Pastoralist Voices

May 2009 Volume 1 , Issue 15

Photos: OCHA For a Policy Framework on Pastoralism in Africa African Union and the United Nations Office for the Coordination of Humanitarian Affairs Pastoralists across Africa have called for a continent-wide policy framework that will begin to secure and protect the lives, livelihood and rights of pastoralists across Africa. The African Union has responded to this call and has begun formulating a Pastoral Policy Framework for the Continent. Pastoralist Voices is a monthly bulletin that supports this process by promoting the voices and perspectives of pastoralists, and facilitating information flow between the major stakeholders in the policy process including pastoralists, the African Union, Regional Economic Communities and international agencies. To subscribe to Pastoralist Voices please write to: [email protected]

In this issue Marginalization of Pastoralists in the Dar- Marginalization of pastoralists in the Darfur conflict in fur conflict in Northern Sudan Northern Sudan P g 1, 2, 3 and 4 Why Humanitarian interventions are failing to address Lack of support to pastoralists’ security needs in Central and food crisis in pastoral areas pg 1, 4 and 5 East Africa have implications for national and regional security. Making disarmament work in pastoral areas of Southern The conflict in Northern Sudan is being attributed to a large Sudan P g 6 extent to pastoralists’ marginalization in the region.

A detailed report by Tuft University’s Feinstein Interna- tional Center is urging Humanitarian actors to take account of Why humanitarian interventions the particular vulnerability of pastoral groups, and to recognize are failing to address food crisis that their needs are qualitatively different from those of IDPs in in Pastoral Areas the region. The report; Livelihoods, Power and Choice; The Vul- (This is summarized from Getting it right. Under- nerability of the Northern Rizaygat, Darfur, notes ` The appall- standing livelihoods to reduce the vulnerability ing violence and associated human rights abuses that have of Pastoral Communities, A report from Humani- been recorded in Darfur are not the subject of this research. tarian Policy Group and Oxfam GB, April 2009) The increasing vulnerability to food insecurity that pastoralists face stems from the failure to put the protection of pastoral livelihoods at the centre of emergency preparedness, planning and response mechanisms. Emergency responses are failing on three counts. They fail to prevent the recurrence of crisis. They fail to support the capacity of the pastoral community to withstand the effects of shocks. And they fail to adapt to the changing nature of shocks. Why the failure to prevent food crisis?

In order to be effective, emergency prepared- ness and planning must continue to improve both the timelines and appropriateness of in- terventions, through effective use of early warning systems and contingency planning. These should not be seen as emergency instru- ments but rather as a means of managing pre- dictable risks in pastoral areas and ensuring the protection of livelihoods. Sudan Solder in Darfur where the war has left approximately two hundred thousand people dead and two million displaced. August 06 Photo: Bauer Shane In addition, a livelihoods approach must be the critical base for designing an integrated approach that addresses vulnerability, as it im- proves the sensitivity of monitoring systems to hunger and impoverishment. CONT PAGE 2 1 CONT PAGE 4

CONT FROM PG 1 Pastoralist Voices * OCHA RO-CEA Marginalization of Pastoralists in the Darfur conflict in Northern Sudan

We are not seeking to condone or excuse the violence. much less visible, as they live in scattered rural communi- Our aim is to address the gap in understanding about ties in areas that are inaccessible to the international the livelihoods of these groups and their particular vul- community, and they have been alienated by the pariah nerability, and, in so doing, to challenge the oversimpli- status attached to them. They are also widely perceived fied representation of this group as marauding militia. by the international community as less vulnerable than Exclusion, neglect, and marginalization are the unfortu- other groups (despite the dearth of humanitarian assess- nate legacies of colonial and post-colonial policies, ments and lack of evidence). which the international community, including humani- The study uses a livelihoods lens to illustrate the tarian actors, must not continue to legitimize and rein- processes that shaped the vulnerability of the Northern force.’ Rizaygat, and brought them to the point where they Livelihoods, Power and Choice; The Vulnerability were willing to actively support the counterinsurgency against the Darfuri rebels, and subsequently how conflict of the Northern Rizaygat, Darfur related processes have shaped and exacerbate their par- Livelihoods in Darfur are intimately linked to the con- ticular vulnerability. The wider purpose of this research is flict, none more so than the livelihoods of the Northern to promote understanding and raise awareness in Sudan Rizaygat, the camel-herding nomads. and abroad of the livelihood challenges facing specific pastoralist groups in Darfur, and to promote their inclu- sion as stakeholders in relevant national and interna- tional processes to meet humanitarian need and pro- mote peace and recovery. The appalling violence and associated human rights abuses that have been recorded in Darfur are not the subject of this research. We are not seeking to condone or excuse the violence. Our aim is to address the gap in understanding about the livelihoods of these groups and their particular vulnerability, and, in so doing, to challenge the oversimplified representation of this group as marauding militia. Darfuri pastoralists have much in common with pastoralists in other conflict-affected areas of Africa and elsewhere, who face equivalent challenges as a result of their marginalization. Therefore, lessons learned from this very specific case of Darfur have broader implica- tions, not only for prospects of peace and recovery in Darfur, but also for policies around pastoralism, land ten- ure security, climate adaptation, natural resource man- agement, and humanitarian intervention.

