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Pastoralism and Pastoralists in Sudan:A Stakeholder Mapping and Survey
HelenYoung,AfafRahim,AbdelhafizMohamed,MerryFitzpatrick
Background
Since2010,the Feinstein InternationalCenter(FIC)atTuftsUniversityhaveembarkedon amajor three-year
researchprojectonPastoralism,TradeandMarketswhichis partoftheUNEPSudanIntegratedEnvironment
ProjectfundedbyUKaidfromtheDepartmentfor InternationalDevelopment1.Thisshortreportsummarizes
thefindingsofathreestagestakeholdermappingexercise2,whichwasundertakenasafoundationalactivityto
inform subsequent research studies, and to promote and further develop stakeholder participation in the
project. Forthisproject, stakeholdersaredefinedasan individual,group,organization,or institution,which
affectsorinfluencespastoralismandpastoralistlivelihoodseitherdirectlyorindirectly.
TheTuftsworkbuilds uponandexpandsonourearlier research on livelihoods andconflict,which involved
studies of the early impact of conflict on peoples livelihoods, IDPs livelihoods, migration patterns and
remittance flows, and the marginalization and vulnerability of pastoralist livelihoods inDarfur. The earlier
undertakings,which spanned theyears2004-2009,werewidelydisseminatedanddiscussedbygovernments
andaidagenciesinanon-goingseriesofdebriefingsanddialogueinSudan,NorthAmericaandEurope.
Ourcurrentresearchcoverstwoseparatebutrelatedfields;pastoralismandpastoralistlivelihoods,andmarkets
and trade in the Darfur region. The pastoralist project aims to promote understanding of pastoralists
livelihoods systems among local, national and international stakeholders and to strengthen the capacity of
pastoralistleaders,organizationsandotheradvocatestoarticulatetherationaleforpastoralism.
Thisworkis inclosepartnershipwith severalnationalandinternationalpartners,includingUNEPSudan,SOS
SahelSudan,theDarfurDevelopmentandReconstructionAgency,theInternationalInstituteforEnvironment
andDevelopment,andtheNomadsDevelopmentCouncil.Italsodependsonthesupportandparticipationofa
widenetworkofnationalandlocalorganizations,professionalsandacademics.
Thispaperisdividedintothreeparts;Part1summarizestheobjectivesandmethodsusedineachofthethree
phasesofthestudy;Parttwopresentstheresultsfromthemapping,thestakeholdersurvey,andtheanalysisof
theUNdatabase;andPartthreepresentsthediscussionandconclusionsfromthiswork.
Part1:Athreephaseapproach
Pastoralist livestock production is practiced in every region and state throughout former Sudan, which is
probablyhometooneofthelargestpastoralistpopulationsinAfrica(althoughpreciseestimatesarehardto
comeby).Pastoralistlivestockproductionmakesaremarkablecontributiontosecuringlivelihoodsatthelocal
levelandalsotothewidernationaleconomyandtolivestockexports. Pastoralismisalsoconducivewiththe
sustainablemanagement of dryland environments. As well as being a crucially important rural livelihood,
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pastoralismisalsoaculturalidentitysharedbyruralandurbanresidentsalike.Therearemanypeoplewho
identify themselvesaspastoralistswhomaynolongerpractice livestockherdingorbeconnectedto livestock
production,yetmaintaintheiridentityasamemberofapastoralistgroup
Thespecificobjectivesofthisstakeholdermappingwereto:
1. Identifythebroadgroupsofstakeholders,asabaseforprovidingastrongfoundationandstrategyforensuringtheirparticipationthroughouttheproject
2. Reviewthenatureandleveloftheirinvolvementorinfluence.3. Solicittheirviewsonkeypoliciesandchallengesaffectingpastoralistsandpastoralistlivelihoodsystems.4. Identifythemechanismandstrategyformakinguseoftheanalysisinordertosupportandpromote
positivechange.
Threecomplementaryapproacheswereusedtoidentify,reviewandanalysetheinterestsofpastoralists.First,
theprojectteamidentifiedandcharacterizedthebroadcategoriesandsub-categoriesofstakeholders.Second,
aquestionnaire surveybuilton this earlierwork,by capturingtheprofileofindividualstakeholdersandtheir
institutions, includingananalysisof theirengagementwithpastoralists, andtheiropinionson challengesand
policiesaffectingpastoralistlivelihoodsystems. Third,adeskbasedreviewofthe2011UNprojectdatabase
allowedaprofilingoftheagenciesandprojectsthattargetpastoralistsorpastoralistlivestockproduction.The
resultsanddiscussionofthethreeanalyticalapproacheswerecompiledinaPastoralistsStakeholderMapping
Report,andinthisshortreportwesummarizeanddrawthemostimportanthighlightsfromthereport.
