can be undertaken management, adaptation and development for con icts related to water, forests, pastures programmes: One of the critical aspects of and sheries. RENEWABLE RESOURCES AND CONFLICT
Executive Summary Drivers of Conflict Over Renewable Natural In order to provide a more practical and focused • Structural scarcity: “Structural scarcity” Resources approach for UN and EU practitioners, this occurs when different groups in a society Managing con icts that are related to natural Guidance Note identi es three main categories capacity to extend its presence and authority renewable natural resources, they are likely resource consumption rates, quantity and deprives local communities of resource Non-violent resolution of con ict is possible face unequal resource access. While resources is now more critical than ever before. of con ict drivers for renewable natural into rural areas in order to enforce laws and to oppose any related decisions or quality can cause inaccurate perceptions bene ts and can lead to con ict. At the same when individuals and groups trust their governing structural scarcity can result from poor As economic and population growth increase resources. These drivers are based on existing resolve disputes is often a key cause of poor outcomes. Lost access to key resources, leading to unfounded accusations. time, pressures such as violent con ict, state structures to manage incompatible interests. When natural resource governance (as described levels of global consumption, many countries academic theory, combined with UN and EU governance of natural resources. Likewise, a eviction without compensation or sudden failure, disasters or environmental mechanisms for managing and resolving them in driver 2, below), it can also occur in a face growing shortages of vital renewable eld experiences, assessments and case lack of understanding and insuf cient price increases for renewable resources • Impacts on renewable resources caused degradation can be powerful incentives for break down, con ict becomes problematic and well-functioning governance structure, as resources such as freshwater, cropland, studies. As these three drivers can interact with consideration of customary law by the state such as water, can lead to signi cant by infrastructure, industrial development people to migrate across borders, may give way to violence. Weak institutions, fragile the outcome of different land use decisions rangeland, forests, sheries and other wildlife. and reinforce each other, con ict prevention can exacerbate tensions. tensions between the affected and changed land use in neighboring establishing new resource-dependent political systems and divisive social relations can and tradeoffs. At the same time, cultural Depletion of renewable natural resources, strategies must often take all three into account: communities, the government and the countries: The quality or quantity of livelihoods in neighboring countries that fall perpetuate cycles of violent con ict. Preventing practices, gender dynamics as well as combined with environmental degradation • Discriminatory policies, rights and laws private sector. transboundary natural resources, such as outside of government regulation and this spiral and ensuring the peaceful resolution social and economic barriers may also and climate change, pose fundamental threats that marginalize specific groups: When one water, sheries, wildlife and air, can be control. of disputes is a core interest of both individual Driver 1. Competition over increasingly lead to structural scarcity. user group controls access to renewable Driver 3. Transboundary natural resource negatively impacted in one country by to human security. Separately or in combination states and the international community. scarce renewable resources: The concept of resources to the detriment of others, natural dynamics and pressures: The challenges of infrastructure, industrial development or Climate change is not a direct source of con ict, with other factors, they can destabilize “resource scarcity” describes a situation where Driver 2. Poor governance of renewable the supply of renewable resources – such as resource-dependent communities are often managing renewable natural resources often changes in land use in another country. In but rather compounds each of the drivers listed livelihoods, negatively affect ecosystems Con icts over renewable resources generally arise natural resources and the environment: water, forests, rangelands and croplands – is marginalized. Violence can occur as extend beyond national borders. This is particular, pollution generated in one country above. In this regard, climate change can be and undermine peace and development. over issues such as who should have access to Policies, institutions and processes governing not suf cient to meet the demand. Increasing individuals and groups seek greater or fairer particularly the case for water, wildlife, can easily cross national borders, creating understood as a threat multiplier, leading to Governments in developing countries, fragile and control over resources, and who can in uence the access, use, ownership and management scarcity of renewable natural resources needed and more equitable access to key resources. sheries, and air quality. Similarly, risks to health risks in another. Similarly, changes in further resource scarcity, overstretching states and emerging economies, are under decisions regarding their allocation, sharing of of natural resources can be critical drivers of to sustain livelihoods can increase competition The struggle for increased equity can become renewable resources from waste management, land use in one country, including high levels societies’ adaptive capacities and weakening the increasing pressure to sustainably manage bene ts, management and rate of use. It is critical con ict. In many cases, they contribute to both between user groups. Social responses to rising linked to the recognition of identity, status pollution, climate change and disasters are of deforestation and soil erosion, can institutional capacity of states to resolve con ict natural resources and resolve con icts around to note that disputes and grievances over natural structural scarcity as well as grievances competition can include migration, technologi- and political rights, making con ict resolution often transboundary in nature. While states heighten vulnerabilities to natural hazards in through peaceful and democratic means. Future their ownership, management, allocation resources are rarely, if ever, the sole cause of associated with political exclusion, corruption, cal innovation, cooperation and violent con ict. processes more of a challenge. As discussed have the sovereign right, in accordance with another. risks from climate change, as well as from natural and control. violent con ict. The drivers of violence are most and an unequal distribution of bene ts. At the There are three main causes for increasing above, this can be a key factor causing the Charter of the United Nations and the hazards, must therefore be taken into account in often multi-faceted. However, disputes and same time, resource governance plays a critical resource scarcity working separately or in structural scarcity. principles of international law, to exploit their • Traditional livelihood practices or wildlife any strategy to prevent con icts over renewable Con ict itself is not a negative phenomenon; grievances over natural resources can contribute role in managing con icts caused by increasing combination: own resources pursuant to their own populations that migrate across national natural resource. indeed, well managed con ict can be an to violent con ict when they overlap with other resource scarcity and in resolving grievances • Unequal distribution of benefits and environmental and developmental policies, borders: While national borders de ne the essential component of social change, factors, such as ethnic polarization, high levels of before they contribute to violence. burdens from development projects: they also have the responsibility to ensure that sovereign boundary of states, these are often democracy and development. However, where inequity, poverty, injustice and poor governance. Understanding the governance framework for Conflict Prevention Strategies for Renewable • Demand-induced scarcity: Extractive industries, industrial sites or major activities within their jurisdiction or control do not respected by pastoral livelihood groups local and national institutions lack the capacity natural resources at the national and local Natural Resources Demand-induced scarcity arises when the infrastructure projects can provide multiple not cause damage to the environment of other that migrate seasonally along traditional to resolve disputes over the degradation or In other words, it is when grievances over natural levels, and the mechanisms for resolving demand for a speci c renewable resource bene ts to local communities as well as states. Yet, transboundary dynamics and routes, based on the availability of natural While competing interests over natural resources depletion of natural resources, violent con icts resources – perceived or actual – drive, reinforce disputes, can provide critical insights into why cannot be met by the existing supply. While seriously degrade, exhaust or pollute pressures are often beyond the capacity of a resources such as water and grazing land. can be a source of con ict, they can equally be a can and do emerge. It is therefore crucial that or further compound economic, political or con icts over renewable resources occur, and a resource such as water or cropland may renewable natural resources and become a single sovereign state to manage unilaterally, Similarly, wildlife populations commonly shared opportunity for cooperation, con dence- UN and EU development practitioners security tensions and stress factors that violent how they may be addressed. There are four initially meet all local needs, population major source of grievance. The environmental requiring cooperation and co-management migrate across national boundaries, shifting building and sustainable development. Under- understand the key drivers of con ict over con ict may ensue. Simple causal relations main causes of poor resource governance, growth, new technologies or increases in impacts of development projects can create with neighboring countries. There are four main economic opportunities from one country to standing how to transform con icts over natural renewable resources and what speci c role between disputes over natural resources and which may work separately or in combination: consumption rates can reduce the per tensions if communities are not compensated types of transboundary challenges that can another. Both situations can be important resources into mutually bene cial outcomes that UN and EU policies, programmes and projects violent con ict rarely follow a direct or linear path. capita availability of the resource over time. for the damage and do not receive a share of contribute to con icts over renewable sources of con ict as user groups are faced deepen trust and inter-dependence between can play in the identi cation of con ict risks as What generally determines whether a con ict • Unclear, overlapping or poor enforcement the development bene ts, nancial or resources: with increasing competition or lost parties is a key aim of effective con ict preven- well as entry points to prevent and manage escalates to the point of violence is related to: • Supply-induced scarcity: Supply-induced of resource rights and laws: Land and otherwise. livelihoods. In addition, these dynamics can tion and con ict management strategies. Such con icts through the use of sustainable Natural political systems – particularly the degree to which scarcity occurs when environmental resource tenure systems, rights and related contribute to the loss of indigenous efforts should focus on building consensus and Resource Management (NRM) practices. these are based on marginalization and exclusion; • Allocation or consumption of degradation, pollution, natural variation or laws determine who can use what resource • Lack of public participation and communities together with their cultural and mutual trust around the co-management of the presence and extent of state authority and the transboundary renewable resources is a breakdown in the delivery infrastructure of the land, for how long, and under what transparency in decision-making: Natural spiritual heritage. natural resources and the environment, determin- rule of law; socio-economic factors – particularly unequal or inflexible: When Using the available knowledge and best constrains or reduces the total supply or conditions. In many countries, land and resource policies and interventions are often ing equitable sharing of bene ts and resolving when associated with patterns of discrimination transboundary natural resources such as practices that have been collected from existing local availability of a speci c resource. As renewable natural resources are regulated made by the state, in conjunction with private • Activities involving the illegal exploitation, disputes in non-violent ways. and inequity; and, the prevailing security situation. water or sheries are shared between eld operations, this Guidance Note aims to the supply of natural resources is reduced, under a combination of statutory, customary, sector actors, without the active participation consumption and trade of natural They way in which con icts over natural resources countries, con icts can arise when one catalyze a common, coordinated and strategic options for pursuing productive livelihood informal and religious forms of tenure. of affected communities or suf cient resources across borders: One of the In most cases, con icts over renewable natural become politicized within the broader con ict and country consumes the resource at higher response by the UN and EU - as well as other strategies are undermined, potentially Disagreements, contradictions or transparency and consultation with emerging threats to the natural resource base resources interact with pre-existing political, political context is also a determining factor in rates than another, violates agreed international actors - to prevent and manage creating competition between livelihood overlapping rights regarding these ‘rules’ as stakeholders. Where communities and of many countries comes from illegal socioeconomic or security tensions and stresses, whether the con ict becomes violent or not. allocations or demonstrates in exibility con icts over renewable natural resources. groups. well as uncertainty over resource rights are stakeholders are poorly engaged or excluded exploitation of natural resources by global requiring a response on multiple levels and when faced with natural variation. often at the heart of con ict. A lack of state from the decision-making process over and transboundary criminal networks. Illicit across multiple sectors. In other words, there is Alternatively, a lack of sound data on extraction and trade of natural resources often no “quick x” to the problem. Appropriate
