Food Security in Protracted Crises: Building More Effective Policy Frameworks

This paper considers the principal elements that underpin policy frameworks for supporting food security in protracted crisis contexts. It argues that maintaining the food entitlements of crisis-affected populations must extend beyond interventions to ensure immediate human survival. A 'policy gap' exists in that capacities for formulating policy responses to tackle the different dimensions of food insecurity in complex, fluid crisis situations tend to be weak. As a result, standardised, short-term intervention designs are created that fall short of meeting the priority needs of affected populations in the short and long term and only partially exploit the range of policy options available. The paper discusses key attributes of agency frameworks that could support more effective policy processes to address longer term as well as immediate food security needs. Additionally, it points to some main challenges likely to be encountered in developing such frameworks and, with the participation of beneficiaries, translating them into effective action.     

War and Food Security in Eritrea and Ethiopia, 1998–2000

This paper examines the 1998–2000 'border' war between Eritrea and Ethiopia and its continuing legacies from the perspective of food security.¹ Focusing on the food crisis that hit both countries during the same period and was allowed to develop into a famine in southeast Ethiopia, it argues that this was linked with the war in more ways than hitherto recognised. Such connections can be appreciated only by taking a longer-term view of the decline of the rural economy of which this food crisis was part, factoring in the role played by this and other conflicts that have flared up in the region. An analysis of this kind might have helped donors and aid agencies to respond more effectively both to short-term humanitarian needs in the midst of an inter-state war and to the need for longer-term support for food security in a region beset by endemic conflict.     

Matching Food Security Analysis to Context: the Experience of the Somalia Food Security Assessment Unit

This case study reviews the experience of the Somalia Food Security Assessment Unit (FSAU) of operating a food security information system in the context of a complex emergency¹ In particular, it explores the linkages between selected features of the protracted crisis environment in Somalia and conceptual and operational aspects of food security information work. The paper specifically examines the implications of context characteristics for the establishment and operations of the FSAU field monitoring component and for the interface with information users and their diverse information needs. It also analyses the scope for linking food security and nutrition analysis and looks at the role of conflict and gender analysis in food security assessment work. Background data on the food security situation in Somalia and an overview of some key features of the FSAU set the scene for the case study. The paper is targeted at those involved in designing, operating and funding food security information activities.     

Livelihoods,power, and food insecurity: adaptation of social capital portfolios in protracted crises—case study Burundi

The failure of food security and livelihood interventions to adapt to conflict settings remains a key challenge in humanitarian responses to protracted crises. This paper proposes a social capital analysis to address this policy gap, adding a political economy dimension on food security and conflict to the actor‐based livelihood framework. A case study of three hillsides in north Burundi provides an ethnographic basis for this hypothesis. While relying on a theoretical framework in which different combinations of social capital (bonding, bridging, and linking) account for a diverse range of outcomes, the findings offer empirical insights into how social capital portfolios adapt to a protracted crisis. It is argued that these social capital adaptations have the effect of changing livelihood policies, institutions, and processes (PIPs), and clarify the impact of the distribution of power and powerlessness on food security issues. In addition, they represent a solid way of integrating political economy concerns into the livelihood framework.     

The health sector gap in the southern Africa crisis in 2002/2003

The southern Africa crisis represents the first widespread emergency in a region with a mature HIV/AIDS epidemic. It provides a steep learning curve for the international humanitarian system in understanding and responding to the complex interactions between the epidemic and the causes and the effects of this crisis. It also provoked much debate about the severity and causes of this emergency, and the appropriateness of the response by the humanitarian community. The authors argue that the over-emphasis on food aid delivery occurred at the expense of other public health interventions, particularly preventative and curative health services. Health service needs were not sufficiently addressed despite the early recognition that ill-health related to HIV/AIDS was a major vulnerability factor. This neglect occurred because analytical frameworks were too narrowly focused on food security, and large-scale support to health service delivery was seen as a long-term developmental issue that could not easily be dealt with by short-term humanitarian action. Furthermore, there were insufficient countrywide data on acute malnutrition, mortality rates and performance of the public health system to make better-balanced evidence-based decisions. In this crisis, humanitarian organisations providing health services could not assume their traditional roles of short-term assistance in a limited geographical area until the governing authorities resume their responsibilities. However, relegating health service delivery as a long-term developmental issue is not acceptable. Improved multisectoral analytical frameworks that include a multidisciplinary team are needed to ensure all aspects of public health are dealt with in similar future emergencies. Humanitarian organisations must advocate for improved delivery and access to health services in this region. They can target limited geographical areas with high mortality and acute malnutrition rates to deliver their services. Finally, to address the underlying problem of the health sector gap, a long-term strategy to ensure improved and sustainable health sector performance can only be accomplished with truly adequate resources. This will require renewed efforts on part of governments, donors and the international community. Public health interventions, complementing those addressing food insecurity, were and are still needed to reduce the impact of the crisis, and to allow people to re-establish their livelihoods. These will increase the population's resilience to prevent or mitigate future disasters.     