1. StakeholderidentificationThe first stage involved the identification ofbroad stakeholder groups,with an initial brainstorming by the
projectteam(Tufts,UNEP,SOSSahel)followedbyreviewing,furthercharacterizationandcross-checkingat a
multi-stakeholder groupmeeting in Khartoum. In total 14 broad stakeholder groups were identified. This
process in turn informed the development of the stakeholder questionnaire for the second stage of the
mapping,andensuredtheinclusionofinternational,nationalandsub-nationallevels.
2. QuestionnairesurveyTrainedenumeratorsconductedface-to-faceinterviewswithstakeholderscoveringeightstatesinNorthSudan
including: Khartoum, North and South Darfur, North and SouthKordofan, BlueNile State, Sinnar State and
Gedaref.Coverageofthesurveywasfurtherexpandedbysimultaneouslyundertakingareplicaonlinesurvey
distributedbyemailtonationalandinternationalstakeholdersbothinSudanandabroad.Snowballsampling,
which encouraged respondents toname otherpotential interviewees or forward the online survey link,was
usedtoincreasecoverageofthesurveybeyondtheinitialsample.Thequestionnairecoveredtherespondents
background,theirorganization,sectoral focusandprogrammaticengagementwithpastoralists. Italsoasked
theiropinionsonchallengesandpolicyissuesaffectingpastoralistlivelihoodsystems.Thesurveytookplace
duringFebruarytoMarch2011,withtheonlinesurveyopenforrespondentsfor6months.
3. AnalysisoftheUNprojectdatabaseAn excel file listing the projects in the 2011 UN database was obtained from the UN Office of Resident
Coordinator/HumanitarianCoordinator(UNORC/HC).Atotalof4793projectslistedonthedatabasewitha
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totalvalueof$137,788,159,wereselectedforfurtheranalysis.Theseprojectswerereviewedtodetermine:the
scale and distribution of agency engagementwith pastoralists, the programmatic or sectoral focus, and to
identifytheorganizationswithpastoralistsastheirtargetcommunities.
Limitationsofthestudy: Itshouldbenotedthatthestudyisanoverviewofstakeholders,theiractivitiesand
perspectivesoncertainissues.Itisnotacomprehensiveanalysisoncapacities,effectivenessandimpacts.
ItisnotpossiblefromtheUNdatabasetoaccuratelyestimatethebudgetdedicatedtopastoralists,astheseare
usually incorporated into projects that are aimed at a broader population or other sectors not benefitting
pastoralists. Inorder to improve estimates, two separateestimates weremade, including those livelihood
programswithsignificantpastoralcomponentsandthosewithfarsmallerpastoralistcomponents.However,
eventhosewithsignificantcomponentsappearedtobelessthan20%relatingtopastoralists.
Part2:Results
2.1WhosWho?StakeholderIdentificationandMapping
Pastoralists as a group and pastoralism as a livestock production system encompass multiple wide-ranging
interestsacrosssectors,disciplines,stateandnon-stategroups.Intotalsome14broadstakeholdercategories
wereidentified,including:
1. Government, Federal and State Levels forPoliticalandCivilAdministration.
2. PastoralistGroups(wheretheyhaveadistinctgroupidentity)and
Customary/LocalGovernance
3. InternationalOrganizations4. NonStateActors5. UniversitiesandResearchInstitutions6. InternationalNationalUniversities
bilateralagreementsandinitiatives
7. OtherLivelihoodGroups8. TradersandConsumers9. PrivateSector10.ArmedGroups11.Media12.RegionalBodies13.FinancialInstitutions14. InternationalNationalInitiatives
Withineachcategory,therearemultiplesub-categories;departments,units,etc.,someofwhomhavespecific
responsibilitiesthatinfluenceorimpactpastoralismandpastoralistlivelihoods.
KeyGovernmentDepartments
AsthisprojectisconcernedwithbothpastoralismasalivelihoodsystemandpastoralistsascitizensofSudan,a
widerangeofgovernmentministriesatbothfederalandstatelevelarerelevant.Amoredetailedbreakdownof
ministries,departmentsandtheirroleandfunctionandrelevancetopastoralismisavailableinthefullreport.