Ethiopia pastoralist during a ceremony. March 08 From Marginalization to Mal-adaptation Photo: OCHA ETHIOPIA The impoverishment and marginalization of pastoralist groups, within the broader context of the marginaliza- Their notoriety as part of the Janjaweed militia and the tion of Darfur, is an outcome of combined socioeco- government’s counterinsurgency has completely ob- nomic, political, and ecological processes of which the scured from view their pastoralist identity linked to their relationship between the government and the nomads is distinctive nomadic culture of camel-herding (aballa). an overriding factor contributing to their exclusion from Their traditional livestock migration routes extended power and resource distribution. from the semi-arid rainy season pastures (the Jizzu) of North Darfur, to the far south bordering Southern Su- For example, longstanding and inequitable sys- dan and Central African Republic. They are not the only tems of land tenure and natural resource management aballa group in the Darfur region – others include the became entrenched by successive governments and cre- Zaghawa, Zayadia and Meidob. But they are the only ated a hierarchy of rights to natural resources, which aballa group that do not have their own tribal home- were to the disadvantage of the Northern Rizaygat. This land or dar. has exacerbated tensions between pastoralist groups and settled farming groups, and between pastoralists Local actors in Darfur recognized that pastoral- and regional and national authorities. ists were relatively excluded from various forms of inter- national action on Darfur—humanitarian programming, In terms of human development, before the con- international peace processes, and international advo- flict fewer than 10% of pastoralist children attended pri- cacy campaigns. This prompted the first field-based mary school, while access to health services was similarly Feinstein's study since the conflict started that specifi- poor. Local leaders attributed their lack of political repre- cally focuses on pastoralists, and the Northern Rizaygat sentation and presence in local government structures to in particular. Apart from the politicized image of the their relatively poorer access to education and limited Northern Rizaygat as Janjaweed, other reasons for their land rights as compared with sedentary groups (which is exclusion are that they are physically hard to reach and why some are now pushing their people to settle in CONT PAGE 3 2

CONT FROM PG 2 Pastoralist Voices * OCHA RO-CEA Marginalization of Pastoralists in the Darfur conflict in Northern Sudan order to access schools and other services). While their ‘maladaptive’ livelihood strategies These tensions built up over a long time and may have broadened their livelihood options, and pushed the nomads into alliances and violence that strengthened certain livelihood capitals, other critical started to take shape at the end of the eighties, and was livelihood capitals—particularly, social, human, and politi- eventually manifested in their decision in early 2003 to cal capital—have been seriously diminished. The dis- join the government’s counterinsurgency. From 2003 placement of many rural farmers to towns and camps onwards, the livelihoods of the Northern Rizaygat were has given pastoralists the upper hand in these rural ar- directly affected as a result of their active recruitment by eas, but, at the same time, has removed a critical part of the government, their exclusion by the rebels, and the the social and economic fabric of their society. The ab- significant impact of conflict and insecurity on their liveli- sence of rural farming communities has destroyed local hoods. As a result of violent attacks, livestock raiding, markets, which nomads depend on to buy essential blocked migration routes, kidnappings, and killings, goods and sell their own produce. many were forced to move to safer areas, and many be- came displaced—a reality not generally acknowledged or The loss of social, human, and political capital reported. has further skewed their asset portfolio below the exist- ing, very low levels at the start of the war. This reflects their continuing and deepening marginalization since Pastoralism Under Threat 2003, and the vulnerability caused by militarization, con- striction of the pastoralist domain, dependence on a war The livelihoods of the Northern Rizaygat are going economy, and control of resources through violence. through rapid transition, which has been accompanied by sweeping changes in pastoralist lifestyles. The severe Nomadic camel-based pastoralism is seriously constriction of their pastoralist domain, accompanied by under threat as a livelihood system as a result of insecu- the blocking of livestock migration and trade routes by rity limiting migration, biased or unfavorable policies, insecurity, has badly affected their traditional livelihoods. pressures to settle, and the economic incentives of mal- Their seasonal migratory movements are restricted to adaptive strategies. The traditional goals of seeking safe zones, which denies them access to their favored status and power through camels and camel herding are pastures, particularly in the north. being replaced with more modern goals of seeking power associated with militarization and education. The control of this northern area of Darfur by the Zaghawa—a semi-nomadic, non-Arab people living in Darfur and Chad—has also blocked livestock trade with Libya and Egypt, an important source of livelihood for Ongoing Processes of Erosion, Exclusion, and Mis- many people. Most of this trade is now dominated by representation the Zaghawa. This restricted access has also negatively affected labor migration to Libya—another traditional In conclusion, a long-term perspective is needed in order livelihood strategy for the Northern Rizaygat. to understand current livelihoods, and how access to The increasing trend towards sedentarization of resources and power generate local tensions and con- nomads has been accompanied by some expanding into flict. We should not be distracted by spurious notions of maladaptive livelihood strategies, meaning short-term, ethnicity, disparaging attitudes towards nomads, and quick-return strategies that depend on the captive IDP demonization of the Northern Rizaygat for becoming market, distorted conflict-related economy, conflict, and embroiled in a conflict not of their making. violence. Rapid militarization, and the use of intimidation and violence as a means of controlling or restricting ac- Finally, international peace processes must be more cess to natural resources (e.g. forestry resources, access attentive to nomads/pastoralists. This requires getting to cultivable land) are examples of livelihood maladapta- to the heart of and really understanding local tensions tions that undermine the livelihoods of others. Fire- and conflicts, and links with national and international wood, especially in West Darfur, provides a significant level processes. This task is not just about looking back source of income for the increasingly sedentarized pas- at events of the past five years of conflict in Darfur. It toralists. must primarily focus on tackling deep-rooted processes of marginalization and unrepresentative governance The increasingly urbanized IDPs are constrained systems at all levels. by insecurity from themselves continuing to gather natu- ral resources such as firewood and animal fodder. These strategies are unsustainable in the longer term, because they are not based on legal rights and entitlements and Humanitarian actors are urged to take account therefore have no security or future. More seriously, of the particular vulnerability of pastoral groups, and to other evidence suggests that these strategies at times recognize that their needs are qualitatively different from depend on intimidation, violence, and coercion of other those of IDPs. Exclusion, neglect, and marginalization groups, thus inflicting serious harm and loss of liveli- are the unfortunate legacies of colonial and post-colonial hoods on others. These strategies are not the result of policies, which the international community, including sedentarization per se, but are linked directly with the humanitarian actors, must not continue to legitimize and conflict and its causes. The conflict is further exacerbated reinforce. and perpetuated by these extralegal, and sometimes criminal, acts linked to livelihoods.

