Good to know that some states have passed laws establishing ranches. They need to go beyond laws prohibiting pastoralism and dedicate funding to enable farmers to establish ranches as I advocated two years ago in the following blog:
http://massliteracy.blogspot.com/2016/04/in-praise-of-nigerian-cattle-herders.html?m=1
Biko
--------------------------------------------
On Tue, 9/1/18, Jibrin Ibrahim <jibrinibrahim891@gmail.com> wrote:
Subject: USA Africa Dialogue Series - Resolving Farmers-Pastoralists Conflicts in Nigeria
To: "'chidi opara reports' via USA Africa Dialogue Series" <usaafricadialogue@googlegroups.com>
Date: Tuesday, 9 January, 2018, 5:41
Pastoralist-Farmers
Conflicts and the Search for Peaceful
Resolution
Memorandum
by the Nigerian Working Group on Peace Building and
Governance
Abuja,
8th January 2018
Executive
Summary
Pastoralists-farmers'
conflicts in Nigeria have grown, spread and intensified over
the past decade
and today poses a threat to national survival. Thousands
of people have been killed, communities have been destroyed
and so many farmers
and pastoralists have lost their lives and property in an
orgy of killings and
destruction that is not only destroying livelihoods but also
affecting national
cohesion. Nigeria has about 19 million cattle much of it in
the hands of
pastoralists and we need to seek solutions to the problem of
pastoralism while
resolving the problem of insecurity that has
arisen.
The
Problem
Nigeria's
population has grown from
33 million in 1950 to about 192.3 million today. This
phenomenal increase of
the population has put enormous pressure on land and water
resources used by farmers
and pastoralists. One of the
outcomes of this process
has been the blockage of transhumance routes and loss of
grazing land to
agricultural expansion and the increased southward movement
of pastoralists has
led to increased conflict with local communities. This is
particularly the case
in the Middle Belt – notably in Plateau, Kaduna, Niger,
Nassarawa, Benue,
Taraba, and Adamawa States. The conflicts primarily involve
Fulani pastoralists
and local farming communities. As violence between
herdsmen and farmers
has grown and developed into criminality and rural banditry,
popular narratives
in the form of hate speech have exacerbated the
crisis.
Grazing Reserves
As Possible Solution
It
is clear that Nigeria
and indeed Africa have to plan towards the transformation of
pastoralism into
settled forms of animal husbandry. The establishment of
grazing reserves provides
the opportunity for practicing a more limited form of
pastoralism and is
therefore a pathway towards a more settled form of animal
husbandry. Nigeria
has a total of 417 grazing reserves out of which only about
113 have been
gazetted. Whether we support or oppose pastoralism, it is
clear that at least
in the short and medium term, many herds must continue to
practice seasonal
migration between dry and wet season grazing areas.
Ultimately, there is the
need for permanent settlement of pastoralists.
The
Law, Politics and Pastoralism
One
of the greatest
difficulties in addressing and resolving issues surrounding
pastoralism is the
politicisation of legal regimes and the blockages to the
enactment of or implementation
of laws that can redress the key challenges posed. In 2016
for example, a bill
was proposed - ''A Bill for an Act to
establish Grazing Reserve in each of the states of the
Federation Nigeria to
improve agriculture yield from livestock farming and curb
incessant conflicts
between cattle farmers and crop farmers in Nigeria'' was
thrown out. There is an emerging
conflict between the constitutional
principle on free movement of persons and goods and laws
emerging in some
States restricting movement. Some States have enacted
laws or are
processing bills to prevent open grazing on their territory.
There are four
initiatives so far in Benue, Ekiti, Taraba and Edo States.
Could such laws be
effective in prohibiting pastoralism, which is practiced by
millions of
Nigerians?
Developing
a Comprehensive Policy Framework
A
new policy framework on the
farmers-pastoralists crisis should be developed that is both
comprehensive and
mutually beneficial to both groups. An inter-ministerial
committee should be
constituted with experts and stakeholder membership to draw
up the framework.
