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.     

Conflict-related mortality: an analysis of 37 datasets

Mortality rates are among the main indicators of the human impact of armed conflict and many surveys have assessed this impact both for targeting and evaluating humanitarian aid programmes. Almost no epidemiological analysis such as calculating relative risk was performed nor were reference values clearly described. Here the aim is to review published mortality rates for a better understanding of age-specific mortality in armed conflict. Published mortality rates from conflict situations were collected and pre-conflict reference rates composed. We calculated the relative risk of dying in conflict compared to pre-conflict for children under 5 and people older than five years old. Although limited by reporting inadequacies, the results confirm the high vulnerability of children < 5 but identify a higher relative risk of dying among the > or = 5 year olds. Although not entirely new, this observation is not fully understood. Further systematic epidemiological research is needed to estimate and understand the impact of armed conflict on mortality.     

Complexity,continuity and change: livelihood resilience in the Darfur region of Sudan

Darfur farming and pastoralist livelihoods are both adaptations to the environmental variability that characterises the region. This article describes this adaptation and the longer‐term transformation of these specialised livelihoods from the perspective of local communities. Over several decades farmers and herders have experienced a continuous stream of climate, conflict and other shocks, which, combined with wider processes of change, have transformed livelihoods and undermined livelihood institutions. Their well‐rehearsed specialist strategies are now combined with new strategies to cope. These responses help people get by in the short term but risk antagonising not only their specialist strategies but also those of others. A combination of factors has undermined the former integration between farming and pastoralism and their livelihood institutions. Efforts to build resilience in similar contexts must take a long‐term view of livelihood adaptation as a specialisation, and consider the implications of new strategies for the continuity and integration of livelihood specialisations.     

From food aid to livelihoods support: rethinking the role of WFP in eastern Sudan

Despite more than 20 years of distribution of free emergency food in eastern Sudan (38 years in the case of refugees) Global Acute Malnutrition rates are currently the highest in the country. There has been no real improvement in the chronic livelihoods vulnerability that affects people in the region—particularly pastoralists. Food security must be seen from an informed livelihoods perspective. While food aid may still be required as part of transition, WFP must rethink its assistance strategy and advocate for complementarity in the efforts by development actors working across a range of sectors. Alternative models and interventions focused on the rehabilitation of markets and the development of' cargo nets' for the destitute, including cash transfers, must be developed and tested. Land tenure issues should be given particular attention. Food aid will probably remain an important element in the overall response, but its significance relative to other less developed forms of interventions should be reassessed.     

From Relief to Development: The Long-term Effects of 'Temporary' Accommodation on Refugees and Displaced Persons in the Republic of Croatia

The increasing scale of international intervention in conflict is generating new pressures on the humanitarian community. Increased expenditure on emergency relief, static levels of overseas development aid and subsequent lack of funds for development are dictating that agencies design relief projects that positively effect developmental reconstruction.
This paper examines the provision of shelter for refugees and displaced persons in the Republic of Croatia and identifies ways in which it has encouraged and discouraged sustainable reconstruction. It argues that to promote lasting reconstruction, programmes must focus on saving livelihoods as well as lives, thus minimising the long-term psychological and physical impacts of aid on refugees, displaced persons and host communities.     

Food Targeting in Darfur: Save the Children Fund's Programme in 1986*

Emergency food aid has usually, if at all, been targeted through feeding centres. In Darfur, Sudan, SCF targeted food aid to the population on the basis of comprehensive household data. The decision to use this approach was taken in 1986 following the failure of both feeding centres and general distribution to meet emergency needs in 1984/85. This report outlines the development of the food targeting system and the types of data used for making allocations. Further research is required in order to find solutions to questions raised by the experience, such as: How can NGOs and government authorities arrive at a definition of need which is acceptable to local government and donors?; What is the most practical method for implementing a targeted programme to a proportion of the population?; Should individuals be given assistance which will enable them to remain in non-productive areas?; and would direct market intervention, food for work, or cash distribution be a more effective and less disruptive form of emergency aid in famine areas?     

Nutritional Assessments, Food Security and Famine

The widely held view that malnutrition is a late indicator of famine is challenged on the basis of evidence that people often deliberately reduce their food intake as an early response to inadequate food security. This broadens the possible interventions in response to high malnutrition rates to include measures to support livelihoods under threat of collapse. In the late stages of famine, social disruption and distress migration often result in a degraded health environment which may raise the threshold of nutritional status associated with an increased mortality risk. It is important to assess the underlying causes of malnutrition and the associated health risks. At present, the main objective of nutrition surveys is usually to obtain a reliable estimate of the prevalence of malnutrition among children under five years of age, with little analysis of the underlying causes of malnutrition. Experience from the 1984-85 famine in Darfur led to the development of an alternative approach to nutritional assessment which could be applicable elsewhere in Africa. The combination of quantitative and qualitative methods was particularly valuable as a means of gaining a wider and deeper understanding of the nature of the nutritional situation.     

