linking ‘food security’ and ‘peace & security’…from policy...
TRANSCRIPT
Linking ‘Food Security’ and ‘Peace & Security’…from policy to
practice
10th February 2015
Centre for Security and Defence Studies
Royal Higher Institute for Defence
Francesco Rampa
Head of ECDPM Food Security Programme
I. ECDPM: policy & practice…
II. CAADP as Dev. Effectiveness ?
III. EU’s comprehensive approach…and Resilience
IV. Opportunities/ challenges for connecting more effectively Security & Food Security policies and processes
Page 2 ECDPM
• ECDPM: policy & practice
• …what we do “on the ground”
• …Global, EU, ACP, Africa, EU-Africa…
• Food Sec in Africa (CAADP) , not price speculations & trends
ECDPM Page 3
CAADP as Dev Effectiveness ?
- CAADP is a very advanced attempt at fully implementing the Paris Declaration and Accra Agenda for Action…new methodology
- degree of African ownership (at political-bureaucratic-experts level), including at nat.level (unlike other AU/regional initiatives such as FTAs); robust plans for mutual accountability (serious monitoring & evaluation is built into CAADP); outreach to other sectors ; level of ODA predictability & regular donor coordination
- Weaknesses remain, lacking sufficient: private sector involvement; reg.level implementation; clarity on the con-reg-nat nexus…nothing specific P&Sec (btw the lines, focus Pastoralism)
• Sahel & Horn: regional crises require more reg. & structural solutions…wiser transb.water management, food trade, account of pastoralists' movement, etc...or security threats will continue (kenya/somalia & mali)
• Individual countries alone cannot address challenges & opportunities
• Coherence/coordination of different reg. initiatives enhance their chances of success, also ODA (HORIZ.COHERENCE)
• Coherence/coordination of reg. and national action increase the value of both (VERTICAL COHERENCE)
ECDPM Page 6
Why regional cooperation ?
The Challenge: Regional demand increasingly met by imports
The solution is within Africa - enormous potential to increase production….
– Just 10% of agricultural land in the Guinea Savannah zone is being cultivated
– Closing yield gaps would increase output 2 to 3 fold
– In West Africa higher yields turn a $2 bill food trade deficit into a $12 bill surplus but only with open regional markets
….and regional trade is crucial…
• Challenge is to get food from rural areas to consumers in growing urban centers
• Nearest city is often across a border
• Provides incentive to invest
in higher productivity
Source: Haggblade et al (2008).
P&S processes in EU and Africa [SEEA-SECURE]
“EU’s comprehensive approach to external conflict & crisis” (Joint EEAS-EC Communication Dec 2013, adopted May 2014 by Council, Action Plan by March ’15).
PROS: good consolidating doc (all-Union vision), some EEAS-EC-MS commitments to good practices (taking context as starting point), analysis, formulation of country/regional strategies, use of crisis platforms or joint programming.
CONS: no tangible structures & processes on whom the Union should work when, where, how = still confusion + no in-depth changes in EU instit. - MS relations & how EEAS/HR & EC could use full range of instruments & $
Page 10 ECDPM
SO often just listing of worthy activities under a comprehensive approach label…
• more joint analysis, early warning, linking it to real political & programming decisions (MS & EU)
• EEAS & DEVCO staff incentives for bringing a more comprehensive agenda forward
• complexities of CAs make implementation highly challenging… coordination, inclusiveness, policy coherence, civil-military coordination, especially where humanitarian assistance
• MS differences: France low attention paid to “soft” aspects (slight role dev actors)…to NL: instit. structures & financing mech for diplomatic, military, dev. actors to interact with strategic purpose… & beyond: trade
Page 11 ECDPM
NB1: C. Conclusions settling on conflict prevention (no conflict management) common ground on which MS could reach consensus on EU external action: serves UK (prefers NATO), DE (optout of CSDP), SWE (aligns with CSDP missions only if UN mandate), etc
NB2: little research/evidence on efficiency/complementarity of military operations for food security (IFPRI-IFAD 2014)
Page 12 ECDPM
‘EU Approach to Resilience: Learning from Food Security Crisis’ (EC Communication Oct 2012)
PROS: first definition + 3-phased resilience approach: anticipating crisis by assessing risks; focusing on prevention/preparedness; enhancing crisis response + 10 steps incl. support for prep. nat. resilience strategies/earlywarning + more flexible funding /donor coordination.