The social context of childcare practices and child malnutrition in Niger's recent food crisis

In 2004–05, Niger suffered a food crisis during which global attention focused on high levels of acute malnutrition among children. In response, decentralised emergency nutrition programmes were introduced into much of southern Niger. Child malnutrition, however, is a chronic problem and its links with food production and household food security are complex. This qualitative, anthropological study investigates pathways by which children are rendered vulnerable in the context of a nutritional 'emergency'. It focuses on household-level decisions that determine resource allocation and childcare practices in order to explain why practices apparently detrimental to children's health persist. Risk aversion, the need to maintain self-identity and status, and constrained decision making result in a failure to invest extra necessary resources ingrowth-faltering children. Understanding and responding to the social context of child malnutrition will help humanitarian workers to integrate their efforts more effectively with longer-term development programmes aimed at improving livelihood security.     

Resilience from the ground up: how are local resilience perceptions and global frameworks aligned?

Numerous resilience measurement frameworks for climate programmes have emerged over the past decade to operationalise the concept and aggregate results within and between programmes. Proxies of resilience, including subjective measures using perception data, have been proposed to measure resilience, but there is limited evidence on their validity and use for policy and practice. This article draws on research on the Decentralising Climate Funds project of the Building Resilience and Adaptation to Climate Extremes and Disasters programme, which supports communities in Mali and Senegal to improve climate resilience through locally controlled adaptation funds. It explores attributes of resilience from this bottom‐up perspective to assess its predictors and alignment with food security, as a proxy of well‐being. We find different patterns when comparing resilience and the well‐being proxy, illustrating that the interplay between the two is still unclear. Results also point to the importance of contextualising resilience, raising implications for aggregating results.     

Food aid and food crisis in Sub-Saharan Africa: Statistical trends and implications*

This paper documents the rapid expansion and changes in food aid flows to Sub-Saharan Africa up to mid-1985. Trends for Sub-Saharan Africa as a whole and for the more seriously affected countries are examined, as are the comparative experiences of food aid of individual countries in the region. Table 11 lists the Sub-Saharan African countries and indicates the most seriously affected food-short countries, as defined by the WFP/FAO task force. It should be borne in mind that some practical problems exist in compiling data on food aid. These include lack of availability of reliable data, especially of most recent data; lack of common terminology and definitions; and different accounting systems. These data problems are sometimes a source of confusion. However, the basic facts are clear: food aid gradually emerged during the early 1980s as a resource too often of considerable significance to many countries of Sub-Saharan Africa. These trends were only accelerated with the crisis of 1984-1985. These facts provide a point of reference for further analysis of the sources of the crisis, its actual dimensions and consequences.     

Food Crises, Crisis Response and Emergency Preparedness: The Sudan Case

Food security problems should be seen as "normal" in and endemic to subsistence agricultural groups in semi-arid zones of developing countries. Natural, popular response mechanisms exist that address these problems when they are at "normal" levels. All response mechanisms in developing countries can be expected to be swamped in times of a major food emergency. During major crises international relief assistance will continue to play a crucial role. Attempts at imposing centralized, institutional social security systems that address the normal "pockets of need" syndrome will be extremely expensive, not self-sustaining, and prone to failure. In that these efforts may undermine natural response mechanisms and draw scarce resources away from more logical, decentralized relief agencies these efforts may prove dangerously counter-productive.     

Violence and complex humanitarian emergencies: implications for livelihoods models

This paper explores the nature of the violence that characterises complex humanitarian emergencies and the related implications for modelling livelihoods systems. While noting the importance of livelihoods approaches in complex humanitarian emergencies, it deliberates the limitations of sustainable livelihoods frameworks when applied in environments marked by protracted instability. Adaptations to the model are discussed, with a particular focus on the relationships among violence, assets and liabilities within livelihoods systems. Political economy of violence theories intimate that the assets on which livelihoods systems are constructed in peaceful times may instead become life-and livelihood-threatening liabilities in periods of conflict. Adaptations to livelihood systems in violent settings require that analysts consider violence from policy, institutional and process perspectives. It is suggested that vulnerability should be re-conceptualised as endogenous to livelihoods systems in violent settings. Building on the work of others, a livelihoods model adapted for complex humanitarian emergencies is presented.     