TheMinistry of Animal Resources andFisheries (MARF) is of particular interest and importance to livestock
producers. Despite the focus on livestock, there is little acknowledgementof the importance of pastoralist
livestockproduction.GenerallyMARFisorientedtowardscommercialproductivityqualityandquantity,and
generatingexport revenues. Thenewthree yeareconomic strategy forSudan highlights three aimsfor the
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livestock sectorrelatedto:privatization;settlementof pastoralistsand improved cross-breeding. A focuson
pastoralist production systems is not explicit, for example, livestock censuses and estimates of production
rarely,ifever,acknowledgethesourceofproduction.
Withinthegovernmentsectorthereareonlyadisproportionatelysmallnumberofkeydepartmentsthathavea
specificfocusonpastoralismorpastoralistissues.Keygovernmentdepartmentswithanexplicitfocusonissues
ofconcerntopastoralistsincludetheGeneralAdministrationofPasturesandFodder(National/Federal)within
the Ministry of Animal Resources and Fisheries; and the Department of Education for Nomads within the
MinistryofGeneralEducation.ThisdepartmentwasestablishedbyadirectpresidentialdecisioninMay2000,
andhassetupsub-departmentsinallnorthernstatesfortheeducationofnomads,withtheexceptionofGezira
State. Theaimis toabsorb99%ofnomadicchildrenintoeducationby2015,paying specificattentionto the
educationofgirls.
Theorganizational homeof thepasture and fodder department has been transferredmany times between
differentministriesrelatedtoagriculture,livestockandnaturalresources,thusstiflingitseffectiveness.Most
recentlyithasbeensituatedwithinMARF.Themaintasksofthisdepartmentaretheformulationofregulations
forefficientprotectionofpasture,providingtechnicalsupporttoStates,andcoordinatingandcooperatingwith
relevantgovernmentandnon-governmentinstitutes/departments.Atthetimeofwriting,furtherrestructuring
andre-organizationofministriesisapparentlyunderwayasthegovernmentofSudanisreviewingnewausterity
resource-savingmeasures.
TheZakatChamber,undertheMinistryofExtensionandReligiousAffairs,isresponsibleforthecollectionof
obligatoryzakatpayments,theirmanagementandtheirdisbursementforcharitableandreligiouspurposesin
accordancewithIslamiclaw.Zakatpaymentsareobligatoryforanimalsnotusedforploughinglandorother
work,whichareownedforatleastoneyear.Theminimumherdsizeforthe zakatis5camels,30cows,or40
goats andsheep. There arespecific problemswith collectingthe livestock-basedzakat payments, including:
evasionofpayments;insecurity;livestockresidinginmultiplestatesandprovinceswhichmakesitunclearwhere
thecollectionsshouldoccur;andthehighadministrativecostforzakatcollectionandsupervision.Giventhe
scaleoflivestockproductioninSudan,thisisamajorsourceofrevenuefortheZakatChamber.
BodiesRepresentingPastoralists
There are two majorbodies representing pastoralists at national level: the PastoralistsUnion (PU) and the
Nomads DevelopmentCouncil (NDC). The PU isthe trade unionor guildforPastoralists inSudan, acting as
coordinatorbetweenthepastoralistsandotherrelevantactors. Theworkiscarriedoutona voluntarybasis.
The future of the long established PU, however, is unclear, and it is likely to be dissolved when the 2010
AgricultureandAnimalsProducersAssociationActisfullyimplemented.
TheNDCisarelativelyneworganizationandisinitiallyfocusingitseffortsontheDarfurregion.Thestrategic
goaloftheCouncilistocreateawell-developednomadiccommunityandpromotesustainabledevelopmentto
achieveprosperityandwelfare,withparticularfocusonimprovingthestatusofnomadicwomenasanessential
elementinthepromotionofaspiritofpeaceandpeacefulcoexistence.
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CivilSocietyOrganizations
Pastoralistsandpastoralismarenotwellrepresentedbycivilsocietyorganizations(CSOs)inSudan.Atnational
level there areonly fourSudanese NGOsworking specifically to highlight andaddress pastoral concerns (Al
Massar,Elhawdag,theSudanCamelAssociation(SUCA)andthePastoralismAssociation(PAS)).Regionally,for
exampleinDarfur,inasurveyofCSOsonlyfourCSOsfocusonpastoralistsoutofatotalsampleof1044,which
islessthan5%oflocalagenciesontheground.Thisverypoorcivilsocietyrepresentationisamajorobstaclefor
outreachtopastoralcommunitiesandwiderrepresentation.