There must be a consultative process that listens to the
concerns of all
stakeholders in developing the new framework so that the
outcome would have
national ownership. Pastoralism is not sustainable in
Nigeria over the long
term due to high population growth rate, expansion of
farming and loss of
pasture and cattle routes. At the same time, pastoralism
cannot end or be
prohibited in the short term, as there are strong cultural
and political
economy reasons for its existence. The new policy should
develop a plan for a
transitional period during which new systems would be put in
place. The
framework should map out the duration, strategy and
timelines for the
transition plan. Finally, a comprehensive approach to
address the growing
crisis associated with violence affecting pastoralism and
farmers in Nigeria is
necessary.
Introduction
Pastoralists-farmers'
conflicts in Nigeria have grown, spread and intensified over
the past decade
and today poses a threat to national survival. Thousands
of people have been killed, communities have been destroyed
and so many farmers
and pastoralists have lost their lives and property in an
orgy of killings and
destruction that is not only destroying livelihoods but also
affecting national
cohesion. Each day, we witness more reprisal killings that
are simply making
the possibilities of peaceful resolution more difficult.
Rural banditry is
becoming the norm in the Nigerian hinterland and has
been transformed
into a vicious criminal activity. The result is that the
scale of loss of both
herds and human life has been escalating and the victims are
on all sides –
subsistence farmers, commercial farmers and pastoralists.
Nonetheless, we write this memo
to say we cannot give up to
hate and destruction, let's pause, reflect and seek a way
out of the crisis.
Nigeria has a
large pastoral
population the logic of whose livelihood is often
misunderstood. What is better
understood is the culture of farming, which is rooted in a
specific location
and has activities that take place regularly.
The assumption that pastoralism is
in itself an irrational production system is far from the
truth. Pastoralism is
the main livestock production system in much of Africa where
pastoralists live
in semi arid zones. It is a historically developed strategy
to cope with the
uncertainties associated with climate change, build up of
parasites and other
related challenges. It is above all an efficient way to
produce livestock at
relatively low prices through the use of non-commercial
feeding stock. Historically,
pastoralists have been able to meet the meat demand in West
Africa with a
relatively high level of efficiency without government
subsidy for generations.
Different
methods through the use of farm residue and open range
grazing has allowed this
trend to flourish. Nigeria has a landmass of 98.3 million
hectares, 82 million
hectares of arable land of which about 34 million hectares
are currently under
cultivation. In crop farming, human beings only directly
utilize about a
quarter of the total biomass. The other three quarters is in
the form of crop
residue and low quality crop, which is not directly useful
to people. It is
this residue that cattle (ruminants) convert into meat and
milk. In addition to
this, cattle also utilize grasses on fallow lands,
non-arable poor quality
lands, open ranges and fadama in the same manner.
Pastoralists move their
animals to these locations to access these opportunities.
This system of
production is breaking down today as violent conflicts
between pastoralists and
farmers have arisen and created a major national
crisis.
The
Problem
Nigeria's
population has grown from
33 million in 1950 to about 192.3 million today. The United
Nations recently
projected more growth in terms of population in the coming
years, 364 million
in 2030 and 480 million in 2050 respectively. This
phenomenal increase of the
population has put enormous pressure on land and water
resources used by
farmers and pastoralists. Specifically, the demographic
increase has led to an expansion in cultivated farmland and
a reduction in
available grazing land for pastoralists that is
characterised by competition
over dwindling resources. In the far north, the impact of
desertification as
well as the crisis of energy, which has resulted in
deforestation, coupled with
climatic uncertainty and lower rainfall have made it more
difficult to sustain
increasing populations, pushing many farmers and
pastoralists with livestock
southwards. This has happened gradually over a period of
decades – with an
apparent increase over the past decade – and has added to
pressure on land and
water in central and southern Nigeria.
One
of the outcomes of
this process has been the blockage of transhumance routes
and loss of grazing
land to agricultural expansion and the increased southward
movement of
pastoralists has led to increased conflict with local
communities. This is
particularly the case in the Middle Belt – notably in
Plateau, Kaduna, Niger,
Nassarawa, Benue, Taraba, and Adamawa States. The conflicts
often have
localised dynamics, but primarily involve Fulani
pastoralists and local farming
communities.
The
Nigerian state has a
relatively weak rural presence and has neglected the
agrarian sector since the
1970s, when oil revenues began to dominate the economy.