Malnutrition in Emergencies: How Can We Do Better and Where Do the Responsibilities Lie?

Over many years, the international relief system has been repeatedly criticised in terms of slowness of response, poor inter-agency co-ordination, and technical incompetence on a larger or smaller scale. Notwithstanding many initiatives to improve co-ordination and other aspects of international relief performance, relief failures, including epidemic malnutrition, continue to occur. The reasons for these failures are discussed from the perspective of the characteristics of the international system, and the way in which this would be expected to perform under different conditions. The chief limitations of the international system identified are: the lack of any focus for imposing co-ordination, other than governments of affected countries; the lack of any requirement for donor nations to ensure that adequate resources are supplied; and a tendency for the system to respond uncritically to the international media. A broad typology of international responses is proposed. It is suggested that relief failure can be recast in terms of the lack of any system which can ensure the correct allocation of food and other resources between emergencies, and ensure the systematic distribution of such resources as are supplied. It concludes that the scope for further improvement in the performance of the international relief system is now limited, but that the most promising area for investment would, where possible, support governments in affected countries to take greater control of the management of the international relief system.     

Food Security Reserve Policy in Ethiopia: A Case Study of Experience and Implications

Food security reserve policy in Ethiopia since 1982 is reviewed in the light of the limited progress made elsewhere in Africa in establishing and maintaining such reserves. While the reserve played some role in dealing with the crisis of 1987/8, donor confidence was eroded by unauthorised drawings from the reserve and other factors. In 1992, the Ethiopian Food Security Reserve Authority was established to provide a system of management more acceptable to donors. This had led to donor pledges to replenish the reserve, though it remains well below the target level. Despite increased government commitment of funds, donor confidence remains fragile and the reserve remains dependent on donor support. The place of the reserve in national food security policy is not yet fully defined. Conclusions are drawn for food security reserve policy in Ethiopia and elsewhere in Africa.     

Living with transience in high-risk humanitarian spaces: the gendered experiences of international staff and policy implications for building resilience

Deployment in a crisis zone is a perilous undertaking. Little is known right now about how humanitarian workers relate social and professional goals to lived experiences of high-risk environments. In South Sudan, ranked as the most dangerous country globally for aid workers, 20 international humanitarian staff were interviewed to examine their sense of place, well-being, and vocation, using thematic and interpretative phenomenological analysis. Subjectivities of humanitarian space hinged upon negotiating physical hardships and social relationships: Juba, the capital, was described as a ‘prison’ and a ‘party hotspot’. For expatriate staff, making sense of spatial, social, and professional transience was sharply gendered and rooted in the subjectivities of risk-taking, crisis management, and career-building. Two policy measures are highlighted here to address the implications of transience for human well-being and organisational effectiveness. Efforts to support teams and structure work environments, altering the humanitarian and vocational bubble, will help to develop resilience at the heart of humanitarian systems.     

An Account of Co-ordination Mechanisms for Humanitarian Assistance During the International Response to the 1994 Crisis in Rwanda

This paper examines the co-ordination strategies developed to respond to the Great Lakes crisis following the events of April 1994. It analyses the different functions and mechanisms which sought to achieve a co-ordinated response – ranging from facilitation at one extreme to management and direction at the other. The different regimes developed to facilitate co-ordination within Rwanda and neighbouring countries, focusing on both inter-agency and inter-country co-ordination issues, are then analysed. Finally, the paper highlights the absence of mechanisms to achieve coherence between the humanitarian, political and security domains. It concludes that effective co-ordination is critical not only to achieve programme efficiency, but to ensure that the appropriate instruments and strategies to respond to complex political emergencies are in place. It proposes a radical re-shaping of international humanitarian, political and security institutions, particularly the United Nations, to improve the effectiveness of humanitarian and political responses to crises such as that in the Great Lakes.     