Sincethisstakeholderreportwasfirstwritten,theCenterforHumanitarianDialoguehasestablishedaNomadic
NetworkinNyala,ElFasherandElGeneina.ItalsofacilitatedanumberofworkshopsinJune2011toenable
the nomadic communities to discuss humanitarian and reconciliation activities with the national and
internationalagencies.
2.2.SurveyResults
The survey coverage wasmuch larger thanexpected, asa result ofthepractical supportofthePastoralists
UnionandtheNomadsDevelopmentCouncil,andbecauseofthehigherthanexpectedresponsetotheonline
questionnaire5.Atotalsamplesizeof505responses,including298viaface-to-faceinterviewsand207usingthe
onlinequestionnaire,wasachieved6.
Geographiccoverage
Figure1showsthegeographicdistributionofthesamplebyfivegeographicalareas:KhartoumRegion,West
Region(NorthandSouthDarfurStates,NorthandSouthKordofan),EastRegion(Gedaref,SinnarandBlueNile
States),SouthRegion(coversallSouthSudanstates),andfinallyan"Abroad"categorytocoverthediasporaand
theinternationalstakeholdersliving/workingoutsideSudan.StakeholdersbasedinWestSudanrepresentthe
bulkofoursample(40%)whilethenextlargestgroupisKhartoumbasedstakeholders(26%).Thesampleis
largerforWestSudanasfieldteamsfromTufts,SOSSahel,andtheNomadsDevelopmentCouncil,wereableto
visitNorth and South Kordofan, and North, SouthandWest Darfur, all ofwhich fall underWest Sudan. In
additiontheNorthDarfursampleincludedatleast20intervieweesfromeachof5localities(Kutum,Kebkabiya,
Waha,ElFasherandMalha/Mellit).
Figure1GeographiccoverageofthesurveysamplebyRegion7
0 10 20 30 40 50
Khartoum
WestSudan
EastSudan
SouthSudan
Abroad
Khartoum WestSudan EastSudanSouth
SudanAbroad
RegionPercent 26 40 14 3 3
RegionPercentinthesample
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Organizationalcategories
Respondentsweredrawnfromtheentirerangeofstakeholdergroupsidentifiedearlier,andthesewerefurther
aggregated into four groupings:GovernmentInstitutions (governmentdepartments andnationalmedia)with
32% of the sample, International Actors (internationalNGOs, UNagencies anddonors)with 25%,Non-state
Actors(NationalNGO,TribalLeadership,PoliticalRepresentatives,Association/UnionsandPrivateCompanies)
with28%,andUniversity/ResearchInstitutesrepresenting15%ofthesample.
Figure2 shows therepresentationof each organizational category in theonlinesurvey. University/research
institutes represent 49% of the online sample (most of which are national), followed by government
departments (18%). Many government employees receiving the initial email invitation to the online
questionnaire forwarded thelink tocolleaguesthey thoughtwouldbeinterested. The largeonlineresponse
fromgovernmentemployeeswhoreceivedandrespondedtotheseforwardedsurveylinksisindicativeofahigh
generalinterestinpastoralistissueswithingovernmentdepartments.
Figure2Representationoftheorganizationalcategoryintheonlinesurvey
Sectoralfocus
Overall, stakeholders were most heavily involved in food security, natural resource management, conflict
resolution and livelihoods. As expected, research and training are associated with Universities/Research
Institutes. Non-state Actors, on the other hand, are involved mainly in conflict resolution and political
representationandGovernmentInstitutionsareheavilyinvolvedinfoodsecurity,naturalresourcemanagement
and in conflict resolution. In contrast, International Actors have considerably less involvement in conflict
resolutionandpoliticalrepresentation,andtendtofocusonrelief,research,trainingandmedia.
MultipleChallengesFacingPastoralistsinSudan
Surveyrespondentswereaskedtodescribe intheirownwordsthreemajorchallengestopastoralismand list
them in order of importance. Answers were clustered into 10 broad groupings (Table 1). Fully half of
respondentsanswers(50.4%)fellintothefirstcategoryEnvironmentandNaturalresourceIssues,showinga
GovernmentDept.