There have been few
improvements in agricultural productivity and livestock
production as a result
of the dependence on oil revenues, which have not been
reinvested in productive
economic activities. State response
in the context of the lingering conflicts between
farmers and pastoralists has been both ad hoc and reactive,
with no concrete
and sustainable strategies for conflict management and peace
building beyond
the deployment of security or establishment of commissions
of inquiries. One of
the key pathways here is for the state to be more proactive
in its responses by
putting in place mechanisms that are institutionalised and
sustainable both at
the local and state levels.
As
violence between
herdsmen and farmers has grown and developed into
criminality and rural
banditry, popular narratives creating meaning, context and
(mis) understandings
have been emerging. The narratives emerging on rural
banditry in the media and
in popular discourse are becoming part of the drivers for
expanding conflicts
in the country. The protagonists in this saga are often
presented as being
nomadic Fulani cattle herders, who are mostly Muslims, and
sedentary farmer
communities of several other ethnic extractions, who are
often, but not always
non-Muslims. These two distinct groups are usually depicted
as perpetrators and
victims, respectively. Perspectives of the social, religious
and ethnic
characteristics of these rural communities are framed into
expansive
essentialist discourses that actively breed and sustain
suspicion and distrust.
The result is negative stereotyping between "the one"
and "the other" that lead
further to ethnic and religious bigotry which fuels the hate
process,
culminating in further chains of attacks and counter or
revenge attacks being
exchanged between these different groups. Nigeria urgently
needs to find
pathways to get out of the crisis and one approach may be
the development of
grazing reserves for pastoralists.
Grazing Reserves
As Possible Solution
It
is clear that Nigeria
and indeed Africa have to plan towards the transformation of
pastoralism into
settled forms of animal husbandry. The establishment of
grazing reserves provides
the opportunity for practicing a more limited form of
pastoralism and is therefore
a pathway towards a more settled form of animal husbandry.
Grazing reserves are
areas of land demarcated, set aside and reserved for
exclusive or
semi-exclusive use by pastoralists. Currently, Nigeria has a
total of 417
grazing reserves all over the country, out of which only
about 113 have been
gazetted. There are many problems facing the implementation
of the provisions
of the 1965 Grazing Reserve Law and the management of the
established grazing
reserves. First, most of the grazing reserves were
established by the then
Northern Regional Government. Since the 1970's
subsequent military and civilian
governments have in effect abandoned the policy of
establishing and developing
grazing reserves. Secondly, State governments have not been
diligent in
sustaining previous policies and have not surveyed and
gazetted most of the
designated grazing reserves. Indeed, only 113 (about 27%) of
the 417 proposed
grazing reserves have been gazetted.
Whether we
support or oppose
pastoralism, it is clear that at least in the short and
medium term, many herds
must continue to practice seasonal migration between dry and
wet season grazing
areas, incorporating past harvest grazing farmland in the
highly developed and
ecologically sound pattern of transhumance evolved by the
pastoralist over the
centuries. This is an important point to make at this point
when many political
actors think it is possible to simply and abruptly ban open
grazing. There is
indeed, the need for permanent settlement of pastoralists
both in the far north
and semi humid zone of the middle belt. It is important to
focus on the
development of grazing reserves as part of the
solution.
The
Law, Politics and Pastoralism
One
of the greatest
difficulties in addressing and resolving issues surrounding
pastoralism is the
politicisation of legal regimes and the blockages to the
enactment of or
implementation of laws that can redress the key challenges
posed. In 2016 for
example, a bill was proposed - ''A Bill
for an Act to establish Grazing Reserve in each of the
states of the Federation
Nigeria to improve agriculture yield from livestock farming
and curb incessant
conflicts between cattle farmers and crop farmers in
Nigeria.'' The
National Assembly on the basis that the Bill appeared to be
seeking to favour
one particular profession carried out by mainly one ethnic
group, the Fulani,
threw it out. The problem is that if we cannot have grazing
reserves and if
pastoralists cannot move, how do we expect the 19 million
cattle grazing in the
country to survive and how do we protect our Constitutional
principle of free
movement.
Free
Movement
and Restrictions to Transhumance
There
is an
emerging conflict between the constitutional principle on
free movement of
persons and goods and laws emerging in some States
restricting movement. In Section 41(1)
of the Nigerian Constitution, it is stated
that:
''Every
citizen of Nigeria is entitled to move freely throughout
Nigeria and to reside in any part thereof, and no citizen of
Nigeria shall be
expelled from Nigeria or refused entry thereby or exit
therefrom.''