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Pastoralist Voices * OCHA RO-CEA

CONT FROM PG 1 CONT FROM PG 3 Why humanitarian interventions are Marginalization of Pastoralists in the failing to address food crisis in pas- Darfur conflict in Northern Sudan toral area

Local peace initiatives are happening in Darfur Possible use of inappropriate indicators to determine and need to happen of their own accord and to be fos- onset of food crisis tered. They will have limited impact unless supported by wider systems of good governance. Strengthening governance at every level will help to promote and im- prove dialogue and consultation between citizens, civil society, and government, and enhance participation in policy formulation and implementation.

Good governance and respect for the rule of law is a prerequisite for lasting peace and for reversing long-term processes of political marginalization, eco- nomic impoverishment, and social exclusion. Thus, many of the specific recommendations in this report directly concern governance and government capaci- ties at all levels.

Recommendations for policies, programming and advocacy

The research outlines eight broad areas of recommen- dations intended to promote: Humanitarian workers and pastoralist community during consultations in Isiolo, Kenya. July 08 Photo: OCHA ROCEA • A participatory policy review of pastoralism in order to encourage policy coherence between Nutrition indicators are often used to measure the severity ministries concerned with pastoral issues. of food crises and trigger emergency responses. Nutrition indicators are, however, late indicators and do not enable • Space for local and national civil society to de- preventative interventions. A recent review of pastoral velop a comprehensive advocacy strategy on determinants of malnutrition observes that the diagnosis camel pastoralism and the economic importance of malnutrition and its severity in an area can depend on of the abbala to the national economy. the methodology that was used for the nutrition assess- ment. This has important implications for the value of nu- • Localization of the peace process and stronger trition indicators for early warning. Specifically, the review linkages from local- to higher-level peace initia- recommended an inquiry into the link between the levels tives. of malnutrition (measured by weight for height and by mid upper arm circumference (MUAC)) and functional • Linkages between pastoralist livelihoods and de- outcomes, such as morbidity and mortality in pastoral velopment: education, health, and women’s de- populations, which could help define appropriate ‘trigger’ velopment are priorities. levels for humanitarian response. Integrating livelihoods with nutrition indicators • Improved accountability, transparency, and re- improves the interpretation of nutrition results through sponsiveness through building the capacity of analysis of the association between livelihood patterns key governance institutions as the Sudanese gov- and nutrition outcomes. ernment’s Pastoral Commission and Women’s Integrated analysis of livelihoods and nutrition can help Commission. overcome the sometimes-erroneous attribution of child malnutrition to the single cause of inadequate food con- • Reversal of processes of militarization linked to sumption, overlooking poor health, hygiene and care livelihoods. practice. Where food insecurity is the main cause of mal- nutrition, livelihoods analysis establishes links between By Helen Young, Abdalmonim Osman, Ahmed Abusin, seasonality and nutrition and permits prediction (early Michael Asher and Omer Egemi . warning) of periods when malnutrition is likely to increase. This approach emphasizes the longer-term investment of resources over late and inappropriate short-term emer- gency interventions.