University/ResearchInstute
InternaonalActors
NonStateActors
Nocategory
18
49
17
14
1
20
73
23
31
14
Percentofonlinesampleofthetotalcategorysample StakeholderCategorypercentoftheonlinesample
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strong belief that the major challenges facing pastoralists are issues related to the environment,
unavailability/depletionofnaturalresources,andgeneralproblemswithnaturalresourcemanagement.
The four top-ranked categories include: environment and natural resource challenges (50.4%); conflict and
security (12.9%); basic services (education and health) (11.7%), mobility and livestock migration (9.6%).
Together, these four categories account for more than 84 per cent of all the answers given as the major
challengefacingpastoralism,withenvironmentalchallengescomingouthighest.
Table1Thefirstmajorchallengefacingpastoralistsaccordingtorespondents(openquestion)
ChallengingArea Number Percent
ENVIRONMENT&NATURALRESOURCESISSUES 211 50.4%
Waterscarcity (16%)
Pasturescarcity&depletion (10%)
Generalproblemswithnaturalresourcemanagement (8.1%)
Agriculturalexpansion (5.5%)
Landtenureandrights (4.1%)
Climate&climatechange (3.8%)
Desertification/declineinNR (2.9%)
CONFLICT& SECURITY (national and local level tribal and natural resource conflict, &
security) 54 12.9%
EDUCATION,HEALTH&BASICSERVICES 49 11.7%
MOBILITY,livestockmigration&livestockroutes,restrictionofmovement 40 9.6%
Governmentpoliciesandmarginalization 17 4.1%
Livestockhealth 13 3.1%
Governancevoice 11 2.6%
Poorunderstandingofpastoralism 8 1.9%
Finance&trade 6 1.4%
Other* 9 2.2%TOTAL 409 100%
Nextrespondentswereaskedtoratealistof16predefinedchallengesaseither:amajorissue,minorissue,not
an issueor "don't know." Figure 3 shows the six challenges receiving the highest scores as amajor issue,
including; lackofbasic services andpoor investment inhuman capital (88%); natural resourcemanagement
(86%), lack of understanding of pastoralist issues among policy makers (83%), land rights and tenure
arrangements (79%). Survey respondents in the face-to-face interviews and in the online survey identified
broadlysimilarchallengesfacingpastoralists.
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Figure3 MajorchallengesfacingpastoralisminSudan(closedratedquestion)
Thisclosed ratingquestion allowed respondents to choose anynumber of "major issues". Theopen-ended
questionaboutchallenges,ontheotherhand,forcedrespondentstoselectoneissueasthefirstchallenge,one
issueasthesecondchallenge,andsoon.Whilethisislimitingitwasfoundthatrespondentsoftenlistedother
commoncategoriesastheirsecondorthirdchallenge.Sowhilesomeissueswereonlymentionedafewtimes
as thefirstchallengee.g. governanceorvoice ofpastoralists, overallthiswasmentionedmanytimesas the
secondandthirdchallenge.
While this analysis allowed the consensus issues to emerge (natural resources, conflict, basic services and
mobility) it also shed light on the diversity of current challenges that are felt to be affecting pastoralists,
including for example, climate change, desertification, secession and cross-border issues, expansion in the
extractiveindustries,changesinlifestyleandlivelihoods.
DifferingPerceptionsbyRegion
Interestingly, the survey found differences in perceptions between stakeholders in different geographical
regions,withKhartoum-basedandonlinerespondentsreflectingdifferingviewsfromthoseatStatelevel.The
starkestexamplewaswater,whichwasmentionedastheprimarychallengeinEastSudanby19%andinthe
Westby30%ofrespondents,butinKhartoumonly3%ofrespondentsmentionedwaterandonly5%inthe
onlineresponses.TheimportanceattachedtoNaturalResourceManagementandPastureandRangelands8also
variedaccordingtolocation,withNaturalResourceManagementmoreofachallengeintheWestthantheEast,
andPastureandRangelandmoresointheEastthantheWest.InwesternSudanthesecondmostpressing
challenge facing pastoralists was conflict. Education was prioritized as the major challenge by 13% ofstakeholdersinKhartoum,whileineasternSudanandwesternSudanonly6%ofstakeholdersmentionedit.