interventions depend on the mix of drivers, • Increasing the availability of renewable degradation; establishing and enforcing rights preventing con icts over natural resources livelihood responses, existing governance resources through protection, restoration, and rules over natural resource use; fostering is to ensure a con ict-sensitive approach structures and the level of con ict intensity. infrastructure and efficient use: These parliamentary oversight; enhancing public is integrated within all natural resource In many cases, solutions will require targeted measures focus on addressing the quality, participation in the design and acceptance management, development and climate interventions at the local, national and trans- quantity and availability of renewable of such rules; ensuring the transparent change adaptation policies and programmes. boundary levels. For renewable natural natural resources in order to reduce scarcity identi cation of any potential social and Stakeholders and donors need to anticipate resources, con ict prevention and con ict and competition. Supply-side interventions environmental impacts from development the potential sources of con ict that could be management strategies often encompass a focus on increasing the overall supply of, projects; and, establishing mechanisms generated by their interventions and adopt a blend of four main types of linked objectives or access to, renewable resources, as well for the resolution of diverging disputes. con ict-sensitive approach at all phases. and associated interventions: as stopping sources of environmental degradation and pollution. Demand-side • Building capacity of stakeholders and civil • Conducting early warning, risk assessments Objective 1. Reduce competition over strategies focus on improving the ef ciency society to participate in decision-making, and scenario analysis to identify potential scarce resources between livelihood of resource use and reducing the per capita to monitor compliance with the governance conflict hotspots: The use of early warning, risk groups: rate of consumption. Substitution measures frameworks, and to access justice assessments and scenario analysis to identify attempt to replace scarce renewable mechanisms: Even when governance potential con ict hotspots involving renewable resources with alternatives. • Supporting sustainable livelihoods frameworks for natural resources exist, resources is an important input to any targeted and reducing vulnerability to resource stakeholders and civil society groups con ict prevention programme. These tools scarcity: The sustainable livelihoods Objective 2. Improve resource governance, often lack the capacity to participate in should be used on a systematic basis to identify framework is one method to analyze accountability and dispute resolution decision-making, to monitor compliance existing and potential con ict hotspots. options and help determine suitable capacity: with the governance frameworks, to promote interventions that reduce vulnerability accountability and transparency, and to and help prevent con ict. Understanding While all con ict prevention and con ict manage- • Establishing the governance framework access justice mechanisms and dispute livelihood strategies in a speci c area, ment programmes involving natural resources must for natural resources, strengthening resolution processes. As these are essential particularly where livelihoods compete be owned by national actors, there are ve distinct implementation capacity and recognizing components of good governance and can for the same limited natural resources, is roles that the UN and EU can be requested to play resource rights: Improving resource contribute to con ict prevention, targeted key to designing con ict prevention or to support national governments and stakeholders: governance includes a range of measures capacity-building is often required. management strategies. In particular, the such as: addressing inequitable access; risks to minority groups and indigenous • Provide capacity-building support to reducing corruption and improving people must be assessed. Objective 3. Improve transboundary governments and civil society on environmental transparency; preventing environmental management institutions and cooperation: governance, sustainable resource management and con ict resolution; • Establish or strengthen transboundary • Act as an impartial actor and trusted third-party information, resource-sharing agreements, in dispute resolution processes; joint institutions, and dispute resolution • Provide early warning alerts when vulnerabilities processes: The effective management of and risks are detected from global or regional transboundary resources often relies on a environmental monitoring programmes and combination of tools and approaches. These assessments; can include joint management institutions, exible resource-sharing agreements, • Catalyze an international response to emerging harmonized laws and access to dispute resource con icts and leverage nancing; and, resolution processes. These measures often • Broker transboundary cooperation and related need to be strengthened as part of con ict agreements. prevention efforts. In addition to the four thematic con ict prevention Objective 4. Implement cross-cutting objectives discussed above, sector-speci c measures across all programmes: strategies are also needed. In this regard, this Guidance Note includes 50 speci c con ict • Designing conflict-sensitive resource prevention activities that can be undertaken management, adaptation and development for con icts related to water, forests, pastures programmes: One of the critical aspects of and sheries. RENEWABLE RESOURCES AND CONFLICT
Executive Summary Drivers of Conflict Over Renewable Natural In order to provide a more practical and focused • Structural scarcity: “Structural scarcity” Resources approach for UN and EU practitioners, this occurs when different groups in a society Managing con icts that are related to natural Guidance Note identi es three main categories capacity to extend its presence and authority renewable natural resources, they are likely resource consumption rates, quantity and deprives local communities of resource Non-violent resolution of con ict is possible face unequal resource access. While resources is now more critical than ever before. of con ict drivers for renewable natural into rural areas in order to enforce laws and to oppose any related decisions or quality can cause inaccurate perceptions bene ts and can lead to con ict. At the same when individuals and groups trust their governing structural scarcity can result from poor As economic and population growth increase resources. These drivers are based on existing resolve disputes is often a key cause of poor outcomes. Lost access to key resources, leading to unfounded accusations. time, pressures such as violent con ict, state structures to manage incompatible interests. When natural resource governance (as described levels of global consumption, many countries academic theory, combined with UN and EU governance of natural resources. Likewise, a eviction without compensation or sudden failure, disasters or environmental mechanisms for managing and resolving them in driver 2, below), it can also occur in a face growing shortages of vital renewable eld experiences, assessments and case lack of understanding and insuf cient price increases for renewable resources • Impacts on renewable resources caused degradation can be powerful incentives for break down, con ict becomes problematic and well-functioning governance structure, as resources such as freshwater, cropland, studies. As these three drivers can interact with consideration of customary law by the state such as water, can lead to signi cant by infrastructure, industrial development people to migrate across borders, may give way to violence. Weak institutions, fragile the outcome of different land use decisions rangeland, forests, sheries and other wildlife. and reinforce each other, con ict prevention can exacerbate tensions. tensions between the affected and changed land use in neighboring establishing new resource-dependent political systems and divisive social relations can and tradeoffs. At the same time, cultural Depletion of renewable natural resources, strategies must often take all three into account: communities, the government and the countries: The quality or quantity of livelihoods in neighboring countries that fall perpetuate cycles of violent con ict. Preventing practices, gender dynamics as well as combined with environmental degradation • Discriminatory policies, rights and laws private sector. transboundary natural resources, such as outside of government regulation and this spiral and ensuring the peaceful resolution social and economic barriers may also and climate change, pose fundamental threats that marginalize specific groups: When one water, sheries, wildlife and air, can be control. of disputes is a core interest of both individual Driver 1. Competition over increasingly lead to structural scarcity. user group controls access to renewable Driver 3. Transboundary natural resource negatively impacted in one country by to human security. Separately or in combination states and the international community. scarce renewable resources: The concept of resources to the detriment of others, natural dynamics and pressures: The challenges of infrastructure, industrial development or Climate change is not a direct source of con ict, with other factors, they can destabilize “resource scarcity” describes a situation where Driver 2. Poor governance of renewable the supply of renewable resources – such as resource-dependent communities are often managing renewable natural resources often changes in land use in another country. In but rather compounds each of the drivers listed livelihoods, negatively affect ecosystems Con icts over renewable resources generally arise natural resources and the environment: water, forests, rangelands and croplands – is marginalized. Violence can occur as extend beyond national borders. This is particular, pollution generated in one country above. In this regard, climate change can be and undermine peace and development. over issues such as who should have access to Policies, institutions and processes governing not suf cient to meet the demand. Increasing individuals and groups seek greater or fairer particularly the case for water, wildlife, can easily cross national borders, creating understood as a threat multiplier, leading to Governments in developing countries, fragile and control over resources, and who can in uence the access, use, ownership and management scarcity of renewable natural resources needed and more equitable access to key resources. sheries, and air quality. Similarly, risks to health risks in another. Similarly, changes in further resource scarcity, overstretching states and emerging economies, are under decisions regarding their allocation, sharing of of natural resources can be critical drivers of to sustain livelihoods can increase competition The struggle for increased equity can become renewable resources from waste management, land use in one country, including high levels societies’ adaptive capacities and weakening the increasing pressure to sustainably manage bene ts, management and rate of use. It is critical con ict. In many cases, they contribute to both between user groups. Social responses to rising linked to the recognition of identity, status pollution, climate change and disasters are of deforestation and soil erosion, can institutional capacity of