Pastoralism and Conflict in the Sudano-Sahel: A Review of the Literature Leif Brottem Andrew McDonnell July 2020 Pastoralism and Conflict in Sudano-Sahel: A Review of the Literature 1 About the Authors Leif Brottem ([email protected]) is Assistant Professor of Global Development Studies at Grinnell College in Iowa [USA]. He holds a PhD in Geography from the University of Wisconsin-Madison and has been doing grassroots development work, consulting, and scholarly research in West and Central Africa for the past eighteen years. Andrew McDonnell is Senior Officer with Search for Common Ground. This report is issued by Search for Common Ground as part of the projectPartnership for Stability and Security in the Sudano-Sa- hel, with the generous support of the U.S. State Department, Bureau of Conflict and Stabilization Operations. The goal of this project is to inform stabilization and development efforts in communities across the Sudano-Sahel affected by cross-border farmer-herder conflict by identifying proven, data-informed methods of conflict transformation. Thanks to our colleagues who contributed to the research and review, including Shidiki Abubakar Ali, Madeleine Breunig, Michele Nori, Christopher Okelo, Catalina Quintero, Paul Ronan, Pam Rosen, as well as Search’s Global Affairs and Partner- ships and Institutional Learning teams and representatives of our country offices in Burkina Faso, Central African Republic, Democratic Republic of the Congo, Mali, Niger, Nigeria, and South Sudan. The views expressed in this report are those of the authors alone and do not represent the institutional position of Search for Common Ground. © 2020 Search for Common Ground This publication may be reproduced in whole or in part and in any form without permission from Search for Common Ground, provided the reproduction includes this Copyright notice and the Disclaimer below. No use of this publication may be made for resale or for any other commercial purpose whatsoever without prior permission in writing from Search for Common Ground. This publication should be cited as follows:Brottem, Leif and Andrew McDonnell. (2020). Pastoralism and Conflict in the Sudano-Sahel: A Review of the Literature, 1st ed. Washington DC: Search for Common Ground. Pastoralism and Conflict in Sudano-Sahel: A Review of the Literature 2 Contents About the Authors ........................................................................................................................................................................................................... 1 Key Findings .........................................................................................................................................................................................................................3 Introduction ..........................................................................................................................................................................................................................4 Outline ................................................................................................................................................................................................................................5 Methodology and Scope .......................................................................................................................................................................................5 A Note on Terminology ........................................................................................................................................................................................... 7 Section I – Resource Competition and Adaptation ...............................................................................................................................8 Scarcity ..............................................................................................................................................................................................................................9 Climate Change and Shifting Movements ............................................................................................................................................. 10 Adaptation and Erosion of Farmer-Herder Symbiosis ..............................................................................................................12 Section II – Governance, Law, and Dispute Resolution ....................................................................................................................18 Review of Regional and National Policies ..............................................................................................................................................19 Flexibility and Territorial Control.................................................................................................................................................................. 22 Local Conflict Management ............................................................................................................................................................................23 Predatory Practices and Marginalization .............................................................................................................................................27 Section III – “New Fringe Pastoralism” ........................................................................................................................................................ 28 Extremism and Insurgency ............................................................................................................................................................................. 29 Self-Protection .......................................................................................................................................................................................................... 31 Section IV – Areas for Further Research ...................................................................................................................................................35 References ........................................................................................................................................................................................................................36 Pastoralism and Conflict in Sudano-Sahel: A Review of the Literature 3 Key Findings This report is a cross-sectoral review of research intended to synthesize the principal debates and trends on conflicts relating to pastoralism across Sudano-Sahelian West and Central Africa. The findings below represent overarching takeaways from this review, which manifest differently across the various contexts included in this study. Conflicts involving pastoralist populations are inti- Existing localized systems of dispute resolution and re- mately linked to macro-economic and environmental source management have proven effective in helping to shifts in the Sudano-Sahel. However, there is not suffi- manage conflict, but they are not necessarily a panacea. cient evidence to suggest that the scarcity of resourc- The efficacy of local institutions and authorities (custom- es or climate pressures are the primary cause of these ary or statutory) can be undermined by many of the en- conflicts. These pressures are important, but they are demic challenges that affect rural governance across the unfolding in the background of socioeconomic and po- region broadly (corruption, impunity, politicization, legal litical issues that are generally seen to be at the heart of pluralism). Further, many of the existing systems that are conflicts involving pastoralists. rooted in longstanding customary practices may not be sufficiently suited to deal with the current scale of violence In many contexts, the relationships between mobile and criminality. pastoralists and sedentary rural communities, who have historically shared landscapes and resources, Pastoral livelihoods are often closely linked with culture are degrading in ways that create conditions for violent and identity, and ethnic and religious divisions between conflict. In part, these relations are stressed as individu- pastoralist groups and others are sometimes used to jus- als and communities adapt to new economic realities by tify exclusionary politics and escalate intercommunal diversifying their livelihoods, settling down, or increas- conflicts. However, the drivers of conflict should not be ing private ownership of land. However, this deteriora- essentialized as solely motivated by identity, as tensions tion can also be seen as the result of a lack of credible between identity groups are shaped by material consider- actors or institutions to mediate and manage increasing ations as well. competition over resources. Mobile pastoralists often exist in positions of political or Across the Sudano-Sahel, social relations and espe- economic vulnerability – whether due to historic neglect, cially group membership determine one’s access to re- the need to move through insecure spaces, or the need to sources, and rural development policies that are seen access resources through secondary rights – and that vul- to privilege or disadvantage one group over others nerability has been frequently exploited by both corrupt have become flashpoints for conflict. As governments or abusive authorities and non-state armed groups. These take steps to control movement or land use, many pas- experiences