LandIdentifiedastheMainPolicyIssue
Respondentswereaskedfortheiropinionregardingthemainpolicyissuesaffectingpastoralists,andtheresults
aresummarizedinTable2.Nationallegislationrelatingtolandwasbyfarthetoppolicyissue,mentionedfirst
by34%ofrespondents,withmanyrespondentsreferringtotheUnregisteredLandActof1970.Thissuggests
88
86
83
79
78
75
Lackofbasicservices/poorinvestmentinhumancapital
NaturalResourceManagement
Lackofunderstandingofp astoralistissue samongplannersand policymakers
Landrightsandtenurearrangements
Marginalization indevelopmentandsoc io-economicpolic ies
Conflicttrendsandmilitarization
Topmajorchallengesfacingpastoralism
Percent
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thatwhilewaterandothernaturalresourcesareseenasthemajorchallengesfacingpastoralists,itislikelythat
landlegislationisthemajorinfluenceordeterminantofaccesstothoseresources.
Thesecondmajorpolicyissueconcernedlivestockcorridorsanddemarcationofstockroutes(14%).Whilelaws
exist,severalrespondentsnotedthat theyareeithernotenforcedorareignored. Thethirdsetofimportant
policyissuesrelatedtoagriculturallawsandpolicies,specificallyaccesstopasture, farmingcorporations,and
distinctionsbetweenpastoralandagriculturalland.
Table2 Importantareasofnationallaws,regulationsandpoliciesthataffectpastoralismmentionedbyrespondents
Policyarea Number Percent
Landlaw 67 33.8%
Livestockcorridors/demarcation 28 14.1%
AgriculturalLaws 17 8.6%
Naturalresources,forestry 16 8.1%
Localgovernance 10 5.1%
Taxation&livestockfees 10 5.1%
Animalhealth 7 3.5%
CPA&secessionrelated 7 3.5%
Pastoralinstitutions 6 3%
InvestmentPromotion 5 2.5%
Trade&exportofanimals 5 2.5%
Mechanizedfarming 4 2%
Federalism 3 1.5%
LandCommission 2 1%
Security/proxymilitiaformation 2 1%
Zakat 2 1%
Other 7 3.6%
Numberofresponses 198
Noresponse 307 60.8%
Thenon-responseratetothisquestionaboutpolicyissueswasrelativelyhighat61%.Thisis likelyduetothe
difficulty of theopenquestion,which requires specific knowledge of policiesand legislationas it influences
pastoralismandpastoralists.
Opinionsonthe2010AgricultureandAnimalProducersLegislativeAct
Toassessstakeholdersawarenessofnewlawsandlegislationpertainingtopastoralists,theywereaskedaboutthe recent 2010 Agriculture and Animal Producers Legislative Act. This act would effectively cancel the
Organizations of Farmers and Pastoralists Act of 19929. If the new 2012 Act is endorsed by the General
Assembly,pastoralistswilllose theirownuniquenationallyrepresentativebodyand the1992Actwillnotbe
effective.Asmembershipoftheproposedagricultural&animalproducersorganizationsisopentoallthose
whoownagriculturalandanimalresources,itislikelythatpastoralistissueswillbeovershadowed.
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Thevastmajority(85%)ofrespondentswerenotawareoftheexistenceof thisnewlegislation;of thosethat
hadheardofitmostwerefromeitherGovernmentInstitutionsorNon-StateActors.Giventheimplicationsfor
pastoralistsintermsoflocal,regionalandnationallevelrepresentationthislowlevelofawarenessisofserious
concern.Supportofthenewlegislationvaried;amongtheNonStateActors40%generallydisagreedwiththe
newact,while28%supportedin.Forthegovernmentstakeholdergroup,36%disagreedwhile33%supported
it,thusindicatingasplitinopinion.
2.3UNprojectdatabaseresults
SeveralnationalandinternationalorganizationsareworkingwithpastoralistcommunitiesaspartoftheSudan
2011UNwork plan. A reviewof the UN 2011 projectsdatabasewas undertaken inorder togaina better
understanding of the scale and type of UN supported programmes with pastoralists, their distribution
throughoutSudan,andalsotoidentifythemainorganizationsworkingwithpastoralists.