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CONT FROM PG 4 Pastoralist Voices * OCHA RO-CEA Why humanitarian interventions are failing to address food crisis in pastoral area

Pastoralist women in Karamoja fetching herbs. May,07 Photo: ECHO

Inconsistent assessment and analysis compro- mentary committees that develop policies for the develop- mises quality and reliability of information ment of pastoral areas have been formed in Kenya and Poor-quality and uncoordinated information systems Ethiopia. Demand for livestock and livestock products are undermine the reliability of assessment findings. increasing, and the adaptive capacity of pastoral systems to climate variability in the lowlands places pastoralists in a Various humanitarian actors have developed their stronger position than settled farmers. But the potential own assessment methodologies, and there has been a contribution of pastoralists to national and regional econo- proliferation of early warning systems. In Ethiopia, for mies still needs to be better recognized. Information sys- example there are at least 33 different early warning tems are only as good as the programme and policy plan- and food security surveillance systems using different ners who use them. Meeting information needs provides methodologies and often producing different results. only part of the solution to improving response. The key This delays the response because the reliability of challenge now is to build the capacity of decision-makers analysis comes into question, and assessment findings to use available information resources. Progress in food have to be verified. security analysis has laid a firm basis for committed long- term investment to improve policy and practice. Assessment practice and institutional response There are a number of implications from the above frameworks analysis for existing policies, policy makers and donors: The type of resources available restricts the range and • Emergency Preparedness must focus on protecting and objectives of the interventions that can be imple- promoting livelihoods mented. The mandates of the major humanitarian do- nors are to respond to and address ongoing food cri- • Promote the development and utilization of livelihoods ses. This means that funds are not available before a based information systems crisis, when mitigation interventions are required. While the recognition of the need for livelihood inter- • Develop longer-term intervention strategies. Shift from ventions is progressive, the primacy of immediate life- ‘emergency–relief’ paradigms of interventions to a strat- saving interventions is nevertheless clearly empha- egy that acknowledges the drought cycle, as the nor- sized, to the detriment of livelihood protection re- mal pattern in pastoral areas is necessary. sponses. • Improve the link between analysis and response. Key messages and policy implications There is increasing recognition of the value of pastor- alism across the Horn of Africa. Ministries and parlia-

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Pastoralist Voices * OCHA RO-CEA Making disarmament work in Pastoral areas of Southern Sudan

The recent pastoralist conflict in South Sudan demon- Civil society groups in Southern Sudan have strates the continued danger of conducting disarma- raised concerns about the way in which disarmament ment of one community and not the other, and makes has been implemented in some areas, and called for a the case for comprehensive and harmonized regional transparent and coordinated approach. The Government strategies on disarmament. of Southern On Saturday April 18, at least 177 people died A similar attempt in September 2008 Rumbek Central and many more injured in Akobo County in Southern County also failed. The disarmament was launched without Sudan following an attack by Murle armed rustlers from prior warning to the residents. The SPLA reportedly cordoned the same region. According to the member of parlia- off Rumbek town and conducted a house-to-house search. An- ment for Akobo town, twelve villages were burnt to gered by the process, civilians retaliated by engaging the sol- ashes and thousands of people displaced to Akobo diers in a shoot out in which several people were killed and town. many others wounded. The disarmament exercise was also The affected community of Nuers in Akobo called off. Disarmament attempts have also been criticized for were disarmed in December immediately after they had failure to be transparent on how arms that have been seized are disposed off. attacked the Murle but Murle were not disarmed so were able to carry out a revenge attack. This attack oc- The recent clashes in the Adobo were the second out- curred at 5.00 a.m at a season when the young men break of deadly violence between the two pastoralist groups in had all gone to graze their animals. The affected popula- Jungle in a month. In March, about 750 people were killed in tion were women, children, elderly unable to resist the clashes in Poor County, further south. Peacekeepers are exam- attack. Akobo is a vital town eastern of the State capital ining how they could better support those at risk of further Bor Town and one of the areas much hit during the two attacks particularly in a volatile area like Jungle State. decades south-north war of Sudan.

Disclaimer: The information in this document are consolidated from research and workshop findings and are subject to availability of current data. The articles provided do not necessarily reflect the views of the United Nations

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