Beyond Relief Beyond Beyond Relief Beyond Relief Food Security in Protracted Crises Food Security Food Security in Protracted Crises In many countries, prolonged conflicts result in food emergencies that recur over years or even decades. Initial humanitarian relief efforts are rarely replaced by programmes that offer a longer-term perspective on food security. This book provides examples of opportunities to bridge the gap between emergency relief and longer term developmental approaches, which can in Protracted Crises help us rethink how to support food security in protracted crises. Somalia, Sudan and the Democratic Republic of Congo have all been affected by severe protracted crises. For the first time, evidence and in-depth analysis from these countries sheds light on how to support the livelihoods of local populations. Using concrete examples, Beyond Relief demonstrates how food security means different things in different contexts while also advocating a crosscutting learning process for longer-term approaches to protracted crisis. Essential reading for donors, policymakers, NGO workers and researchers working on food security. Luca Alinovi is a Senior Agricultural Economist at the Food and Agriculture Organization of the United Nations and Programme Manager of the EC-FAO Food Security Information for Action Programme. Günter Hemrich has worked as a Food Systems Economist with FAO, focusing on food security issues in crisis situations. He is currently Programme Coordinator for FAO’s Economic and Social Development Department. Russo Luca & Hemrich Luca Alinovi, Günter Luca Russo is an Agricultural Economist with over twenty of experience in agricultural development and food security issues. He currently works as a Food Security Analyst in the EC-FAO Food Security Information for Action Programme. ‘A must-read book for humanitarian and development professionals working in protracted crisis settings. This book marries sound analysis of the context and drivers of food insecurity in protracted crisis settings with useful case studies from the most important problem areas in Africa.’ Dr Nancy Mock, Associate Professor, and Head of the Interdepartmental Program in Complex Emergency and Disaster Studies at Tulane University, USA. ‘This book’s combination of political realism and scientific rigor is a welcome change and is no more than the citizens caught up in protracted crises deserve.’ Dr Peter Walker, Irwin H. Rosenberg Professor of Nutrition and Human Security, Friedman School of Nutrition Science and Policy, Tufts University, USA. ‘This book has a lot to offer and key achievements and challenges are clearly and consistently articulated.’ Professor Johan Pottier, SOAS Food Studies Centre, London University. ‘This book provides a nuanced understanding and a framework for systematic analysis of food security and vulnerability of households exposed to protracted violent conflict.’ Luka Biong Deng, Minister of Presidential Affairs, Government of Southern Sudan, Juba Luca Alinovi, Günter Hemrich & Luca Russo Beyond Relief Beyond Relief Food Security in Protracted Crises Edited by Luca Alinovi, Günter Hemrich and Luca Russo Intermediate Technology Publications Ltd trading as Practical Action Publishing Schumacher Centre for Technology and Development Bourton on Dunsmore, Rugby, Warwickshire CV23 9QZ, UK www.practicalactionpublishing.org © FAO, 2008 ISBN 978 1 85339 660 1 (Practical Action Publishing) ISBN 978 9 25105 589 2 (FAO) All rights reserved. Reproduction and dissemination of material in this information product for educational or other non-commercial purposes are authorized without any prior written permission from the copyright holders provided the source is fully acknowledged. Reproduction of material in this information product for resale or other commercial purposes is prohibited without written permission of the copyright holders. Applications for such permission should be addressed to the Chief, Electronic Publishing Policy and Support Branch, Communication Division, FAO, Viale delle Terme di Caracalla, 00100 Rome, Italy or by e-mail to [email protected] A catalogue record for this book is available from the British Library. The contributors have asserted their rights under the Copyright Designs and Patents Act 1988 to be identified as authors of their respective contributions. Since 1974, Practical Action Publishing has published and disseminated books and information in support of international development work throughout the world. Practical Action Publishing (formerly ITDG Publishing) is a trading name of Intermediate Technology Publications Ltd (Company Reg. No. 1159018), the wholly owned publishing company of Intermediate Technology Development Group Ltd (working name Practical Action). Practical