states to resolve con ict natural resources and resolve con icts around to note that disputes and grievances over natural structural scarcity as well as grievances competition can include migration, technologi- and political rights, making con ict resolution often transboundary in nature. While states heighten vulnerabilities to natural hazards in through peaceful and democratic means. Future their ownership, management, allocation resources are rarely, if ever, the sole cause of associated with political exclusion, corruption, cal innovation, cooperation and violent con ict. processes more of a challenge. As discussed have the sovereign right, in accordance with another. risks from climate change, as well as from natural and control. violent con ict. The drivers of violence are most and an unequal distribution of bene ts. At the There are three main causes for increasing above, this can be a key factor causing the Charter of the United Nations and the hazards, must therefore be taken into account in often multi-faceted. However, disputes and same time, resource governance plays a critical resource scarcity working separately or in structural scarcity. principles of international law, to exploit their • Traditional livelihood practices or wildlife any strategy to prevent con icts over renewable Con ict itself is not a negative phenomenon; grievances over natural resources can contribute role in managing con icts caused by increasing combination: own resources pursuant to their own populations that migrate across national natural resource. indeed, well managed con ict can be an to violent con ict when they overlap with other resource scarcity and in resolving grievances • Unequal distribution of benefits and environmental and developmental policies, borders: While national borders de ne the essential component of social change, factors, such as ethnic polarization, high levels of before they contribute to violence. burdens from development projects: they also have the responsibility to ensure that sovereign boundary of states, these are often democracy and development. However, where inequity, poverty, injustice and poor governance. Understanding the governance framework for Conflict Prevention Strategies for Renewable • Demand-induced scarcity: Extractive industries, industrial sites or major activities within their jurisdiction or control do not respected by pastoral livelihood groups local and national institutions lack the capacity natural resources at the national and local Natural Resources Demand-induced scarcity arises when the infrastructure projects can provide multiple not cause damage to the environment of other that migrate seasonally along traditional to resolve disputes over the degradation or In other words, it is when grievances over natural levels, and the mechanisms for resolving demand for a speci c renewable resource bene ts to local communities as well as states. Yet, transboundary dynamics and routes, based on the availability of natural While competing interests over natural resources depletion of natural resources, violent con icts resources – perceived or actual – drive, reinforce disputes, can provide critical insights into why cannot be met by the existing supply. While seriously degrade, exhaust or pollute pressures are often beyond the capacity of a resources such as water and grazing land. can be a source of con ict, they can equally be a can and do emerge. It is therefore crucial that or further compound economic, political or con icts over renewable resources occur, and a resource such as water or cropland may renewable natural resources and become a single sovereign state to manage unilaterally, Similarly, wildlife populations commonly shared opportunity for cooperation, con dence- UN and EU development practitioners security tensions and stress factors that violent how they may be addressed. There are four initially meet all local needs, population major source of grievance. The environmental requiring cooperation and co-management migrate across national boundaries, shifting building and sustainable development. Under- understand the key drivers of con ict over con ict may ensue. Simple causal relations main causes of poor resource governance, growth, new technologies or increases in impacts of development projects can create with neighboring countries. There are four main economic opportunities from one country to standing how to transform con icts over natural renewable resources and what speci c role between disputes over natural resources and which may work separately or in combination: consumption rates can reduce the per tensions if communities are not compensated types of transboundary challenges that can another. Both situations can be important resources into mutually bene cial outcomes that UN and EU policies, programmes and projects violent con ict rarely follow a direct or linear path. capita availability of the resource over time. for the damage and do not receive a share of contribute to con icts over renewable sources of con ict as user groups are faced deepen trust and inter-dependence between can play in the identi cation of con ict risks as What generally determines whether a con ict • Unclear, overlapping or poor enforcement the development bene ts, nancial or resources: with increasing competition or lost parties is a key aim of effective con ict preven- well as entry points to prevent and manage escalates to the point of violence is related to: • Supply-induced scarcity: Supply-induced of resource rights and laws: Land and otherwise. livelihoods. In addition, these dynamics can tion and con ict management strategies. Such con icts through the use of sustainable Natural political systems – particularly the degree to which scarcity occurs when environmental resource tenure systems, rights and related contribute to the loss of indigenous efforts should focus on building consensus and Resource Management (NRM) practices. these are based on marginalization and exclusion; • Allocation or consumption of degradation, pollution, natural variation or laws determine who can use what resource • Lack of public participation and communities together with their cultural and mutual trust around the co-management of the presence and extent of state authority and the transboundary renewable resources is a breakdown in the delivery infrastructure of the land, for how long, and under what transparency in decision-making: Natural spiritual heritage. natural resources and the environment, determin- rule of law; socio-economic factors – particularly unequal or inflexible: When Using the available knowledge and best constrains or reduces the total supply or conditions. In many countries, land and resource policies and interventions are often ing equitable sharing of bene ts and resolving when associated with patterns of discrimination transboundary natural resources such as practices that have been collected from existing local availability of a speci c resource. As renewable natural resources are regulated made by the state, in conjunction with private • Activities involving the illegal exploitation, disputes in non-violent ways. and inequity; and, the prevailing security situation. water or sheries are shared between eld operations, this Guidance Note aims to the supply of natural resources is reduced, under a combination of statutory, customary, sector actors, without the active participation consumption and trade of natural They way in which con icts over natural resources countries, con icts can arise when one catalyze a common, coordinated and strategic options for pursuing productive livelihood informal and religious forms of tenure. of affected communities or suf cient resources across borders: One of the In most cases, con icts over renewable natural become politicized within the broader con ict and country consumes the resource at higher response by the UN and EU - as well as other strategies are undermined, potentially Disagreements, contradictions or transparency and consultation with emerging threats to the natural resource base resources interact with pre-existing political, political context is also a determining factor in rates than another, violates agreed international actors - to prevent and manage creating competition between livelihood overlapping rights regarding these ‘rules’ as stakeholders. Where communities and of many countries comes from illegal socioeconomic or security tensions and stresses, whether the con ict becomes violent or not. allocations or demonstrates in exibility con icts over renewable natural resources. groups. well as uncertainty over resource rights are stakeholders are poorly engaged or excluded exploitation of natural resources by global requiring a response on multiple levels and when faced with natural variation. often at the heart of con ict. A lack of state from the decision-making process over and transboundary criminal networks. Illicit across multiple sectors. In other words, there is Alternatively, a lack of sound data on extraction and trade of natural resources often no “quick x” to the problem. Appropriate
interventions depend on the mix of drivers, • Increasing the availability of renewable degradation; establishing and enforcing rights preventing con icts over natural resources livelihood responses, existing governance resources through protection, restoration, and rules over natural resource use; fostering is to ensure a con ict-sensitive approach structures and the level of con ict intensity. infrastructure and efficient use: These parliamentary oversight; enhancing public is integrated within all natural resource In many cases, solutions will require targeted measures focus on addressing the quality, participation in the design and acceptance management, development and climate interventions at the local, national and trans- quantity and availability of renewable of such rules; ensuring the transparent change adaptation policies and programmes. boundary levels. For renewable natural natural resources in order to reduce scarcity identi cation of any potential social and Stakeholders and donors need to anticipate resources, con ict prevention and con ict and competition. Supply-side interventions environmental impacts from development the potential sources of con ict that could be management strategies often encompass a focus on increasing the overall supply of, projects; and, establishing mechanisms generated by their interventions and adopt a blend of four main types of linked objectives or access to, renewable resources, as well for the resolution of diverging disputes. con ict-sensitive approach at all phases. and associated interventions: as stopping sources of environmental degradation and pollution. Demand-side • Building capacity of stakeholders and civil • Conducting early warning, risk assessments Objective 1. Reduce competition over strategies focus on improving the ef ciency society to participate in decision-making, and scenario analysis to identify potential scarce resources between livelihood of resource use and reducing the per capita to monitor compliance with the governance conflict hotspots: The use of early warning, risk groups: rate of consumption. Substitution measures frameworks, and to access justice assessments and scenario analysis to identify attempt to replace scarce renewable mechanisms: Even when governance potential con ict hotspots involving renewable resources with alternatives. • Supporting sustainable livelihoods frameworks for natural resources exist, resources is an important input to any targeted and reducing vulnerability to resource stakeholders and civil society groups con ict prevention programme. These tools scarcity: The sustainable livelihoods Objective 2. Improve resource governance, often lack the capacity to participate in should be used on a systematic basis to identify framework is one method to analyze accountability and dispute resolution decision-making, to monitor compliance existing and potential con ict hotspots. options and help determine suitable capacity: with the governance frameworks, to promote interventions that reduce vulnerability accountability and transparency, and to and help prevent con ict. Understanding While all con ict prevention and con ict manage- • Establishing the governance framework access justice mechanisms and dispute livelihood strategies in a speci c area, ment programmes involving natural resources must for natural resources, strengthening resolution processes. As these are essential particularly where livelihoods compete be owned by national actors, there are ve distinct implementation capacity and recognizing components of good governance and can for the same limited natural resources, is roles that the UN and EU can be requested to play resource rights: Improving resource contribute to con ict prevention, targeted key to designing con ict prevention or to support national governments and stakeholders: governance includes a range of measures capacity-building is often required. management strategies. In particular, the such as: addressing inequitable access; risks to minority groups and indigenous • Provide capacity-building support to reducing corruption and improving people must be assessed. Objective 3. Improve transboundary governments and civil society on environmental transparency; preventing environmental management institutions and cooperation: governance, sustainable resource management and con ict resolution; • Establish or strengthen transboundary • Act as an impartial actor and trusted third-party information, resource-sharing agreements, in dispute resolution processes; joint institutions, and dispute resolution • Provide early warning alerts when vulnerabilities processes: The effective management of and risks are detected from global or regional transboundary resources often relies on a environmental monitoring programmes and combination of tools and approaches. These assessments; can include joint management institutions, exible resource-sharing agreements, • Catalyze an international response to emerging harmonized laws and access to dispute resource con icts and leverage nancing; and, resolution processes. These measures often • Broker transboundary cooperation and related need to be strengthened as part of con ict agreements. prevention efforts. In addition to the four thematic con ict prevention Objective 4. Implement cross-cutting objectives discussed above, sector-speci c measures across all programmes: strategies are also needed. In this regard, this Guidance Note includes 50 speci c con ict • Designing conflict-sensitive resource prevention activities that can be undertaken management, adaptation and development for con icts related to water, forests, pastures programmes: One of the critical aspects of and sheries. RENEWABLE RESOURCES AND CONFLICT