CONS: “top-down” / “state-centric” approach to resilience building.+ links many sectors but nothing really on Policy Coherence among them + aid effectiveness perspective and not enough on endog. resilience building
Page 13 ECDPM
EU Horn of Africa Strategy (2011) & Sahel (2011)
presented as ex. of good practice for Comprehensive & Resilience Approaches , illustrating how EU comprehensive response could work for security, development and governance
EFFECTIVENESS? Implementation is work in progress whereby operational issues still lag considerably behind conceptual development
NB: institutional conundrum worsened by too many “Strategies” e.g. IGAD CAADP (USAID) vs COMESA/EAC…UN/AU Technical Secretariat (TS) of the Ministerial Platform for the coordination of Sahel strategies [SEEA]…
Page 14 ECDPM
Led to the 2 Flagship promoting sustained coordination humanitarian & development assistance
• Supporting Horn of African Resilience (SHARE, 2011 Droughts)
• mobilised around €350 m since , will be followed up EDF11
• l'Alliance Globale pour l'Initiative Résilience (AGIR) (2012 Droughts)
• aims to mobilise €1.5 billion for resilience building 2014-2020 (incl. EDF11)
Page 15 ECDPM
opportunities/ challenges for connecting more effectively Sec & FS policies and processes
Opportunities :
Increasing recogn conflicts occur together/related to other shocks (ec. crises, price, disasters) eg include climate change adaptation as an integral part of conflict prevention
…and plenty of attention & processes (eg more security threats…CAADP, though initial tensions)
“New” African Actors: Role of NSA… Great Lakes PS, NGOs comprehensive really…bring them in the responses to crisis and transition trajectories (CAADP model ?)
Page 16 ECDPM
Evidence & some Successes
(Literature Summary in IFPRI-IFAD 2014, “How to Build Resilience to Conflict The Role of Food Security”)
• Ethiopia, EC funds innovative resilience building programmes since 2012, bringing together different organisations for multi-sectoral projects …
• subsidies help keep poverty & FS low but do not build resilience [cash 4 work, not hand-outs]
• markets & institutions (mkts failures) reduce vulnerability to asset shocks & enhance resilience by allowing smallholders/pastoralists to have consistent access to input & produce markets & income [= price information systems; credit & insurance markets, social safety nets]
• construct functioning and effective institutions as key measures for building resilience to conflict…
Page 17 ECDPM
Challenges
• multi-level institutional complexities, Sahel is also Sahara and Maghreb process… but no grouping has all countries
• ambiguous role of donors (but very clear PEA): not by chance the 2 most advanced attempts to link F-P&S are where conflict is nurturing terrorism (S&H)…where is not (DRC) Intl Community (USA-etc) not particularly active
• EU’s multidimensional toolbox should be used better—EU delegations, various developmental, political, and security assets, and member-state interventions— $ drives!!
• General Dev Policy Bottlenecks: weak institutions, no implement, PEA, ownership + PCD?! & 3Cs nightmares [we don’t really follow local decisions, with exceptions]
Page 18 ECDPM
…
• Scaling up above success programs (food aid, pastoralism, etc) remains challenging…& donor dependency still unsolved
• THE LOCAL LEVEL always key: we deal global continental regional, only a bit to nat but interlinkages between security & food (in)security & resilience in rural areas are very local…eg African urbanization [MEGATREND]
• Ultimately Governance & Local Leadership: Boko Haram ? 2 richest countries of their regions!
Page 19 ECDPM
Question to you:
- reciprocal sensitivity in programming and implementation…is your defence work "food sensitive"?
- bringing food security concerns into early responses to crisis and transition trajectories : space for connecting processes and lessons more formally/systematically?
- could you bring local stakeholders into your processes (early enough) ?
Page 20 ECDPM
