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, camps and coercion: the ongoing livelihoods crisis in Darfur

This paper presents the findings of a study commissioned by World Food Programme (WFP) in early 2006 to enhance understanding of how the conflict in Darfur has affected livelihoods and markets, and of the effects of food aid. The livelihoods of many in Darfur were devastated early on in the conflict, principally through the widespread looting or destruction of assets and highly restricted population movements, which struck at the heart of pre-conflict livelihoods. Livelihood strategies for most people are now restricted, poorly remunerated and often associated with high risk of attack. Patterns of coercion and exploitation have also become entrenched; and markets and trade, the lifeblood of Da fur's economy pre-conflict, severely disrupted. Against this backdrop the impact of food aid on livelihoods in Darfur has been overwhelmingly positive. The paper proposes a number of preconditions for investment in recovery in Darfur, and recommends ways in which livelihoods can be supported in the current context of ongoing conflict.     

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.     

Global factors shaping the future of food aid: the implications for WFP

Food aid is a key component of a humanitarian response but its use in other programming contexts is subject to numerous criticisms. Even in humanitarian emergencies food aid is often late, unreliable and out of proportion to other elements of the response. Three major factors will shape the future of food aid. First, mechanisms of food aid governance are being reviewed and may undergo major changes—particularly the Food Aid Convention now that hopes have diminished for an Agreement on Agriculture at the World Trade Organisation. The second significant factor is donor agency trends. Overall levels of food aid have dropped fairly steadily in recent decades and there are several discernible trends in resource allocation, procurement and the use of food aid. The third factor is an emerging body of best practice that will define acceptable standards of food aid programming in the future.     

Sub-regional integration in Sudan: the key to food security and recovery

The signing of the Comprehensive Peace Agreement (CPA) in Sudan has created a new opportunity for peace. Approaches to food security must now be reoriented based on the agro-ecological diversity in Sudan. WFP is in a unique position to catalyse an approach to food security that meets immediate needs and contributes to long-term recovery, in collaboration with the Government of National Unity (GNU) and the Government of South Sudan (GOSS). Aggregate food production in Sudan has increased in the past decade. At sub-regional levels, however, many areas remain food insecure. Major research must be undertaken to identify optimum levels of food production and barriers to access to food at sub-regional levels as a first step towards linking deficit areas with areas of surplus. Initiatives must also be undertaken to facilitate increased integration between sub-regions. Increased sub-regional linkages could ensure more efficient delivery of food in the short term as well as recovery and economic growth in the long term.     

Linking rights and standards: the process of developing "rights-based" minimum standards on food security, nutrition and food aid

This article examines the recent revision of the Sphere Minimum Standards in disaster response relating to food security, nutrition and food aid. It describes how the revision attempted to incorporate the principles of the Humanitarian Charter, as well as relevant human rights principles and values into the Sphere Minimum Standards. The initial aim of the revision was to ensure that the Sphere Minimum Standards better reflected the principles embodied in the Humanitarian Charter. This was later broadened to ensure that key legal standards and principles from human rights and humanitarian law were considered and also incorporated, in part to fill the "protection gap" within the existing standards. In relation to the food security, nutrition and food aid standards, it was agreed by participants in the process that the human right to adequate food and freedom from hunger should be incorporated. In relation to more general principles underlying the Humanitarian Charter, itself drawn largely from human rights and humanitarian law, it was agreed that there was a need to strengthen "protection" elements within the standards and a need to incorporate the basic principles of the right to life with dignity, non-discrimination, impartiality and participation, as well as to explore the relevance of the concept of the progressive realisation of the right to food. The questions raised in linking rights to operational standards required thought, on the one hand, about whether the technical standards reflected a deep understanding of the values expressed within the legal instruments, and whether the existing standards were adequate in relation to those legal rights. On the other hand, it also required reflection on how operational standards like Sphere could give concrete content to human rights, such as the right to food and the right to be free from hunger. However, there remain challenges in examining what a rights-based approach will mean in terms of the role of humanitarian agencies as duty-bearers of rights, given that the primary responsibility rests with state governments. It will also require reflection on the modes and mechanisms of accountability that are brought to bear in ensuring the implementation of the Minimum Standards.     

Accelerating progress on salt iodisation in Sudan: time for action

This paper uses a public health approach to examine briefly: (a) the progress of universal salt iodisation (USI) in Sudan; (b) the roles of the main actors involved; and (c) the main issues around accelerating USI. The literature, especially that coming from the UN agencies, is analysed and experiences from the recently revitalised USI programme, and related relevant meetings, are distilled. In Sudan the prevalence of goitre is 22 per cent. It is assumed that productivity among the people affected is reduced by 5–25 per cent. Little apparent progress has been made with USI. The Government of Sudan, UN multilateral agencies, international consultative groups, bilateral agencies, global and national non-governmental organisations and, increasingly, the private sector must work together to find innovative approaches to increase awareness of the broader social, public health and nutritional contexts, and to advocate for increased national nd international funding.     