Some States have
enacted
laws or are processing bills to prevent open grazing on
their territory. There
are four initiatives so far:
1.
Ekiti
state: Prohibition of
Cattle and Other Ruminants Grazing in Ekiti,
2016.
2.
Taraba
state: Anti-Open Grazing
Prohibition and Ranches Establishment Bill
2017. 'A bill
for a law to
prohibit open rearing and grazing of livestock and provide
for the
establishment of ranches and the Taraba State livestock and
ranches
administration and control committee and for others
connected thereto 2017'.
3.
Edo
State Bill: A Bill for A Law to Establish the
Edo State Control of
Nomadic Cattle Rearing/Grazing Law and for Other
Purposes.
4.
Benue
State Law: A Law to Prohibit Open
Rearing and Grazing of Livestock and Provide for the
Establishment of Ranches
and Livestock Administration, Regulation and Control and for
Other Matters
Connected Therewith, 2017.
It
is worthwhile posing
the question whether laws can be effective in prohibiting
pastoralism, which is
practiced by millions of Nigerians. As some of the laws have
already been
passed, they would have to be tested in court. It is
important to stress
however that the Constitution guarantees free movement of
persons and goods
across Nigeria and no State government can withdraw
constitutionally entrenched
rights. Secondly, following a legislation by the Ogun State
Government and the
Supreme Court Judgment on the matter cited as
"A.G.
OGUN STATE V. ALHAJA AYINKE ABERUAGBA (1985) 1 NWLR PG.
395" States
were barred from interfering
with inter-state commerce and the free movement of goods
and services. At that time, Ogun State had tried to control
and tax goods
entering from other States and the Supreme Court ruled that
it would be chaotic
if States enacted any laws they please restricting movement
of goods and
services in the Federation. It was this judgment that led to
the introduction
of value added tax (VAT) as a State tax that is determined
at the national
level and collected by the Federal Government, which takes
an administrative
fee and redistributes the proceeds back to the States. The
key issue however is
that pastoralism has developed into a national crisis that
is leading to
increased violence so a legal approach alone cannot resolve
the issue. It is
therefore important to negotiate a national policy framework
that would protect
the interests of both farmers and herders. The Federal
Government should take
the initiative of negotiating a consensual policy framework
that would address
the issues.
Developing
a Comprehensive Policy Framework
Livestock
production in
Nigeria is in existential crisis and the country lacks a
cohesive and
comprehensive policy framework for livestock development and
regulation in
Nigeria. The defunct Northern Grazing Reserve Law has not
been updated, the
Land Use Act of 1978 is dysfunctional, emerging state
grazing reserve laws, the
ECOWAS Transhumance Protocol and other related international
instruments have
to be updated and streamlined.
Recommendation
Piecemeal
of sectorial approach to
livestock development will not suffice. A new policy
framework should be
developed that is both comprehensive and must be mutually
beneficial to
pastoralists and farmers. Any policy that does not take into
consideration the welfare
of both sides will most likely fail or meet resistance by
either side. An
inter-ministerial committee should be constituted with
experts and stakeholder
membership to draw up the framework. There must be a
consultative process that
listens to the concerns of all stakeholders in developing
the new framework so
that the outcome would have national ownership.
The
Future of Pastoralism and Animal Husbandry
Pastoralism
is not sustainable in Nigeria
over the long term due to high population growth rate,
expansion of farming and
loss of pasture and cattle routes. At the same time,
pastoralism cannot end of
be prohibited in the short term as there are strong cultural
and political
economy reasons for its existence. It is important therefore
to develop a plan
for a transitional period during which new systems would be
put in place.
Recommendations
Experts should
be
assembled to map out the duration, strategy and timelines
for the transition
plan. As there is no miracle model for solving the problems,
the plan should
simultaneously pursue a number of models
including:
i.
Ranching can be
pursued as one of the possible models in
areas with lower population densities in the North East
(Sambisa Game Reserve
in Borno State) and North West (Gidan Jaja Grazing Reserve
in Zamfara State);
ii.
Semi-intensive
systems of animal husbandry should be pursued
accompanied with requisite investment in infrastructure,
training, extension,
marketing and animal health service delivery in conjuncture
with the private
sector;
iii.