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.     

The Role of Food Aid in Drought and Recovery: Oxfam's North Turkana (Kenya) Drought Relief Programme, 1992–94

Regional droughts carry the seeds of catastrophe: the immediate risk is famine; the long-term risk is destitution. Preventing both situations is an appropriate, if not essential, goal for relief agencies. In the past, responses to hunger in Turkana District (north-west Kenya) have taken the form of traditional feeding programmes. A better understanding of the boom/bust cycles in pastoralist systems has, however, produced new relief strategies. A central tenet of these strategies is the acceptance that relief aid should assume two roles: humanitarian—to overcome food deficits—and economic—to overcome 'income' deficits. Arguments in favour of a broader role for food aid are tested with a case study of a drought relief programme in north Turkana between 1992–1994. Field studies confirmed that when food aid is integrated as an asset into household resources, it can strengthen economic recovery. Ultimately, the extent to which relief operations are able to protect both people's lives and their livelihoods is the key to more sustainable development in drought-prone areas.     

Participation,political economy and protection: food aid governance in Darfur,Sudan

Humanitarian food assistance aims to meet short‐term emergency needs, yet often it is sustained over many years and develops its own systems and infrastructure that interact with local governance and local communities. This paper explores the links between participation and local governance, as well as the implications for exclusion of certain groups, the dignity of those involved, and protection issues. The paper proposes a framework for reviewing the governance functions and capacities of local Food Relief Committees, based on the following criteria: accountability; gender equity; legitimacy and authority; representativeness; responsiveness; and transparency. A case study of the Darfur region reviews how local governance evolves as a result of both the wider conflict and of adapting to the international humanitarian system, itself a form of governance. The paper concludes by proposing three strategies for enhancing participation and applying lessons learned: improved analysis of participation; linking programming strategies and protection; and taking account of governance functions and capacities.     

Livelihoods,conflict and aid programming: is the evidence base good enough?

In conflict‐affected situations, aid‐funded livelihood interventions are often tasked with a dual imperative: to generate material welfare benefits and to contribute to peacebuilding outcomes. There may be some logic to such a transformative agenda, but does the reality square with the rhetoric? Through a review of the effectiveness of a range of livelihood promotion interventions—from job creation to microfinance—this paper finds that high quality empirical evidence is hard to come by in conflict‐affected situations. Many evaluations appear to conflate outputs with impacts and numerous studies fail to include adequate information on their methodologies and datasets, making it difficult to appraise the reliability of their conclusions. Given the primary purpose of this literature—to provide policy guidance on effective ways to promote livelihoods—this silence is particularly concerning. As such, there is a strong case to be made for a restrained and nuanced handling of such interventions in conflict‐affected settings.     

Sri Lankan livelihoods after the tsunami: searching for entrepreneurs,unveiling relations of power

This paper analyses the performance of aid‐funded livelihoods recovery efforts in Sri Lanka following the Indian Ocean tsunami of 26 December 2004, with special attention paid to the effects on the rural poor. It argues that successful livelihoods recovery was hampered by an excessive focus by aid agencies on entrepreneurs and entrepreneurship, and by the lack of a politically informed understanding of the economy. Based on ethnographic and survey‐based research, the study demonstrates that the category of ‘entrepreneur’ is misleading for large parts of the economy. Indeed, the desire to build an entrepreneurial economy actually hampered successful livelihoods recovery in Sri Lanka and, in some cases, reinforced inequitable relations of power. The paper concludes that for livelihoods recovery programmes to be effective, they must be founded on an understanding of the relations of power that constitute the economy; these relations operate across scales, and are historically and geographically specific.     

Coping strategies developed as a result of social structure and conflict: Kosovo in the 1990s

The end of 1989 brought with it political and economic decisions which resulted in Kosovo being stripped of its autonomy and the Albanian population being expelled from their jobs. These facts combined with ethnic tensions created a decade of conflict and oppression affecting hundreds of thousands of innocent civilians. Thousands of Kosovars moved overseas to seek work to support families at home, altering the way of life of the population of Kosovo irredeemably. The loss of income had serious repercussions on food security throughout the 1990s; possibilities of purchasing food were diminished, control on goods in 1998 reduced availability of foodstuffs, conflict affected accessibility to markets and shops and consequently food intake and nutritional status was compromised. The most vulnerable were those who had no family members overseas. Mass displacement of population due to ethnic cleansing during the war of spring 1999, further jeopardised food security status. Destruction at this time rendered large parts of Kosovo useless and resulted in a shift in the determinant of vulnerability in the post-war period: destruction of houses, land, livestock and agricultural products as well as loss of family members, became a far more pertinent indicator of food insecurity. The strong and clear links between conflict, socio-economic issues and food security are highlighted and discussed in this paper.     