The political economy of complex emergency and recovery in northern Ethiopia

During the 1980s Ethiopia experienced the effects of conflict, drought and famine on a scale far greater than many CPEs elsewhere. In May 1991, after the decisive defeat of the military dictatorship of Mengistu Haile Mariam by the Ethiopian Peoples' Revolutionary Democratic Front (EPRDF) and after decades of civil war, drought and famine, Ethiopia faced the prospects of peace and of much needed development. This paper explores both Ethiopia's experience of conflict and humanitarian intervention in areas of Tigray held by the Tigray Peoples' Liberation Front (TPLF) during the 1980s, and its experience of post-conflict rehabilitation and reconstruction in the 1990s. It first deals with the roots of the conflicts within Ethiopia: political marginalisation, heavy state intervention and highly extractive relations between state and peasants, inappropriate and failed development policies, ethnic identity and the politicisation of ethnicity. The Mengistu regime's counter-insurgency measures are then contrasted with the policies and programmes of the TPLF, Ethiopia's most effective opposition movement and the leading element in the EPRDF, and its achievements in mobilising popular support: its establishment of democratically elected structures of local governance and its famine relief distribution programme.     

Epidemiological assessment of food aid in the Bosnian conflict, 1994-97

Surveys in emergency settings are important for the accountability of food aid. Four household surveys conducted between 1994 and 1997 measured the performance of the Bosnia food aid programme, covering a random sample of clusters in Bosnia and Herzegovina and the Republica Srpska. The team calculated coverage, exclusion and inclusion errors, programme misses, and under-supply. Despite intended universal coverage from 1994-96, 15, 19, and 31 per cent, respectively, did not receive food across the three-year time frame. Households categorised as vulnerable were somewhat more likely to receive food. Programme misses were rare, whereas under-supply fell from 30 per cent in 1994 to four per cent in 1997, as the availability of other food increased. Extrapolation suggested that 61 per cent of the food distributed did not reach households. The programme introduced priority categories for targeting in 1997, yet nearly one-half of the highest priority households did not receive food. Incomplete coverage and weak targeting were related to political constraints.     

A fresh perspective on food safety in Canada: risk communication,public involvement,and the impact of the 2008 listeriosis outbreak

While the listeriosis outbreak of 2008 brought attention to food safety decision making in Canada, little of that attention was placed on public involvement and risk communication. With a primary focus on Health Canada (HC) and the Canadian Food Inspection Agency (CFIA), this article describes the state of microbial-related public involvement and risk communication undertakings and suggests ways in which improvements can be made. The findings show that public involvement and risk communication activities have been strengthened since the outbreak, but they have become neither dialogical nor highly participatory. HC engages with experts to a far greater extent than with the lay public and it has fallen short in fulfilling its stated commitment to openness and transparency. Furthermore, both HC's and the CFIA's approach to risk communication has been overly general, has failed to provide opportunities for dialogue with vulnerable and more general groups with whom it is communicating and is not rooted in foodborne surveillance data. Public involvement in food safety governance would be improved if HC provided the lay public with a seat on advisory committees and improved its public involvement reporting methods. HC and the CFIA could also make risk communication improvements by creating opportunities for dialogue between officials and the general public, and by exploring alternative risk communication vehicles, such as food labels.     

The politics of protection: aid, human rights discourse, and power relations in Kyaka II settlement, Uganda

This paper explores the conceptualisation and application of 'protection' by the United Nations High Commissioner (UNHCR), Ugandan government, and Congolese refugees in Kyaka II refugee settlement, Uganda. Analysing the origins and consequences of a demonstration against school fees, and drawing on other ethnographic data, it explores how different interpretations of this incident reflect different conceptions of, and approaches to, protection. Ugandan government officials viewed the demonstration as a security incident; Congolese and Ugandan adults responded with increased monitoring and 'sheltering' of children and young people; students justified the demonstration as a legitimate manifestation of their rights; while UNHCR promoted assistance and resettlement. The paper argues that prevailing protection responses, including 'sensitisation', sheltering, and resettlement, are de-contextualised from daily realities and fail to address the underlying power relations that undermine protection. It concludes with recommendations on how international refugee agencies can reorient assistance to address protection concerns in refugee contexts.     

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.     