Action Publishing trades only in support of its parent charity objectives and any profits are covenanted back to Practical Action (Charity Reg. No. 247257, Group VAT Registration No. 880 9924 76). The designations employed and the presentation of material in this publication do not imply the expression of any opinion whatsoever on the part of the Food and Agriculture Organization of the United Nations concerning the legal status of any country, territory, city or area or of its authorities, or concerning the delimitation of its frontiers or boundaries. The mention of specific companies or products of manufacturers, whether or not these have been patented, does not imply that these have been endorsed or recommended by FAO in preference to others of a similar nature that are not mentioned. The views expressed herein are those of the authors and do not necessarily represent those of FAO. Produced with financial support from the EU. Cover image © FAO/6098/H. Null Cover design by Mercer Design Typeset by SJI Services Printed by Replika Press Contents Preface vii P. Pingali Acknowledgements xi Tables, boxes and figures xiii Acronyms and abbreviations xv Contributors xvii 1 Food security in protracted crisis situations: Issues and challenges 1 Luca Russo, Günter Hemrich, Luca Alinovi and Denise Melvin PART I: Case Studies from Sudan 2 Crisis and food security profile: Sudan 13 Luca Russo 3 Responding to protracted crises: The principled model of NMPACT in Sudan 25 Sara Pantuliano 4 Policies, practice and participation in protracted crises: The case of livestock interventions in southern Sudan 65 Andy Catley, Tim Leyland and Suzan Bishop PART II: Case Studies from Somalia 5 Crisis and food security profile: Somalia 97 Peter D. Little 6 Livelihoods, assets and food security in a protracted political crisis: The case of the Jubba Region, southern Somalia 107 Peter D. Little 7 Livestock and livelihoods in protracted crisis: The case of southern Somalia 127 Suzan Bishop, Andy Catley and Habiba Sheik Hassan PART III: Case Studies from the Democratic Republic of the Congo 8 Crisis and food security profile: The Democratic Republic of the Congo 157 Koen Vlassenroot and Timothy Raeymaekers 9 Conflict and food security in Beni-Lubero: Back to the future? 169 Timothy Raeymaekers vi BEyond RELiEf 10 Land tenure, conflict and household strategies in the eastern Democratic Republic of the Congo 197 Koen Vlassenroot PART IV: Conclusions 11 Beyond the blueprint: Implications for food security analysis and policy responses 223 Luca Russo, Luca Alinovi and Günter Hemrich Notes 239 Index 249 Preface Over the years, it has become clear to many working in humanitarian and development fields that an increasing number of crises do not fall neatly into either of these broad categories. This is particularly true for protracted crisis situations where what were originally considered emergency situations continued over years and even decades. Indeed, it soon became clear that there was a huge policy gap and a lack of suitable frameworks to guide response and longer-term programming in these complex and volatile situations. Therefore, many leading practitioners came together in 2003 in a FAO-sponsored workshop called: ‘Food Security in Complex Emergencies: building policy frameworks to address longer-term programming challenges.’ Discussions at the workshop clearly pointed out the need for more evidence-based research and information regarding protracted crises. It was therefore decided to commission a series of in-depth case studies on Somalia, Sudan and the Democratic Republic of Congo. All three contexts are notoriously difficult to document as they are extremely volatile, with complex dynamics that are often completely opaque to outside observers. The few attempts made to understand these crises have often been hindered by a lack of information and suitable frameworks, while interventions have been hampered by real danger, including open conflict, and the collapse of institutions. Not surprisingly then, interventions have often been inappropriate and based on generic approaches. And yet, the case studies in this book clearly show that these are precisely the situations where analysis and response cannot be generic and must be based on a deep understanding of the local contexts and structural factors which caused the crises in the first place. As in many other protracted crisis situations, these case studies show that there has often been a weak link between emergency response and longer- term rehabilitation and development. In fragile states, which often exist in protracted crisis situations, entry points for intervention may not be clear as the state may be very weak or even non-existent. Emergency assistance is usually externally driven,