The traditional
form of pastoralism should continue for a
period to be agreed upon with some improvements (in the form
of coordinated
mobility between wet and dry season grazing areas and
effective management of
farmers and pastoralists relations);
iv.
Use of and
development of grazing reserves to target
pastoralists with large stocks where skills for pasture
production, large milk
production, etc can be promoted.
v.
Development of
integrated crop-livestock systems with
farmers and pastoralists being encouraged to keep some
animals in their farms.
vi.
In order to meet
the feeding needs of herds, alternative low
water and drought resistant grasses should be produced, in
response to the
impact of desertification on fodder production.
Modernisation
of Livestock
Nigeria
has one of the lowest productivity
levels of livestock in the world. It is for this reason that
Nigeria imports
very large quantities of milk, fish and chicken. The
Nigerian herd requires
sustained efforts at quality development based on a
modernisation strategy that
would transform the industry and move the country towards
the objective of
self-reliance.
Recommendations
The
programme for the country's transition
to modern forms of animal husbandry must be accelerated and
funded. The
national stock would require rapid improvement and
modernisation to meet market
demands for meat, milk, hides and other products from the
industry:
i.
Commercial
ranches should be established in
some of the sparsely populated zones in the North East and
North West;
ii.
The
business community should be encouraged
through policy measures to invest in the establishment of
modern dairy farms;
iii.
Sensitisation
programmes should be
undertaken on the values of livestock improvement and
breeding centres for the
production of quality heifers to improve pastoral stock
should be developed all
over the country.
iv.
Efforts
should be made towards modelling
best practices of pastoral-farmer relations as evident in
countries such as
Chad, Ethiopia and Niger, where the existence of
institutionalised and
functional mechanisms for pre-empting and resolving
conflicts between farmers
and pastoralists enable them to live in peace.
Growing
Conflicts and Imperative of Peace Building
Over the past
decade,
there has been a dramatic explosion of violent conflicts
associated with the
deteriorating relationship between farmers and herders,
cattle rustling and
rural banditry in Nigeria. There is also limited knowledge
about who the
perpetrators are and their motives.
Recommendations
A
comprehensive approach
to necessary to address the growing crisis associated with
violence affecting
pastoralism and farmers in Nigeria. The Federal Government
should commission a
large-scale research endeavour to carry out in-depth study
to understand the
reasons for the escalation of violence, key actors,
motivations and agency fuelling
the crisis.
The
Boko Haram Insurgency
Specific
measures are
required to address the Boko Haram
insurgency North Eastern States of Adamawa, Bauchi, Borno,
Gombe, Taraba and
Yobe, which have close to 40% of the total cattle, sheep and
goats of the National
herd. These States also have the highest number of grazing
reserves 255 or 61%
of the 415 nationally identified grazing reserves. There are
also many kilometres
of stock routes interconnecting these reserves. The highest
number of
transhumance and trade cattle, sheep and goats from ECOWAS
countries, Chad,
Cameroun, Central African Republic and other countries, come
into Nigeria on
North Eastern International Transhumance Route.
Recommendations
In
addition to the search for improving security in the zone
through the use of security forces and mobilizing the civil
population, some
policy decisions are required. The military should be
encouraged to pursue the
path of ranching as it has already decided to. The Sambisa
Grazing Reserve
(4800 ha) is an ideal and symbolic place to take-off by
establishing a ranch
run by the military. It would significantly improve the
security situation in
the zone and encourage cooperation between pastoralists and
the military. In
the North West, the military should also be encouraged to
create ranches in the
Gidan Jaja Grazing Reserve (565,000 ha) for the same purpose
of improving
security and cooperation with pastoralists.
Growth of Hate
and Dangerous Speech
Hate speech has
now
become a generator and accelerator of violent conflicts and
the phenomenon of
fake news is worsening its negative impact.
Recommendations
There is need
for the
development of a media code to be used in sensitizing the
media on the relevant
international standards on reporting issues of conflict and
banditry. This
process should involve conflict sensitivity and safety
training and it should
be based on very strict journalistic standards. Appropriate
laws and
regulations should be developed at both the federal and
state levels towards
ensuring that the margin of what is seen, as "free
speech" in the media will be
effectively regulated.