Malnutrition and Poverty in the Early Stages of Famine: North Darfur, 1988–90

In this article we report findings on the relationship between malnutrition and poverty during a period of acute food insecurity in Darfur, Sudan. Children of rich and poor families were equally likely to be malnourished, which is explained in terms of people's responses to the threat of famine. This finding has important implications for targeting interventions in the early stages of famine. Appropriate interventions at the early stages of famine are livelihood and income support to the most vulnerable. The entitlement theory of famine causation assumes that the poor are most vulnerable, and become malnourished and die during famines. In this article we show that this assumption does not hold. Even though poverty is the root cause of malnutrition, it does not follow that anthropometric status can be used to target individual poor families, or even that targeting the poor is appropriate in famine situations.     

Responding to security threats: livelihoods under protracted conflict in Sri Lanka

Populations affected by violent conflicts often withstand threats to their security as well as threats to their livelihoods. Their response to the former threats nontrivially affects their response to the latter threats, and vice versa. This paper examines the interplay between protection and livelihood strategies using a sample of households selected from the Anuradhapura district of Sri Lanka. The fieldwork for this study was completed in 2008, producing evidence that the protection and livelihood strategies employed by households affected by the protracted conflict in Sri Lanka are interlaced. In addition, the research discovered that Muslim and Sinhalese households largely responded to the protracted conflict in ways that are unique to their ethnic group. Certain vulnerabilities that impinge on protection and certain opportunities that support livelihoods are shown to be ethnicised. Hence, the final livelihood outcome, which is defined narrowly here as the household's income, also appears to be ethnicised.     

Food aid and development in southern Sudan: implications of the Comprehensive Peace Agreement for response planning

In the post-Comprehensive Peace Agreement (CPA) era a greater impact on the unacceptably high prevalence of child malnutrition is more likely to come from additional investment and attention to education, health, hygiene, sanitation and childcare practices than from expanded food aid interventions. The negligible impact of food aid on malnutrition, although most commonly challenged on the quality of needs assessments, is equally attributable to the timing of deliveries, and a dysfunctional distribution system. Comparatively few resources have been allocated to strengthen skills for assessing, analysing and understanding community priorities, local economies, and social safety nets. A more thoughtful allocation of scarce funds could have more impact if a range of alternative responses was considered. Participation in and commitment to a more independent livelihoods analytical forum would improve communication with the new government, local leaders and other partners, as well as providing a platform for reaching consensus on both humanitarian and development planning over the next five years.     

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.     

Using the 'protective environment' framework to analyse children's protection needs in Darfur

A major humanitarian concern during the continuing crisis in Darfur, Sudan, has been the protection of children, although there has been little in the way of comprehensive analysis to guide intervention. Founded on a situational analysis conducted between October 2005 and March 2006, this paper documents the significant threats to children's well-being directly linked to the political conflict. It demonstrates the role of non-conflict factors in exacerbating these dangers and in promoting additional protection violations, and it uses the 'protective environment' framework (UNICEF Sudan, 2006a) to identify systematic features of the current environment that put children at risk. This framework is shown to provide a coherent basis for assessment and planning, prompting broad, multidisciplinary analysis, concentrating on preventive and protective action, and fostering a systemic approach (rather than placing an undue focus on the discrete needs of 'vulnerable groups'). Constraints on its present utility in emergency settings are also noted.     

Two solitudes: post‐tsunami and post‐conflict Aceh

In August 2005, after the devastating tsunami in the Indian Ocean Basin, a Memorandum of Understanding (MoU) for the cessation of hostilities was signed by Aceh's longstanding adversaries—the Government of Indonesia and the Free Aceh Movement (GAM). The tsunami was a major catalyst for ‘disaster diplomacy’—international political pressure, which, this paper argues, was an important ingredient in creating conditions for the MoU, although the situation within Aceh also shaped the peace process. Based on interviews conducted in 2006 and 2007 with government officials, GAM representatives and fighters, and non‐governmental organization staff in Aceh, this paper finds that assistance for tsunami survivors far exceeds that available for conflict survivors and ex‐combatants. The formation of these two solitudes—the tsunami‐affected and the conflict‐affected—compounds challenges for sustaining peace in Aceh. This research points to an enduring lack of livelihoods for former fighters and conflict victims that may threaten a sustainable peace.     

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.