Executive Summary Drivers of Conflict Over Renewable Natural In order to provide a more practical and focused • Structural scarcity: “Structural scarcity” Resources approach for UN and EU practitioners, this occurs when different groups in a society Managing con icts that are related to natural Guidance Note identi es three main categories capacity to extend its presence and authority renewable natural resources, they are likely resource consumption rates, quantity and deprives local communities of resource Non-violent resolution of con ict is possible face unequal resource access. While resources is now more critical than ever before. of con ict drivers for renewable natural into rural areas in order to enforce laws and to oppose any related decisions or quality can cause inaccurate perceptions bene ts and can lead to con ict. At the same when individuals and groups trust their governing structural scarcity can result from poor As economic and population growth increase resources. These drivers are based on existing resolve disputes is often a key cause of poor outcomes. Lost access to key resources, leading to unfounded accusations. time, pressures such as violent con ict, state structures to manage incompatible interests. When natural resource governance (as described levels of global consumption, many countries academic theory, combined with UN and EU governance of natural resources. Likewise, a eviction without compensation or sudden failure, disasters or environmental mechanisms for managing and resolving them in driver 2, below), it can also occur in a face growing shortages of vital renewable eld experiences, assessments and case lack of understanding and insuf cient price increases for renewable resources • Impacts on renewable resources caused degradation can be powerful incentives for break down, con ict becomes problematic and well-functioning governance structure, as resources such as freshwater, cropland, studies. As these three drivers can interact with consideration of customary law by the state such as water, can lead to signi cant by infrastructure, industrial development people to migrate across borders, may give way to violence. Weak institutions, fragile the outcome of different land use decisions rangeland, forests, sheries and other wildlife. and reinforce each other, con ict prevention can exacerbate tensions. tensions between the affected and changed land use in neighboring establishing new resource-dependent political systems and divisive social relations can and tradeoffs. At the same time, cultural Depletion of renewable natural resources, strategies must often take all three into account: communities, the government and the countries: The quality or quantity of livelihoods in neighboring countries that fall perpetuate cycles of violent con ict. Preventing practices, gender dynamics as well as combined with environmental degradation • Discriminatory policies, rights and laws private sector. transboundary natural resources, such as outside of government regulation and this spiral and ensuring the peaceful resolution social and economic barriers may also and climate change, pose fundamental threats that marginalize specific groups: When one water, sheries, wildlife and air, can be control. of disputes is a core interest of both individual Driver 1. Competition over increasingly lead to structural scarcity. user group controls access to renewable Driver 3. Transboundary natural resource negatively impacted in one country by to human security. Separately or in combination states and the international community. scarce renewable resources: The concept of resources to the detriment of others, natural dynamics and pressures: The challenges of infrastructure, industrial development or Climate change is not a direct source of con ict, with other factors, they can destabilize “resource scarcity” describes a situation where Driver 2. Poor governance of renewable the supply of renewable resources – such as resource-dependent communities are often managing renewable natural resources often changes in land use in another country. In but rather compounds each of the drivers listed livelihoods, negatively affect ecosystems Con icts over renewable resources generally arise natural resources and the environment: water, forests, rangelands and croplands – is marginalized. Violence can occur as extend beyond national borders. This is particular, pollution generated in one country above. In this regard, climate change can be and undermine peace and development. over issues such as who should have access to Policies, institutions and processes governing not suf cient to meet the demand. Increasing individuals and groups seek greater or fairer particularly the case for water, wildlife, can easily cross national borders, creating understood as a threat multiplier, leading to Governments in developing countries, fragile and control over resources, and who can in uence the access, use, ownership and management scarcity of renewable natural resources needed and more equitable access to key resources. sheries, and air quality. Similarly, risks to health risks in another. Similarly, changes in further resource scarcity, overstretching states and emerging economies, are under decisions regarding their allocation, sharing of of natural resources can be critical drivers of to sustain livelihoods can increase competition The struggle for increased equity can become renewable resources from waste management, land use in one country, including high levels societies’ adaptive capacities and weakening the increasing pressure to sustainably manage bene ts, management and rate of use. It is critical con ict. In many cases, they contribute to both between user groups. Social responses to rising linked to the recognition of identity, status pollution, climate change and disasters are of deforestation and soil erosion, can institutional capacity of states to resolve con ict natural resources and resolve con icts around to note that disputes and grievances over natural structural scarcity as well as grievances competition can include migration, technologi- and political rights, making con ict resolution often transboundary in nature. While states heighten vulnerabilities to natural hazards in through peaceful and democratic means. Future their ownership, management, allocation resources are rarely, if ever, the sole cause of associated with political exclusion, corruption, cal innovation, cooperation and violent con ict. processes more of a challenge. As discussed have the sovereign right, in accordance with another. risks from climate change, as well as from natural and control. violent con ict. The drivers of violence are most and an unequal distribution of bene ts. At the There are three main causes for increasing above, this can be a key factor causing the Charter of the United Nations and the hazards, must therefore be taken into account in often multi-faceted. However, disputes and same time, resource governance plays a critical resource scarcity working separately or in structural scarcity. principles of international law, to exploit their • Traditional livelihood practices or wildlife any strategy to prevent con icts over renewable Con ict itself is not a negative phenomenon; grievances over natural resources can contribute role in managing con icts caused by increasing combination: own resources pursuant to their own populations that migrate across national natural resource. indeed, well managed con ict can be an to violent con ict when they overlap with other resource scarcity and in resolving grievances • Unequal distribution of benefits and environmental and developmental policies, borders: While national borders de ne the essential component of social change, factors, such as ethnic polarization, high levels of before they contribute to violence. burdens from development projects: they also have the responsibility to ensure that sovereign boundary of states, these are often democracy and development. However, where inequity, poverty, injustice and poor governance. Understanding the governance framework for Conflict Prevention Strategies for Renewable • Demand-induced scarcity: Extractive industries, industrial sites or major activities within their jurisdiction or control do not respected by pastoral livelihood groups local and national institutions lack the capacity natural resources at the national and local Natural Resources Demand-induced scarcity arises when the infrastructure projects can provide multiple not cause damage to the environment of other that migrate seasonally along traditional to resolve disputes over the degradation or In other words, it is when grievances over natural levels, and the mechanisms for resolving demand for a speci c renewable resource bene ts to local communities as well as states. Yet, transboundary dynamics and routes, based on the availability of natural While competing interests over natural resources depletion of natural resources, violent con icts resources – perceived or actual – drive, reinforce disputes, can provide critical insights into why cannot be met by the existing supply. While seriously degrade, exhaust or pollute pressures are often beyond the capacity of a resources such as water and grazing land. can be a source of con ict, they can equally be a can and do emerge. It is therefore crucial that or further compound economic, political or con icts over renewable resources occur, and a resource such as water or cropland may renewable natural resources and become a single sovereign state to manage unilaterally, Similarly, wildlife populations commonly shared opportunity for cooperation, con dence- UN and EU development practitioners security tensions and stress factors that violent how they may be addressed. There are four initially meet all local needs, population major source of grievance. The environmental requiring cooperation and co-management migrate across national boundaries, shifting building and sustainable development. Under- understand the key drivers of con ict over con ict may ensue. Simple causal relations main causes of poor resource governance, growth, new technologies or increases in impacts of development projects can create with neighboring countries. There are four main economic opportunities from one country to standing how to transform con icts over natural renewable resources and what speci c role between disputes over natural resources and which may work separately or in combination: consumption rates can reduce the per tensions if communities are not compensated types of transboundary challenges that can another. Both situations can be important resources into mutually bene cial outcomes that UN and EU policies, programmes and projects violent con ict rarely follow a direct or linear path. capita availability of the resource over time. for the damage and do not receive a share of contribute to con icts over renewable sources of con ict as user groups are faced deepen trust and inter-dependence between can play in the identi cation of con ict risks as What generally determines whether a con ict • Unclear, overlapping or poor enforcement the development bene ts, nancial or resources: with increasing competition or lost parties is a key aim of effective con ict preven- well as entry points to prevent and manage escalates to the point of violence is related to: • Supply-induced scarcity: Supply-induced of resource rights and laws: Land and otherwise. livelihoods. In addition, these dynamics can tion and con ict management strategies. Such con icts through the use of sustainable Natural political systems – particularly the degree to which scarcity occurs when environmental resource tenure systems, rights and related contribute to the loss of indigenous efforts should focus on building consensus and Resource Management (NRM) practices. these are based on marginalization and exclusion; • Allocation or consumption of degradation, pollution, natural variation or laws determine who can use