Projectsthatincludedpastoralistsasoneofseveral targetgroupswerevaluedatapproximately22millionUS
dollars(about16%ofthetotal),ofwhichatmost$5millionmaybetargeteddirectlyatpastoralists(lessthan
4%ofthetotal$137MUNworkplan).Eventhisisanover-estimate,aslessthan20%ofthetotalbudgetis
usuallytargetedatpastoralists,with a largerportion supportinglivestockbelongingtoagro-pastoralists,who
oftendonotsharesomeoftheuniquebarriersfacingmobilepastoralists.Geographically,theDarfurregion
appearsto receivelargeramountsof fundingwithapastoralistcomponent(about$9million) comparedwith
other regions in North and South Sudan. However, as explained below only a small proportion of the
programmedtotalistargeteddirectlyatpastoralists.
InnorthernSudan,nearlyalllivelihoodprogrammingdirectedatpastoralistsoragro-pastoralistsarerelatedto
animal health, primarily Community Animal Health Workers (CAHWs) involved in extension, vaccination
campaignsandensuringthedrugsupply.Acoupleofprogrammesareconcernedwithmorebroadlyaddressing
theparticular challenges to theviability of pastoralism as a livelihood system,with ACORDsprogramme in
easternSudannotableinthisrespect.Therewerealmostnoprogrammestargetingotherchallengesorpolicy
issueshighlightedbythestakeholdersurvey.
InSouthSudan,nearlyeveryoneisconsideredprimarilypastoralistwithotheractivitiessuchasfarmingand
fishing counted as secondary activities. Nonetheless, most livelihood activities are aimed at increasing the
productivityofthefarmingandfishingactivities.Thereisonlyoneenvironmentalprogramme(RADA)listedin
thedatabase.Inthis,pastoralismisseenasachallengetonaturalresourcemanagement,statingPastoralismis
rapidlygivingwaytocultivationoflandthatisdegradedbecauseofovergrazingandsoilerosion.
WASHprogramsoccasionallyincludeadaptationsforwateringanimals.Severalmentionbuildingdamsorhafirs
toprovidewaterforanimals,partlytoreducesourcesofconflictwithpastoralists.
Educationisoneareawherethespecialneedsofnomadsareoccasionallytakenintoaccount,thoughitisinthe
minorityofthecases.Veryofteneducationprogramsstatespecificallythenumberofnomadstargetedwithin
theirbeneficiarycounts,butdonotindicateiftheeducationservicesareadaptedtoservepastoralists.Two
education programs specifically highlighting nomadic children propose to build static classrooms. Most
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educationprogramsexpectnomadicchildren toattendnormal staticschoolswithsedentarychildren,though
theAlMassarCharityOrganization forNomadsmentionsthatthereis tensionwhenthenomadicchildrendo
attendtheseschools.
Healthandnutritionprojects,liketheeducationprogrammes,oftenlistnomadsamongtheirbeneficiariesand
say theywill target themasa vulnerable group, but donot appear todo anything specificto adapttheir
servicestotheparticularneedsofnomads.NoneappearedtomentiontrainingCHWsamongstthenomadic
familygroupssotheywouldhaveaccesstocarewhilemobile.Instead,theywereexpectedtoattendclinicsin
thesamewaythesedentarypopulationlivingneartheclinicswould.
Part3:DiscussionandConclusions
Identificationandreviewofstakeholdergroups
Given the size and scale of pastoralism in Sudan, there appear within the government sector a
disproportionatelysmallnumberofdepartmentsthathaveaspecificfocusonpastoralismorpastoralistissues.
Key departments include the General Administration of Pastures and Fodder, and also the Department of
Education forNomads,whicharebothseriouslyunder-resourcedand lack thecapacitytoproperly fulfiltheir
mandates.
There are two major bodies representing pastoralists at the national level; the Pastoralists Union and the
NomadsDevelopmentCouncil.Thefutureofthelong-establishedPUisunclear,andislikelytobedissolved
whenthe2010AgricultureandAnimalProducersActissignedandimplemented.TheNomadsDevelopment
CouncilisarelativelyneworganizationandisfocusingitseffortsontheDarfurregion.Civilsocietyingeneral
providespoor representation of pastoralist issues, especially at national level with only four NGOs working
specifically to highlight and address pastoral concerns (Al Massar, Elhawdag, SUCA and the Pastoralism
Association). Regionally, forexamplein Darfur, there arespecific local CSOs butthese still representa very
smallminority of the total number of CSOs in operation. This poor civil society representation is amajor
obstacleforoutreachtopastoralcommunities.Thelackofawarenessoflegislationandthelackofinvolvement
of certain key organizational categories in advocacy, research and governance means that outreach to
pastoralists,andtheirvoiceingovernanceislimited.