Breakdown of
Traditional Conflict Resolution Mechanisms
One
of the most important
dimensions of the growing conflicts between pastoralists and
farmers has been
the breakdown of traditional conflict resolution mechanisms.
In the past, when
conflicts arise, they were settles by village heads and
ardos, Fulani community
leaders and if the need for payment of compensation arises,
there were
traditional systems and knowledge of how to assess damage
done and the amount
necessary to compensate for the damage and not profiteering.
What we see today
as a breakdown of traditional authority in the context of
conflict management
is a consequence of the take over of their powers by the
state at the federal,
state and local government levels, through the ad hoc
measures that are often
time wasting and whose recommendations are not implemented.
Recommendations
Cattle routes
should be
restored and significant investment made in restoring
traditional conflict
resolution mechanisms. As massive corruption has accompanied
the increased
presence of the police and courts in matters affecting
farmers and herders,
there should be advocacy and administrative guidance to
return to traditional
methods of conflict resolution. There should be capacity
development of farmers
and herders associations so that they play a more positive
role in the process.
The
Environmental and Climate Smart Pastoralism
Livestock
produce some
greenhouse emissions and pollutants. These can however be
mitigated and even
reversed by the sustainability of the methods that are used.
On the whole,
pastoralism is the only renewable non-extractive use of
Ryland resources and it
plays an essential role in maintaining soil and water
quality. In addition, it
slows down the loss of biodiversity.
Recommendations
Intensive
capacity
building is required in promoting and advocating for climate
smart approaches
to animal husbandry including the prevention of overgrazing,
promoting integration
of grazing and manure provision for farms and coordinated
movement between
ecological zones in the dry and wet seasons.
Legislative
Solutions
There
are discordant laws and regulations
that legislate livestock production and pastoralism at the
regional, national
and state levels. Some of the newly emerging laws such as
the "anti-grazing"
state laws appear to contradict the free movement principle
enshrined in the
Constitution.
Recommendations
i.
A
harmonization of relevant laws and
policies that governs grazing reserves. Specifically, the
1965 Grazing Reserve
Law can be revived based on section 315 of the 1999
constitution in the 19
northern states.
ii.
This
should be complemented with a national
review and protection of traditional stock
routes;
iii.
Regional
instruments governing pastoralism
should be protected and above all domesticated;
iv.
In
addition to the laws, consultative
process between farming and pastoral communities are
required to review the
effect of statutes and regulations on routine practices of
animal husbandry.
Expanding
Grazing Reserves
The
Nigerian livestock
industry is largely dependent on natural vegetation.
Although there is a vast
hectrage of natural vegetation in the country they are not
maximally utilized
due to poor planning and conflicting government policies. It
was estimated that
there are over 40 million hectares of grazing land in
Nigeria, out of which
only 3 million hectares are specifically tagged as grazing
reserves.
Recommendations
The
idea to encourage
nomads to settle was first made in 1942 but never
implemented. A clear policy
of land grant to pastoralists should be developed and
implemented by state
governments.
Digital Tracking
of Cattle
The
Katsina State Government has just launched a digital
tracking system for cattle
in the State. It involves inserting microchips in the
animals skin and tracking
them with mobile phones. The use of such technologies could
help address the
problem of cattle rustling and violence that have become so
rampant. Such
initiatives should be supported.
The
Construction of Positive Narratives
The
atmosphere between
farming and pastoral communities is extremely bitter and
negative. Support
should be provided for creative writers in Nollywood,
Kannywood, radio and
television to create new narratives showing how the
interaction between the two
groups could be peaceful and mutually beneficial. Above all,
the National
Orientation Agency (NOA), as an institution with presence
across the 774 Local
Government Areas (LGAs) of the country, should provide these
critical services.
Signed
by
Professor
Ibrahim Gambari
General Martin
Luther
Agwai (Rtd)
Professor Jibrin
Ibrahim
Professor
Attahiru Jega
Dr.
Usman Bugaje
Dr.
Chris Kwaja
Ambassador
Fatima Balla
Dr.
Nguyan Fesse
Mrs. Aisha
Muhammed –
Oyebode
Mallam Y. Z.
Ya'u
Professor Jibrin
IbrahimSenior FellowCentre for Democracy and
Development, AbujaFollow me on twitter
@jibrinibrahim17
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