what resource • Lack of public participation and communities together with their cultural and mutual trust around the co-management of the presence and extent of state authority and the transboundary renewable resources is a breakdown in the delivery infrastructure of the land, for how long, and under what transparency in decision-making: Natural spiritual heritage. natural resources and the environment, determin- rule of law; socio-economic factors – particularly unequal or inflexible: When Using the available knowledge and best constrains or reduces the total supply or conditions. In many countries, land and resource policies and interventions are often ing equitable sharing of bene ts and resolving when associated with patterns of discrimination transboundary natural resources such as practices that have been collected from existing local availability of a speci c resource. As renewable natural resources are regulated made by the state, in conjunction with private • Activities involving the illegal exploitation, disputes in non-violent ways. and inequity; and, the prevailing security situation. water or sheries are shared between eld operations, this Guidance Note aims to the supply of natural resources is reduced, under a combination of statutory, customary, sector actors, without the active participation consumption and trade of natural They way in which con icts over natural resources countries, con icts can arise when one catalyze a common, coordinated and strategic options for pursuing productive livelihood informal and religious forms of tenure. of affected communities or suf cient resources across borders: One of the In most cases, con icts over renewable natural become politicized within the broader con ict and country consumes the resource at higher response by the UN and EU - as well as other strategies are undermined, potentially Disagreements, contradictions or transparency and consultation with emerging threats to the natural resource base resources interact with pre-existing political, political context is also a determining factor in rates than another, violates agreed international actors - to prevent and manage creating competition between livelihood overlapping rights regarding these ‘rules’ as stakeholders. Where communities and of many countries comes from illegal socioeconomic or security tensions and stresses, whether the con ict becomes violent or not. allocations or demonstrates in exibility con icts over renewable natural resources. groups. well as uncertainty over resource rights are stakeholders are poorly engaged or excluded exploitation of natural resources by global requiring a response on multiple levels and when faced with natural variation. often at the heart of con ict. A lack of state from the decision-making process over and transboundary criminal networks. Illicit across multiple sectors. In other words, there is Alternatively, a lack of sound data on extraction and trade of natural resources often no “quick x” to the problem. Appropriate
interventions depend on the mix of drivers, • Increasing the availability of renewable degradation; establishing and enforcing rights preventing con icts over natural resources livelihood responses, existing governance resources through protection, restoration, and rules over natural resource use; fostering is to ensure a con ict-sensitive approach structures and the level of con ict intensity. infrastructure and efficient use: These parliamentary oversight; enhancing public is integrated within all natural resource In many cases, solutions will require targeted measures focus on addressing the quality, participation in the design and acceptance management, development and climate interventions at the local, national and trans- quantity and availability of renewable of such rules; ensuring the transparent change adaptation policies and programmes. boundary levels. For renewable natural natural resources in order to reduce scarcity identi cation of any potential social and Stakeholders and donors need to anticipate resources, con ict prevention and con ict and competition. Supply-side interventions environmental impacts from development the potential sources of con ict that could be management strategies often encompass a focus on increasing the overall supply of, projects; and, establishing mechanisms generated by their interventions and adopt a blend of four main types of linked objectives or access to, renewable resources, as well for the resolution of diverging disputes. con ict-sensitive approach at all phases. and associated interventions: as stopping sources of environmental degradation and pollution. Demand-side • Building capacity of stakeholders and civil • Conducting early warning, risk assessments Objective 1. Reduce competition over strategies focus on improving the ef ciency society to participate in decision-making, and scenario analysis to identify potential scarce resources between livelihood of resource use and reducing the per capita to monitor compliance with the governance conflict hotspots: The use of early warning, risk groups: rate of consumption. Substitution measures frameworks, and to access justice assessments and scenario analysis to identify attempt to replace scarce renewable mechanisms: Even when governance potential con ict hotspots involving renewable resources with alternatives. • Supporting sustainable livelihoods frameworks for natural resources exist, resources is an important input to any targeted and reducing vulnerability to resource stakeholders and civil society groups con ict prevention programme. These tools scarcity: The sustainable livelihoods Objective 2. Improve resource governance, often lack the capacity to participate in should be used on a systematic basis to identify framework is one method to analyze accountability and dispute resolution decision-making, to monitor compliance existing and potential con ict hotspots. options and help determine suitable capacity: with the governance frameworks, to promote interventions that reduce vulnerability accountability and transparency, and to and help prevent con ict. Understanding While all con ict prevention and con ict manage- • Establishing the governance framework access justice mechanisms and dispute livelihood strategies in a speci c area, ment programmes involving natural resources must for natural resources, strengthening resolution processes. As these are essential particularly where livelihoods compete be owned by national actors, there are ve distinct implementation capacity and recognizing components of good governance and can for the same limited natural resources, is roles that the UN and EU can be requested to play resource rights: Improving resource contribute to con ict prevention, targeted key to designing con ict prevention or to support national governments and stakeholders: governance includes a range of measures capacity-building is often required. management strategies. In particular, the such as: addressing inequitable access; risks to minority groups and indigenous • Provide capacity-building support to reducing corruption and improving people must be assessed. Objective 3. Improve transboundary governments and civil society on environmental transparency; preventing environmental management institutions and cooperation: governance, sustainable resource management and con ict resolution; • Establish or strengthen transboundary • Act as an impartial actor and trusted third-party information, resource-sharing agreements, in dispute resolution processes; joint institutions, and dispute resolution • Provide early warning alerts when vulnerabilities processes: The effective management of and risks are detected from global or regional transboundary resources often relies on a environmental monitoring programmes and combination of tools and approaches. These assessments; can include joint management institutions, exible resource-sharing agreements, • Catalyze an international response to emerging harmonized laws and access to dispute resource con icts and leverage nancing; and, resolution processes. These measures often • Broker transboundary cooperation and related need to be strengthened as part of con ict agreements. prevention efforts. In addition to the four thematic con ict prevention Objective 4. Implement cross-cutting objectives discussed above, sector-speci c measures across all programmes: strategies are also needed. In this regard, this Guidance Note includes 50 speci c con ict • Designing conflict-sensitive resource prevention activities that can be undertaken management, adaptation and development for con icts related to water, forests, pastures programmes: One of the critical aspects of and sheries. Executive Summary Drivers of Conflict Over Renewable Natural In order to provide a more practical and focused • Structural scarcity: “Structural scarcity” Resources approach for UN and EU practitioners, this occurs when different groups in a society Managing con icts that are related to natural Guidance Note identi es three main categories capacity to extend its presence and authority renewable natural resources, they are likely resource consumption rates, quantity and deprives local communities of resource Non-violent resolution of con ict is possible face unequal resource access. While resources is now more critical than ever before. of con ict drivers for renewable natural into rural areas in order to enforce laws and to oppose any related decisions or quality can cause inaccurate perceptions bene ts and can lead to con ict. At the same when individuals and groups trust their governing structural scarcity can result from poor As economic and population growth increase resources. These drivers are based on existing resolve disputes is often a key cause of poor outcomes. Lost access to key resources, leading to unfounded accusations. time, pressures such as violent con ict, state structures to manage incompatible interests. When natural resource governance (as described levels of global consumption, many countries academic theory, combined with UN and EU governance of natural resources. Likewise, a eviction without compensation or sudden failure, disasters or environmental mechanisms for managing and resolving them in driver 2, below), it can also occur in a face growing shortages of vital renewable eld experiences, assessments and case lack of understanding and insuf cient price increases for renewable resources • Impacts on renewable resources caused degradation can be powerful incentives for break down, con ict becomes problematic and well-functioning governance structure, as resources such as freshwater, cropland, studies. As these three drivers can interact with consideration of customary law by the state such as water, can lead to signi cant by infrastructure, industrial development people to migrate across borders, may give way to violence. Weak institutions, fragile the outcome of different land use decisions rangeland, forests, sheries and other wildlife. and reinforce each other, con ict prevention can exacerbate tensions. tensions between the affected and changed land use in neighboring establishing new resource-dependent political systems and divisive social relations can and tradeoffs. At the same time, cultural Depletion of renewable natural resources, strategies must often take all three into account: communities, the government and the countries: The quality or quantity of livelihoods in neighboring countries that fall perpetuate cycles of violent con ict. Preventing practices, gender dynamics as well as combined with environmental degradation • Discriminatory policies, rights and laws private sector. transboundary natural resources, such as outside of government regulation and this spiral and ensuring the peaceful resolution social and economic barriers may also and climate change, pose fundamental threats that marginalize specific groups: When one water, sheries, wildlife and air, can be control. of disputes is a core interest of both individual Driver 1. Competition over increasingly lead to structural scarcity. to human security. Separately or in combination scarce renewable resources: The concept of user group controls access to renewable Driver 3. Transboundary natural resource negatively impacted in one country by states and the international community. resources to the detriment of others, natural dynamics and pressures: The challenges of infrastructure, industrial development or Climate change is not a direct source of con ict, with other factors, they can destabilize “resource scarcity” describes a situation where Driver 2. Poor governance of renewable resource-dependent communities are often managing renewable natural resources often changes in land use in another country. In but rather compounds each of the drivers listed livelihoods, negatively affect ecosystems the supply of renewable resources – such as natural resources and the environment: Con icts over renewable resources generally arise marginalized. Violence can occur as extend beyond national borders. This is particular, pollution generated in one country above. In this regard, climate change can be and undermine peace and development. water, forests, rangelands and croplands – is Policies, institutions and processes governing over issues such as who should have access to individuals and groups seek greater or fairer particularly the case for water, wildlife, can easily