Looking beyond food aid to livelihoods, protection and partnerships: strategies for WFP in the Darfur states

The humanitarian crisis in Darfur remains extremely serious. The optimism that followed the signing of the Abuja Peace Accord was followed by a rapid deterioration in security on the ground in part associated with increasing factionalism in various rebel movements. This paper briefly reviews the evolution of the crisis, its impact on lives and livelihoods and the response by the World Food Programme (WFP) to June 2006. The major challenges and issues facing the food aid programme in the previous 18 months included: dealing with insecurity while maintaining or even extending programme outreach; the need to link protection with assistance more explicitly; and determining the wider impact of food aid programming on the processes and institutions linked with the conflict. The paper discusses the main strategic issues facing WFP in the future such as: integrating security and protection with needs assessments and operational decisions, broadening response strategies beyond food aid and bringing livelihoods to the fore, the need to review cost-efficiency, promoting partnerships and strengthening national and regional capacities.     

Humanitarian Crises: What Determines the Level of Emergency Assistance? Media Coverage,Donor Interests and the Aid Business

This paper proposes a basic hypothesis that the volume of emergency assistance any humanitarian crisis attracts is determined by three main factors working either in conjunction or individually. First, it depends on the intensity of media coverage. Second, it depends on the degree of political interest, particularly related to security, that donor governments have in a particular region. Third, the volume of emergency aid depends on strength of humanitarian NGOs and international organisations present in a specific country experiencing a humanitarian emergency. The empirical analysis of a number of emergency situations is carried out based on material that has never been published before. The paper concludes that only occasionally do the media play a decisive role in influencing donors. Rather, the security interests of Western donors are important together with the presence and strength of humanitarian stakeholders, such as NGOs and international organisations lobbying donor governments.     

Getting the Scale Right: A Comparison of Analytical Methods for Vulnerability Assessment and Household-level Targeting

This paper introduces broad concepts of vulnerability, food security and famine. It argues that the concepts and theories driving development and implementation of vulnerability assessment tools are related to their utility. The review concludes that socio-geographic scale is a key issue, and challenge. It analyses three vulnerability assessment (VA) methods, using Ethiopia as a case study. Facing the challenges of vulnerability assessment and early warning requires providing accurate information at the required scale, useful for multiple decision-makers within realistic institutional capacities.     

A 'Principled' Approach to Complex Emergencies: Testing a New Aid Delivery Model in the Nuba Mountains

This paper provides an analysis of the Nuba Mountains Programme Advancing Conflict Trans-formation (NMPACT) as an example of an operational response in a complex emergency that innovatively addressed an incipient food security crisis. NMPACT is notable for having brought together an array of actors around a common principled agenda and for being the only operational programme in the Sudan to which both warring parties subscribed during the conflict. The key features of the programme are presented and the main innovative elements are reviewed, including the role of the principles of engagement and the 'political humanitarianism' of NMPACT. The paper looks at how NMPACT broke from traditional externally driven responses to food insecurity, and, drawing on lessons from Operation Lifeline Sudan, adopted an approach that focuses on capacity building, sustainable agriculture and market revitalisation, alongside conflict transformation and peace-building. The limitations of the model are also assessed, and preliminary lessons regarding its replication in other complex emergency contexts are presented.     

From Policy to Practice: Challenges in Infant Feeding in Emergencies During the Balkan Crisis

The preparation and dissemination of policy statements are necessary but insufficient to prevent the inappropriate use of infant-feeding products in emergencies. The widespread failure of humanitarian agencies operating in the Balkan crisis to act in accordance with international policies and recommendations provides a recent example of the failure to translate infant-feeding policies into practice. This article explores the underlying reasons behind the failures which include: (1) the weak institutionalisation of policies; (2) the massive quantities of unsolicited donations of infant-feeding products: (3) the absence of monitoring systems; (4) inadequate co-ordination mechanisms; (5) the high costs of correcting mistakes; and (6) the cumulative effects of poor practice. Efforts to uphold best practice during the crisis are also documented. Finally, the article identifies actions that could be undertaken in advance of and during future emergencies to enhance the application of infant feeding policies in emergencies.     

The impact of the Gulf crisis on Qatar's humanitarian sector

The 2017 Gulf crisis is one of the most challenging episodes faced by Qatar since its independence in 1971, with major economic, social, and political impacts on the Arab Gulf nation. Its economic prognosis has been brought into doubt, the map of regional alliances has been redrawn, and any prospects of deeper regional integration have been dashed. This paper analyses the little-documented impact of the crisis on Qatar's humanitarian sector, which has unfolded as the small, gas-rich emirate has striven to become a major humanitarian donor. It concludes that while there have been disruptions to humanitarian operations and regional coordination, the Gulf crisis has triggered and in some cases accelerated already intended reforms across the Qatari humanitarian sector. In the long term, the reorganisation and adaptation implemented to weather the storm of the crisis may help Qatar to emerge from the crisis with a more sustainable and resilient humanitarian sector.