Forced migration, processes of return and livelihood construction among pastoralists in northern Sudan

The Hawaweer, a nomadic, pastoralist group in northern Sudan, were seriously affected by the drought in the Sahel during the mid-1980s. Their experience illustrates the connection between internally displaced people, normal mobility, forced migration, dilemmas and opportunities of return and how new livelihoods can be successfully constructed based on traditional rights, strong local institutions and external resources. Some displaced Hawaweer got the chance to return to their homeland as new livelihood opportunities were established; others did not get this opportunity nor would they have returned if they had been given the chance. In both situations, the processes of displacement and return had an impact on the sense of belonging and identity.     

Internal communication a prerequisite for risk governance: hazard zone planning in South Tyrol,Italy

Mountain risk management is currently facing a scientifically driven, normative paradigm change towards risk governance, where communication and participation take on key roles. On the local level, hazard zone planning is a risk management tool to balance land-use developments and hazard processes, such as debris flows, avalanches, rock fall, mass movements or flooding. In this contribution, communication among stakeholders professionally involved in hazard zone planning (internal communication) is analysed by participant observation. Here, the quality of internal communication is seen both as an indicator and as a prerequisite for transition processes from risk management to risk governance. This case study of communication in hazard zone planning in the Autonomous Province of South Tyrol points out pitfalls and challenges in an advanced, spatial planning scheme. Based on the concept of social learning, it is argued that the transition towards governance of mountain risks requires fundamental changes in the underlying normative models, objectives, organizational understandings, structures and qualifications of the administrative bodies. Proposals for change are provided.     

Crop Failure in Dalocha, Ethiopia: A Participatory Emergency Response

This case study of an NGO's response to a food crisis due to crop failure focuses on the extent of active community participation at each stage of the project. With the current debate on the relationship between relief and development, and in particular the focus on encouraging more active community participation in relief responses, this study has relevance both in the Ethiopian context and beyond.
In this example the participation process was greatly facilitated by the prior relationship between the international NGO and the communities, and also by the high level of staff input into the project. Where resources or conditions are less favourable, as might be the case in similar responses by local NGOs or government agencies, the paper suggests that the participatory approach can be adapted or partially implemented and still result in a more effective and locally relevant operation.     

Public Nutrition from an Approach to a Discipline: Concern's Nutrition Case Studies in Complex Emergencies

The Public Nutrition approach, like that of Public Health, is context specific. It places an emphasis on populations rather than individuals and is inter-disciplinary in nature. Both approaches seek to understand the complex aetiology of a clinical outcome such as malnutrition within the widest possible framework. Public Nutrition uses the UNICEF conceptual framework and adapts and expands it. The authors of this article argue – through the examination of a number of case studies taken from the work of Concern Worldwide (hereafter referred to as Concern) in southern Sudan, Rwanda, Angola, Tanzania and DRC – that there are two critical constituents of the Public Nutrition approach. These are: a contextual analysis (including the use of surveillance information for programme design and advocacy) and community involvement at all stages of the project cycle. Some of the key obstacles to the adoption of the Public Nutrition approach are identified by illustrating two practical programme settings. For the Public Nutrition approach to be more widely used, the authors recommend a number of key strategies including the further dissemination of case studies and the clarification of the scope and boundaries of the approach. These strategies will enable Public Nutrition to evolve both as a practical programme framework as well as an academic discipline.     

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.     

Still falling short: protection and partnerships in the Lebanon emergency response

The Israeli–Hezbollah conflict in the summer of 2006, although brief, had a lasting impact on the region and prompted an intense humanitarian response. The conflict raised challenging questions for the United Nations (UN) about how to assist a middle‐income yet extremely vulnerable population in a context where global and local relations are highly politicised. This paper focuses on two key questions that emerged from the humanitarian response. First, how can humanitarian agencies, and particularly the UN, improve the protection of civilians, and was what they did in Lebanon enough? Second, how can humanitarian agencies create partnerships with local actors and still remain true to core humanitarian principles when local actors are fiercely divided along confessional lines and influenced by external actors, and when some, such as Hezbollah, are parties to the conflict? This paper argues that despite the importance of protection and partnerships to the humanitarian response, their role in the UN emergency response still falls short.     

GIS and local knowledge in disaster management: a case study of flood risk mapping in Viet Nam

Linking community knowledge with modern techniques to record and analyse risk related data is one way of engaging and mobilising community capacity. This paper discusses the use of the Geographic Information System (GIS) at the local level and the need for integrating modern technology and indigenous knowledge into disaster management. It suggests a way to mobilise available human and technical resources in order to strengthen a good partnership between local communities and local and national institutions. The paper also analyses the current vulnerability of two communes by correlating hazard risk and loss/damage caused by disasters and the contribution that domestic risk maps in the community can make to reduce this risk. The disadvantages, advantages and lessons learned from the GIS flood risk mapping project are presented through the case study of the Quang Tho Commune in Thua Thien Hue province, central Viet Nam.