cross national borders, creating understood as a threat multiplier, leading to Governments in developing countries, fragile not suf cient to meet the demand. Increasing the access, use, ownership and management and control over resources, and who can in uence and more equitable access to key resources. sheries, and air quality. Similarly, risks to health risks in another. Similarly, changes in further resource scarcity, overstretching states and emerging economies, are under scarcity of renewable natural resources needed of natural resources can be critical drivers of decisions regarding their allocation, sharing of The struggle for increased equity can become renewable resources from waste management, land use in one country, including high levels societies’ adaptive capacities and weakening the increasing pressure to sustainably manage to sustain livelihoods can increase competition con ict. In many cases, they contribute to both bene ts, management and rate of use. It is critical linked to the recognition of identity, status pollution, climate change and disasters are of deforestation and soil erosion, can institutional capacity of states to resolve con ict natural resources and resolve con icts around between user groups. Social responses to rising structural scarcity as well as grievances to note that disputes and grievances over natural and political rights, making con ict resolution often transboundary in nature. While states heighten vulnerabilities to natural hazards in through peaceful and democratic means. Future their ownership, management, allocation competition can include migration, technologi- associated with political exclusion, corruption, resources are rarely, if ever, the sole cause of processes more of a challenge. As discussed have the sovereign right, in accordance with another. risks from climate change, as well as from natural and control. cal innovation, cooperation and violent con ict. and an unequal distribution of bene ts. At the violent con ict. The drivers of violence are most above, this can be a key factor causing the Charter of the United Nations and the hazards, must therefore be taken into account in There are three main causes for increasing same time, resource governance plays a critical often multi-faceted. However, disputes and structural scarcity. principles of international law, to exploit their • Traditional livelihood practices or wildlife any strategy to prevent con icts over renewable Con ict itself is not a negative phenomenon; resource scarcity working separately or in role in managing con icts caused by increasing grievances over natural resources can contribute own resources pursuant to their own populations that migrate across national natural resource. indeed, well managed con ict can be an combination: resource scarcity and in resolving grievances to violent con ict when they overlap with other • Unequal distribution of benefits and environmental and developmental policies, borders: While national borders de ne the essential component of social change, before they contribute to violence. factors, such as ethnic polarization, high levels of burdens from development projects: they also have the responsibility to ensure that sovereign boundary of states, these are often democracy and development. However, where Understanding the governance framework for Conflict Prevention Strategies for Renewable inequity, poverty, injustice and poor governance. • Demand-induced scarcity: Extractive industries, industrial sites or major activities within their jurisdiction or control do not respected by pastoral livelihood groups local and national institutions lack the capacity natural resources at the national and local Natural Resources Demand-induced scarcity arises when the infrastructure projects can provide multiple not cause damage to the environment of other that migrate seasonally along traditional to resolve disputes over the degradation or levels, and the mechanisms for resolving In other words, it is when grievances over natural demand for a speci c renewable resource bene ts to local communities as well as states. Yet, transboundary dynamics and routes, based on the availability of natural While competing interests over natural resources depletion of natural resources, violent con icts disputes, can provide critical insights into why resources – perceived or actual – drive, reinforce cannot be met by the existing supply. While seriously degrade, exhaust or pollute pressures are often beyond the capacity of a resources such as water and grazing land. can be a source of con ict, they can equally be a can and do emerge. It is therefore crucial that con icts over renewable resources occur, and or further compound economic, political or a resource such as water or cropland may renewable natural resources and become a single sovereign state to manage unilaterally, Similarly, wildlife populations commonly shared opportunity for cooperation, con dence- UN and EU development practitioners how they may be addressed. There are four security tensions and stress factors that violent initially meet all local needs, population major source of grievance. The environmental requiring cooperation and co-management migrate across national boundaries, shifting building and sustainable development. Under- understand the key drivers of con ict over main causes of poor resource governance, con ict may ensue. Simple causal relations growth, new technologies or increases in impacts of development projects can create with neighboring countries. There are four main economic opportunities from one country to standing how to transform con icts over natural renewable resources and what speci c role which may work separately or in combination: between disputes over natural resources and consumption rates can reduce the per tensions if communities are not compensated types of transboundary challenges that can another. Both situations can be important resources into mutually bene cial outcomes that UN and EU policies, programmes and projects violent con ict rarely follow a direct or linear path. capita availability of the resource over time. for the damage and do not receive a share of contribute to con icts over renewable sources of con ict as user groups are faced deepen trust and inter-dependence between can play in the identi cation of con ict risks as What generally determines whether a con ict • Unclear, overlapping or poor enforcement the development bene ts, nancial or resources: with increasing competition or lost parties is a key aim of effective con ict preven- well as entry points to prevent and manage escalates to the point of violence is related to: • Supply-induced scarcity: Supply-induced of resource rights and laws: Land and otherwise. livelihoods. In addition, these dynamics can tion and con ict management strategies. Such con icts through the use of sustainable Natural political systems – particularly the degree to which scarcity occurs when environmental resource tenure systems, rights and related contribute to the loss of indigenous efforts should focus on building consensus and • Allocation or consumption of Resource Management (NRM) practices. these are based on marginalization and exclusion; degradation, pollution, natural variation or laws determine who can use what resource • Lack of public participation and communities together with their cultural and mutual trust around the co-management of transboundary renewable resources is the presence and extent of state authority and the a breakdown in the delivery infrastructure of the land, for how long, and under what transparency in decision-making: Natural spiritual heritage. natural resources and the environment, determin- unequal or inflexible: When Using the available knowledge and best rule of law; socio-economic factors – particularly constrains or reduces the total supply or conditions. In many countries, land and resource policies and interventions are often ing equitable sharing of bene ts and resolving transboundary natural resources such as practices that have been collected from existing when associated with patterns of discrimination local availability of a speci c resource. As renewable natural resources are regulated made by the state, in conjunction with private • Activities involving the illegal exploitation, disputes in non-violent ways. water or sheries are shared between eld operations, this Guidance Note aims to and inequity; and, the prevailing security situation. the supply of natural resources is reduced, under a combination of statutory, customary, sector actors, without the active participation consumption and trade of natural countries, con icts can arise when one catalyze a common, coordinated and strategic They way in which con icts over natural resources options for pursuing productive livelihood informal and religious forms of tenure. of affected communities or suf cient resources across borders: One of the In most cases, con icts over renewable natural country consumes the resource at higher response by the UN and EU - as well as other become politicized within the broader con ict and strategies are undermined, potentially Disagreements, contradictions or transparency and consultation with emerging threats to the natural resource base resources interact with pre-existing political, rates than another, violates agreed international actors - to prevent and manage political context is also a determining factor in creating competition between livelihood overlapping rights regarding these ‘rules’ as stakeholders. Where communities and of many countries comes from illegal socioeconomic or security tensions and stresses, allocations or demonstrates in exibility con icts over renewable natural resources. whether the con ict becomes violent or not. groups. well as uncertainty over resource rights are stakeholders are poorly engaged or excluded exploitation of natural resources by global requiring a response on multiple levels and when faced with natural variation. often at the heart of con ict. A lack of state from the decision-making process over and transboundary criminal networks. Illicit across multiple sectors. In other words, there is Alternatively, a lack of sound data on extraction and trade of natural resources often no “quick x” to the problem. Appropriate
RENEWABLE RESOURCES AND CONFLICT
interventions depend on the mix of drivers, • Increasing the availability of renewable degradation; establishing and enforcing rights preventing con icts over natural resources livelihood responses, existing governance resources through protection, restoration, and rules over natural resource use; fostering is to ensure a con ict-sensitive approach structures and the level of con ict intensity. infrastructure and efficient use: These parliamentary oversight; enhancing public is integrated within all natural resource In many cases, solutions will require targeted measures focus on addressing the quality, participation in the design and acceptance management, development and climate interventions at the local, national and trans- quantity and availability of renewable of such rules; ensuring the transparent change adaptation policies and programmes. boundary levels. For renewable natural natural resources in order to reduce scarcity identi cation of any potential social and Stakeholders and donors need to anticipate resources, con ict prevention and con ict and competition. Supply-side interventions environmental impacts from development the potential sources of con ict that could be management strategies often encompass a focus on increasing the overall supply of, projects; and, establishing mechanisms generated by their interventions and adopt a blend of four main types of linked objectives or access to, renewable resources, as well for the resolution of diverging disputes. con ict-sensitive approach at all phases. and associated interventions: as stopping sources of environmental degradation and pollution. Demand-side • Building capacity of stakeholders and civil • Conducting early warning, risk assessments Objective 1. Reduce competition over strategies focus on improving the ef ciency society to participate in decision-making, and scenario analysis to identify potential scarce resources between livelihood of resource use and reducing the per capita to monitor compliance with the governance conflict hotspots: The use of early warning, risk groups: rate of consumption. Substitution measures frameworks, and to access justice assessments and scenario analysis to identify attempt to replace scarce renewable mechanisms: Even when governance potential con ict hotspots involving renewable resources with alternatives. • Supporting sustainable livelihoods frameworks for natural resources exist, resources is an important input to any targeted and reducing vulnerability to resource stakeholders and civil society groups con ict prevention programme. These tools scarcity: The sustainable livelihoods Objective 2. Improve resource governance, often lack the capacity to participate in should be used on a systematic basis to identify framework is one method to analyze accountability and dispute resolution decision-making, to monitor compliance existing and potential con ict hotspots. options and help determine suitable capacity: with the governance frameworks, to promote interventions that reduce vulnerability accountability and transparency, and to and help prevent