Goodresponsetostakeholdersurvey
The survey results provide a comprehensive overviewof a rangeof stakeholder groups mainly in northern
Sudan,theirsectoralinvolvement,andtheirawarenessandopinionsofthepolicyissuesandchallengesaffecting
pastoralistsandpastoralistlivelihoodsystems.
ThehigherthanexpectedsurveycoveragewasmadepossiblethroughthesupportoftheNomadsDevelopment
Council and the Pastoralist Union, and also through the better than expected response, especially within
government,to theonlinesurvey. Fewif anygovernmentworkerswere sent theonlinesurveylink directly
(assumingtheywouldbereachedinfacetofaceinterviews)yetalargeproportionreceivedthelinkindirectly
from colleagues who had passed it on by email. This suggests that despite a lack of official institutional
commitmentstopastoralism,thereisawideinterestandengagementonthepartofcivilservants.
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Thelow response rate tothepolicyand legislationquestions indicates a lackof understanding anda gapin
knowledgeinthisarea.Additionallythemajorityofrespondentswerenotawareoftheimpendingchangesto
legislationthoughit is likely tohave implicationsfor representationofpastoralistsat nationallevel, andwill
essentiallymakethePUdisappear.Policybriefingsandinformationupdatesareurgentlyneededtoimprovethe
generallypoorlevelofawarenessofcurrentlegislativechangesaffectingpastoralists.
Thesurveyfindingsalsoindicatedthatopinionsofthemajorchallengesfacingpastoralistsvariedaccordingto
location,withKhartoum-basedandonlinerespondentsreflectingdifferingviewsfromthoseatStatelevel.This
indicatesthatabroadcanvassingofstakeholderviewsatlocallevelisneededinordertoavoidelitecaptureof
thepastoralistpolicyagenda.
Limitedinvolvementoftheinternationalcommunitywithpastoralists
ThisreviewoftheUNworkplanfor2011indicatesthatpastoralistsaregenerallyunder-representedorpoorly
consideredintheUNhumanitarianandrecoveryprogramscoveringbothSudanandSouthSudan.Thisechoes
thegapswithinthenationalandstatelevelgovernment.
Mismatchbetweenprogrammesandchallengesfacingpastoralists
While livelihoods programming appears to be the major programming area reaching pastoralists, it is not
generallyfocusedonthoseissuesthatwereidentifiedbystakeholdersasthemajorchallenges,whichincluded
naturalresources,conflictandsecurity,education,healthand basic services aswell asmobilityand livestock
migration.Thesewiderissuesrepresentthepredominantchallengesfacingpastoralists,atleastthreeofwhich
are linked to land legislationand customary law. It isthisarea ofpolicy and practice thatwarrantsgreater
attentionandanalysisinordertoredirecttheprogramsandstrategiesoftheinternationalcommunity.
Howbesttoengagewithstakeholders:thebeginningofapastoralismnetworkandforum
This pastoralist project is founded on a partnership of collaborating international, national and local
organizations that share the same interests and overarching project goal. This pooling of the respective
competenciesof theprojectpartnershasprovedinvaluable intakingtheproject forwardandensuringwider
support. Forexample,in itsfirstyeartheproject signedaMemorandumofUnderstandingwiththeNomads
Development Council, and developed a collaborative relationship with the Pastoralist Union through the
partnership with SOS Sahel. These three national groups actively supported the implementation of the
Stakeholder Survey, and also the Pastoralism Validation Workshop in Wad Medani in April 201110. This
workshopbroughttogethermorethan35nationalrepresentativesofthestakeholdersincludedinthissurvey.
This multi-stakeholder group has endorsed the project approach, and a smaller team selected from this
referencegroupisworkingtoadaptapolicytrainingtothecontextofSudan.
Thestakeholdermappingandsurveyhasgeneratedanetworkofstakeholdersdrawnfrommultiplesectorsand
regions,whichwillserveasastrongfoundationforcontinuingstakeholderengagementthroughoutthelifetime
oftheproject.Respondentswereinvitedtosubmittheirdetailstoanonlinemailingdatabasethatwillbekept
updated and open tonew members. This approachof seeking out stakeholders, soliciting their views and
opinions,andimportantlyseekingtheirendorsementandsupportofprojectactivitiesservestwopurposes;first
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