linking ‘food security’ and ‘peace & security’…from policy to practice francesco rampa...

Linking ‘Food Security’ and ‘Peace & Security’…from policy

to practice

Francesco RampaHead of ECDPM Food Security Programme

I. ECDPM: policy & practice…

II. Policy Frmks: CAADP as Dev. Effectiveness ?

III. Policy Frmks: “EU’s comprehensive approach”…and “Approach to Resilience”

IV. Opportunities/ challenges for connecting more effectively Security & Food Security policies and processes

V. …moving from policy to practice …

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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)

WA: Network of Food Crises Prevention (RPCA) & Reg. Emerg.F.Reserves (ECOWAP) VS IGAD Drought, disaster resilience and sustainability initiative (IDDRSI)

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Why regional cooperation ?

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).

…and Climate Change !

• …through prices of food and Instability / Accessibility

• Local context…eg NFICs or Exporters ? + if conflict rewards (NRM) are high then conflict more likely…aid can worsen..

• (Burke et al. 2009) : 1% temperature increase 54% increase in armed conflict incidence by 2030 (using IPCC predictions)

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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 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 & $

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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 (3D)… & beyond: trade

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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)

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‘EU Approach to Resilience: Learning from Food Security Crisis’ (EC Communication Oct 2012, Plan of Act, C Conclusions)

“ability of an individual, a household, a community, a country or a region to withstand, to adapt, and to quickly recover from stresses and shocks”

“EU approach to resilience 3 key characteristics:i. country ownership ii. people centred iii. ensuring coherence, complementarity, co-ordination,

continuity humanitarian and development partners”

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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…formal Inst.FRMK coord (AGIR)

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

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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..ECHO-DEVCO diff.mandates diff.field approaches : SR/conseq VS LR/causes

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]…

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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)

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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)

…local context: FS knows a lot on PEA/food-mkts of conflict that could be crucial for > effect P&S interventions

“New” African Actors: Role of NSA… Great Lakes PS, NGOs comprehensive really…bring them in the responses to crisis and transition trajectories (CAADP model ?)

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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…

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$$$$...

2007-2013 DCI – FOOD - € 243 million FOOD FACILITY - € 209 million EDF – focal sector component – € 1.311 million Others - € 58.7 million ECHO World Wide Decision (geographical Humanitarian

Implementation Plans (HIP))2014-2020 : DCI – FOOD - EUR 1.42 billion DCI – PANAF – EUR 80 million EDF – focal sector component – EUR 2.27 bn. EU Emergency Trust Fund for Africa – EUR 1.8 billion ECHO HIPs for WAfrica – around EUR 123 million in 2015 ECHO HIP for the Horn of Africa – EUR 93 million in 2015 ECHO HIP for Sudan/S-Sudan – EUR 139 million in 2015 ECDPM

New “EU Trust Funds” (BN81)

• Bêkou Trust Fund for the Central African Republic July 2014• Regional Trust Fund for Syria (Madad Fund) Dec 2014• EU Emergency Trust Fund for Africa (“the Africa Trust

Fund”) November 2015

…more flexible, comprehensive and effective joint EU support, and increase the EU’s global visibility and political weight in particularly challenging contexts (“unrivalled in the history of EU external action”)

…but will MS accept stronger EC role in Ext Action ? (migration / polit.pressure)

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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/migrat (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— $ (PEA) drives!! So even if P&S loads to learn from FS (geo)pol wins (but also MS econ interests eg exp-led-dev support) eg will EU Trust F. “root causes Migration” align to local/CAADP/etc?

• Dev Policy Bottlenecks: weak institutions, no implement, PEA, ownership + PCD?! & 3Cs nightmares (…eg. Belg Mil Acad deep knowl but no infl on FS $ nor polit decisions!)

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…

• 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!

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www.ecdpm.org/foodsecurity

[email protected]

http://www.ecdpm.org/

• UN CC debates/COP21 should give “agriculture” priority• barriers: complexity, lack globally agreed definition of “ag.

sector”, gaps scient/tech knowledge of CC impact on ag using CC-funds for agric: - some bilateral donor projects…(WFP tool @COP21…) - GCF prioritises CSA/LDC in principle but UNFCCC mandate?

(100bn by 2020, only 10 now, 60 pledged.. 50-50% M-Ad..now 16%)…will depend on Nat Author (Min Energy?)

- 2008-13, 1bn USD-y spent by multilateral climate funds… diffic to say if this trend harm agric inv. (shift from ag to CC) coz little info on how used and how to distinguish

BUT INDCs: 80% ag.in mitig. targets/actions (eg Kenya CSA), 64% noted importance in adaptation, 30% mitigation targets in ag. conditional on intl $ support… e.g. RAI n.6

top-down frameworks…UNFCCC/COP21

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linking ‘food security’ and ‘peace & security’…from policy to practice francesco rampa...

Documents

prices of food

policy practice policy

bill food trade deficit

regional trade

regional crises

security threats

experts level

caadp outreach