con ict. Understanding While all con ict prevention and con ict manage- • Establishing the governance framework access justice mechanisms and dispute livelihood strategies in a speci c area, ment programmes involving natural resources must for natural resources, strengthening resolution processes. As these are essential particularly where livelihoods compete be owned by national actors, there are ve distinct implementation capacity and recognizing components of good governance and can for the same limited natural resources, is roles that the UN and EU can be requested to play resource rights: Improving resource contribute to con ict prevention, targeted key to designing con ict prevention or to support national governments and stakeholders: governance includes a range of measures capacity-building is often required. management strategies. In particular, the such as: addressing inequitable access; risks to minority groups and indigenous • Provide capacity-building support to reducing corruption and improving people must be assessed. Objective 3. Improve transboundary governments and civil society on environmental transparency; preventing environmental management institutions and cooperation: governance, sustainable resource management and con ict resolution; • Establish or strengthen transboundary • Act as an impartial actor and trusted third-party information, resource-sharing agreements, in dispute resolution processes; joint institutions, and dispute resolution • Provide early warning alerts when vulnerabilities processes: The effective management of and risks are detected from global or regional transboundary resources often relies on a environmental monitoring programmes and combination of tools and approaches. These assessments; can include joint management institutions, exible resource-sharing agreements, • Catalyze an international response to emerging harmonized laws and access to dispute resource con icts and leverage nancing; and, resolution processes. These measures often • Broker transboundary cooperation and related need to be strengthened as part of con ict agreements. prevention efforts. In addition to the four thematic con ict prevention Objective 4. Implement cross-cutting objectives discussed above, sector-speci c measures across all programmes: strategies are also needed. In this regard, this Guidance Note includes 50 speci c con ict • Designing conflict-sensitive resource prevention activities that can be undertaken management, adaptation and development for con icts related to water, forests, pastures programmes: One of the critical aspects of and sheries. Executive Summary Drivers of Conflict Over Renewable Natural In order to provide a more practical and focused • Structural scarcity: “Structural scarcity” Resources approach for UN and EU practitioners, this occurs when different groups in a society Managing con icts that are related to natural Guidance Note identi es three main categories capacity to extend its presence and authority renewable natural resources, they are likely resource consumption rates, quantity and deprives local communities of resource Non-violent resolution of con ict is possible face unequal resource access. While resources is now more critical than ever before. of con ict drivers for renewable natural into rural areas in order to enforce laws and to oppose any related decisions or quality can cause inaccurate perceptions bene ts and can lead to con ict. At the same when individuals and groups trust their governing structural scarcity can result from poor As economic and population growth increase resources. These drivers are based on existing resolve disputes is often a key cause of poor outcomes. Lost access to key resources, leading to unfounded accusations. time, pressures such as violent con ict, state structures to manage incompatible interests. When natural resource governance (as described levels of global consumption, many countries academic theory, combined with UN and EU governance of natural resources. Likewise, a eviction without compensation or sudden failure, disasters or environmental mechanisms for managing and resolving them in driver 2, below), it can also occur in a face growing shortages of vital renewable eld experiences, assessments and case lack of understanding and insuf cient price increases for renewable resources • Impacts on renewable resources caused degradation can be powerful incentives for break down, con ict becomes problematic and well-functioning governance structure, as resources such as freshwater, cropland, studies. As these three drivers can interact with consideration of customary law by the state such as water, can lead to signi cant by infrastructure, industrial development people to migrate across borders, may give way to violence. Weak institutions, fragile the outcome of different land use decisions rangeland, forests, sheries and other wildlife. and reinforce each other, con ict prevention can exacerbate tensions. tensions between the affected and changed land use in neighboring establishing new resource-dependent political systems and divisive social relations can and tradeoffs. At the same time, cultural Depletion of renewable natural resources, strategies must often take all three into account: communities, the government and the countries: The quality or quantity of livelihoods in neighboring countries that fall perpetuate cycles of violent con ict. Preventing practices, gender dynamics as well as combined with environmental degradation • Discriminatory policies, rights and laws private sector. transboundary natural resources, such as outside of government regulation and this spiral and ensuring the peaceful resolution social and economic barriers may also and climate change, pose fundamental threats that marginalize specific groups: When one water, sheries, wildlife and air, can be control. of disputes is a core interest of both individual Driver 1. Competition over increasingly lead to structural scarcity. to human security. Separately or in combination scarce renewable resources: The concept of user group controls access to renewable Driver 3. Transboundary natural resource negatively impacted in one country by states and the international community. resources to the detriment of others, natural dynamics and pressures: The challenges of infrastructure, industrial development or Climate change is not a direct source of con ict, with other factors, they can destabilize “resource scarcity” describes a situation where Driver 2. Poor governance of renewable resource-dependent communities are often managing renewable natural resources often changes in land use in another country. In but rather compounds each of the drivers listed livelihoods, negatively affect ecosystems the supply of renewable resources – such as natural resources and the environment: Con icts over renewable resources generally arise marginalized. Violence can occur as extend beyond national borders. This is particular, pollution generated in one country above. In this regard, climate change can be and undermine peace and development. water, forests, rangelands and croplands – is Policies, institutions and processes governing over issues such as who should have access to individuals and groups seek greater or fairer particularly the case for water, wildlife, can easily cross national borders, creating understood as a threat multiplier, leading to Governments in developing countries, fragile not suf cient to meet the demand. Increasing the access, use, ownership and management and control over resources, and who can in uence and more equitable access to key resources. sheries, and air quality. Similarly, risks to health risks in another. Similarly, changes in further resource scarcity, overstretching states and emerging economies, are under scarcity of renewable natural resources needed of natural resources can be critical drivers of decisions regarding their allocation, sharing of The struggle for increased equity can become renewable resources from waste management, land use in one country, including high levels societies’ adaptive capacities and weakening the increasing pressure to sustainably manage to sustain livelihoods can increase competition con ict. In many cases, they contribute to both bene ts, management and rate of use. It is critical linked to the recognition of identity, status pollution, climate change and disasters are of deforestation and soil erosion, can institutional capacity of states to resolve con ict natural resources and resolve con icts around between user groups. Social responses to rising structural scarcity as well as grievances to note that disputes and grievances over natural and political rights, making con ict resolution often transboundary in nature. While states heighten vulnerabilities to natural hazards in through peaceful and democratic means. Future their ownership, management, allocation competition can include migration, technologi- associated with political exclusion, corruption, resources are rarely, if ever, the sole cause of processes more of a challenge. As discussed have the sovereign right, in accordance with another. risks from climate change, as well as from natural and control. cal innovation, cooperation and violent con ict. and an unequal distribution of bene ts. At the violent con ict. The drivers of violence are most above, this can be a key factor causing the Charter of the United Nations and the hazards, must therefore be taken into account in There are three main causes for increasing same time, resource governance plays a critical often multi-faceted. However, disputes and structural scarcity. principles of international law, to exploit their • Traditional livelihood practices or wildlife any strategy to prevent con icts over renewable Con ict itself is not a negative phenomenon; resource scarcity working separately or in role in managing con icts caused by increasing grievances over natural resources can contribute own resources pursuant to their own populations that migrate across national natural resource. indeed, well managed con ict can be an combination: resource scarcity and in resolving grievances to violent con ict when they overlap with other • Unequal distribution of benefits and environmental and developmental policies, borders: While national borders de ne the essential component of social change, before they contribute to violence. factors, such as ethnic polarization, high levels of burdens from development projects: they also have the responsibility to ensure that sovereign boundary of states, these are often democracy and development. However, where Understanding the governance framework for Conflict Prevention Strategies for Renewable inequity, poverty, injustice and poor governance. • Demand-induced scarcity: Extractive industries, industrial sites or major activities within their jurisdiction or control do not respected by pastoral livelihood groups local and national institutions lack the capacity natural resources at the national and local Natural Resources Demand-induced scarcity arises when the infrastructure projects can provide multiple not cause damage to the environment of other that migrate seasonally along traditional to resolve disputes over the degradation or levels, and the mechanisms for resolving In other words, it is when grievances over natural demand for a speci c renewable resource bene ts to local communities as well as states. Yet, transboundary dynamics and routes, based on the availability of natural While competing interests over natural resources depletion of natural resources, violent con icts disputes, can provide critical insights into why resources – perceived or actual – drive, reinforce cannot be met by the existing supply. While seriously degrade, exhaust or pollute pressures are often beyond the capacity of a resources such as water and grazing land. can be a source of con ict, they can equally be a can and do emerge. It is therefore crucial that con icts over renewable resources occur, and or further compound economic, political or a resource such as water or cropland may renewable natural resources and become a single sovereign state to manage unilaterally, Similarly, wildlife populations commonly shared opportunity for cooperation, con dence- UN and EU development practitioners how they may be addressed. There are four security tensions and stress factors that violent initially meet all local needs, population major source of grievance. The environmental requiring cooperation and co-management migrate across national boundaries, shifting building and sustainable development. Under- understand the key drivers of con ict over main causes of poor resource governance, con ict may ensue. Simple causal relations growth, new technologies or increases in impacts of development projects can create with neighboring countries. There are four main economic opportunities from one country to standing how to transform con icts over natural renewable resources and what speci c role which may work separately or in combination: between disputes over natural resources and consumption rates can reduce the per tensions if communities are not compensated types of transboundary challenges that can another. Both situations can be important resources into mutually bene cial outcomes that UN and EU policies, programmes and projects violent con ict rarely follow a direct or linear path. capita availability of the resource over time. for the damage and do not receive a share of contribute to con icts over renewable sources of con ict as user groups are faced deepen trust and inter-dependence between can play in the identi cation of con ict risks as What generally determines whether a con ict • Unclear, overlapping or poor enforcement the development bene ts, nancial or resources: with increasing competition or lost parties is a key aim of effective con ict preven- well as entry points to prevent and manage escalates to the point of violence is related to: • Supply-induced scarcity: Supply-induced of resource rights and laws: Land and otherwise. livelihoods. In addition, these dynamics can tion and con ict management strategies. Such con icts through the use of sustainable Natural political systems – particularly the degree to which scarcity occurs when environmental resource tenure systems, rights and related contribute to the loss of indigenous efforts should focus on building consensus and • Allocation or consumption of Resource Management (NRM) practices. these are based on marginalization and exclusion; degradation, pollution, natural variation or laws determine who can use what resource • Lack of public participation and communities together with their cultural and mutual trust around the co-management of transboundary renewable resources is the presence and extent of state authority and the a breakdown in the delivery infrastructure of the land, for how long, and under what transparency in decision-making: Natural spiritual heritage. natural resources and the environment, determin- unequal or inflexible: When Using the available knowledge and best rule of law; socio-economic factors – particularly constrains or reduces the total supply or conditions. In many countries, land and resource policies and interventions are often ing equitable sharing of bene ts and resolving transboundary natural resources such as practices that have been collected from existing when associated with patterns of discrimination local availability of a speci c resource. As renewable natural resources are regulated made by the state, in conjunction with private • Activities involving the illegal exploitation, disputes in non-violent ways. water or sheries are shared between eld operations, this Guidance Note aims to and inequity; and, the prevailing security situation. the supply of natural resources is reduced, under a combination of statutory, customary, sector actors, without the active participation consumption and trade of natural countries, con icts can arise when one catalyze a common, coordinated and strategic They way in which con icts over natural resources options for pursuing productive livelihood informal and religious forms of tenure. of affected communities or suf cient resources across borders: One of the In most cases, con icts over renewable natural country consumes the resource at higher response by the UN and EU - as well as other become politicized within the broader con ict and strategies are undermined, potentially Disagreements, contradictions or transparency and consultation with emerging threats to the natural resource base resources interact with pre-existing political, rates than another, violates agreed international actors - to prevent and manage political context is also a determining factor in creating competition between livelihood overlapping rights regarding these ‘rules’ as stakeholders. Where communities and of many countries comes from illegal socioeconomic or security tensions and stresses, allocations or demonstrates in exibility con icts over renewable natural resources. whether the con ict becomes violent or not. groups. well as uncertainty over resource rights are stakeholders are poorly engaged or excluded exploitation of natural resources by global requiring a response on multiple levels and when faced with natural variation. often at the heart of con ict. A lack of state from the decision-making process over and transboundary criminal networks. Illicit across multiple sectors. In other words, there is Alternatively, a lack of sound data on extraction and trade of natural resources often no “quick x” to the problem. Appropriate
RENEWABLE RESOURCES AND CONFLICT
interventions depend on the mix of drivers, • Increasing the availability of renewable degradation; establishing and enforcing rights preventing con icts over natural resources livelihood responses, existing governance resources through protection, restoration, and rules over natural resource use; fostering is to ensure a con ict-sensitive approach structures and the level of con ict intensity. infrastructure and efficient use: These parliamentary oversight; enhancing public is integrated within all natural resource In many cases, solutions will require targeted measures focus on addressing the quality, participation in the design and acceptance management, development and climate interventions at the local, national and trans- quantity and availability of renewable of such rules; ensuring the transparent change adaptation policies and programmes. boundary levels. For renewable natural natural resources in order to reduce scarcity identi cation of any potential social and Stakeholders and donors need to anticipate resources, con ict prevention and con ict and competition. Supply-side interventions environmental impacts from development the potential sources of con ict that could be management strategies often encompass a focus on increasing the overall supply of, projects; and, establishing mechanisms generated by their interventions and adopt a blend of four main types of linked objectives or access to, renewable resources, as well for the resolution of diverging disputes. con ict-sensitive approach at all phases. and associated interventions: as stopping sources of environmental degradation and pollution. Demand-side • Building capacity of stakeholders and civil • Conducting early warning, risk assessments Objective 1. Reduce competition over strategies focus on improving the ef ciency society to participate in decision-making, and scenario analysis to identify potential scarce resources between livelihood of resource use and reducing the per capita to monitor compliance with the governance conflict hotspots: The use of early warning, risk groups: rate of consumption. Substitution measures frameworks, and to access justice assessments and scenario analysis to identify attempt to replace scarce renewable mechanisms: Even when governance potential con ict hotspots involving renewable resources with alternatives. • Supporting sustainable livelihoods frameworks for natural resources exist, resources is an important input to any targeted and reducing vulnerability to resource stakeholders and civil society groups con ict prevention programme. These tools scarcity: The sustainable livelihoods Objective 2. Improve resource governance, often lack the capacity to participate in should be used on a systematic basis to identify framework is one method to analyze accountability and dispute resolution decision-making, to monitor compliance existing and potential con ict hotspots. options and help determine suitable capacity: with the governance frameworks, to promote interventions that reduce vulnerability accountability and transparency, and to and help prevent con ict. Understanding While all con ict prevention and con ict manage- • Establishing the governance framework access justice mechanisms and dispute livelihood strategies in a speci c area, ment programmes involving natural resources must for natural resources, strengthening resolution processes. As these are essential particularly where livelihoods compete be owned by national actors, there are ve distinct implementation capacity and recognizing components of good governance and can for the same limited natural resources, is roles that the UN and EU can be requested to play resource rights: Improving resource contribute to con ict prevention, targeted key to designing con ict prevention or to support national governments and stakeholders: governance includes a range of measures capacity-building is often required. management strategies. In particular, the such as: addressing inequitable access; risks to minority groups and indigenous • Provide capacity-building support to reducing corruption and improving people must be assessed. Objective 3. Improve transboundary governments and civil society on environmental transparency; preventing environmental management institutions and cooperation: governance, sustainable resource management and con ict resolution; • Establish or strengthen transboundary • Act as an impartial actor and trusted third-party information, resource-sharing agreements, in dispute resolution processes; joint institutions, and dispute resolution • Provide early warning alerts when vulnerabilities processes: The effective management of and risks are detected from global or regional transboundary resources often relies on a environmental monitoring programmes and combination of tools and approaches. These assessments; can include joint management institutions, exible resource-sharing agreements, • Catalyze an international response to emerging harmonized laws and access to dispute resource con icts and leverage nancing; and, resolution processes. These measures often • Broker transboundary cooperation and related need to be strengthened as part of con ict agreements. prevention efforts. In addition to the four thematic con ict prevention Objective 4. Implement cross-cutting objectives discussed above, sector-speci c measures across all programmes: strategies are also needed. In this regard, this Guidance Note includes 50 speci c con ict • Designing conflict-sensitive resource prevention activities that can be undertaken management, adaptation and development for con icts related to water, forests, pastures programmes: One of the critical aspects of and sheries. EU-UN Partnership TOOLKIT AND GUIDANCE FOR PREVENTING AND MANAGING Strengthening Capacity for the Consensual and Sustainable LAND AND NATURAL RESOURCES CONFLICT Management of Land and Natural Resources
The management of land and natural resources is one of the most critical challenges facing developing countries today. The exploitation of high-value natural resources, including oil, gas, minerals and timber has often been cited as a key factor in triggering, escalating or sustaining violent con icts around the globe. Furthermore, increasing competition and Renewable Resources and Conflict con ict for diminishing renewable resources, such as land and water, is on the rise. This is being further aggravated by environmental degradation, population growth and climate change. The mismanagement of land and natural resources is contributing to new con icts and obstructing the peaceful resolution of existing ones. EXECUTIVE SUMMARY To improve capacity for land and natural resource management and con ict prevention, the European Union partnered with the Expert Reference Group of the UN Framework Team (FT) in late 2008. The aim of this partnership was to develop and implement a strategic multi-agency project focused on building the capacity of national stakeholders, the United Nations system, and the European Union to prevent land and natural resources from contributing to violent con ict. Six UN agencies, programme or departments have been involved, including UNDP, DPA, UNEP, PBSO, UN-HABITAT and DESA. The partnership is also designed to enhance policy development and programme coordination between key actors at the eld level.
The rst outcome of this project is an inventory of existing tools and capacity within the UN system and a set of four Guidance Notes on addressing natural resource management and con ict prevention. These Guidance Notes cover: (i) Land and Con ict, (ii) Extractive Industries and Con ict, (iii) Renewable Resources and Con ict, (iv) Strengthening Capacity for Con ict-Sensitive Natural Resource Management.
Based on the Guidance Notes, the second outcome of the project is to deliver a series of training modules for UN and EU eld staff, as well as local partners, to enhance the knowledge and skills needed to understand, anticipate, prevent, and mitigate potential con icts over land and natural resources. Participants will acquire the skills to formulate and operationalize preventive measures in relation to natural resource management (NRM) and con ict.
In countries where speci c NRM and con ict challenges are identi ed, the project will aim to provide focused technical assistance in the development of con ict prevention strategies. This could include the deployment of staff and other experts to assist the UN Country Team (UNCT), including the Resident Coordinator (RC) or Peace and Development Advisor, in analysing options and designing programmes. Where needed, dedicated follow-up measures will also be undertaken on an inter-agency basis, in partnership with the EU.
This guidance note was developed under the lead of the United Nations Program for Environment. For more information, please contact: [email protected]
UN Interagency Framework Team for Preventive Action Hosted by: UNDP, Bureau for Crisis Prevention and Recovery One United Nations Plaza, Rm. 2084, New York, NY 10017, U.S.A. The United Nations Tel.: +1-212-906-5422 E-mail: [email protected] with funding and support from the European Union Interagency Framework Team for Preventive Action