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Ministère des affaires étrangères Direction du développement et de la coopérati

Ministère des affaires étrangères Direction du développement et de la coopération technique Bureau des politiques agricoles et de la sécurité alimentaire LES CAUSES STRUCTURELLES DE L’INSÉCURITÉ ALIMENTAIRE CHRONIQUE EN AFRIQUE Études de cas : Éthiopie, Burkina Faso et Zambie Rapport Jérôme Destombes Valor Consultants novembre 2003 AVERTISSEMENT : les analyses et conclusions de ce document sont formulées sous la responsabilité de son auteur et ne reflètent pas nécessairement le point de vue officiel du Ministère des Affaires Etrangères Français 2 Liste des abréviations ACDI : Agence canadienne de développement international APD : Aide publique au développement CE : Commission européenne CILSS : Comité inter-états de lutte contre la sécheresse dans le Sahel COMESA : Common Market for Eastern and Southern Africa CSLP : Cadre stratégique de lutte contre la pauvreté DIAPER : Projet diagnostic permanent EDS : Enquête démographique et de santé FAO : Organisation des nations unies pour l’alimentation et l’agriculture FEWSNET : Famine Early Warning System Network FIDA : Fonds international de développement agricole IFAD : International Fund for Agricultural Development IAC : insécurité alimentaire chronique IDH: Indicateur de développement humain IFPRI : International Food Policy Research Institute IMC : Indice de masse corporelle IPH : Indicateur de pauvreté humaine MAE : Ministère des affaires étrangères NPDA : Nouveau partenariat pour le développement de l’Afrique NEPAD : New Partnership for Africa’s Development ODM : Objectifs de développement du millénaire PAM : Programme alimentaire mondial WFP : World Food Program PIB : Produit intérieur brut PPTE : Pays pauvres très endettés PDDAA : Programme détaillé pour le développement de l’agriculture africaine UEMOA : Union économique et monétaire ouest-africaine VAM : Vulnerability analysis and mapping unit (WFP) ACV : Unité d’analyse et cartographie de la vulnérabilité (PAM) 3 TABLE DES MATIÈRES Summary 4 Résumé 10 Introduction 17 Chapitre 1 26 La pauvreté : une cause structurelle de l’insécurité alimentaire chronique en Afrique A. Piège de pauvreté et insécurité alimentaire chronique : une analyse de la vulnérabilité structurelle des modes de subsistance des populations rurales 27 A1. La distinction entre pauvreté et insécurité alimentaire chronique ou transitoire 27 A2. Une approche des causes de la vulnérabilité structurelle par l’étude des moyens de subsistance des populations 29 B. Le recul de l’insécurité alimentaire chronique passe-t-il par des politiques différenciées de lutte contre la pauvreté structurelle ? 33 B1. Lutter contre l’incidence prévisible de l’insécurité alimentaire chronique : enjeux et instruments 33 B2. La pandémie VIH/SIDA est-elle une cause structurelle d’insécurité alimentaire chronique en zone rurale ? 35 Chapitre 2 37 Diagnostiquer et prévenir l’insécurité alimentaire chronique : une priorité politique ? A. Des capacités nationales et régionales de diagnostic de l’insécurité alimentaire chronique inégales et accaparées par la prévention des crises 38 A1. Diagnostics croisés des causes structurelles de l’insécurité alimentaire chronique : quelques points de vue africains 38 A2. Trajectoires comparées de l’Éthiopie, du Burkina Faso et de la Zambie sur le front de l’insécurité alimentaire chronique 39 B. Les stratégies nationales de sécurité alimentaire : des arbitrages politiques favorables à un recul de l’insécurité alimentaire chronique des populations et des régions les plus vulnérables ? 41 B1. L’agriculture vivrière reste un facteur de vulnérabilité alimentaire chronique 41 B2. Les populations et les régions en insécurité alimentaire chronique : quelles marges de manœuvre dans un contexte de libéralisation et de désengagement des États africains de l’agriculture ? 42 Conclusion 44 Références bibliographiques 46 Annexes 50 4 SUMMARY 1. Objectives This report deals with the structural factors of chronic food insecurity (CFI) in sub-Saharan Africa (SSA). Its goal is to explain the continuous vulnerability of African rural societies to risks of food shortages. Conjunctural food crises sparked by physical or political chocks are not investigated (drought, locusts, epidemics, conflicts). Whereas the Sahel has not experienced region-wide food crises and famines since 1973- 1984, Eastern Africa and Southern Africa have remained prone to severe sub-regional food shortages. This contrast calls for investigation. Therefore, a comparative structural analysis has been conducted in three countries facing different patterns of CFI in both characteristics and magnitude. The first Millennium Development Goals (MDG) is to halve the proportion of people living on less than a dollar a day and those who suffer from hunger by 2015. The French Ministry of Foreign Affairs has supported the fulfilment of this MDG by supporting a multi- donor programme on African agriculture and poverty reduction within the New Partnership for Africa’s Development (NEPAD). The present report plays a part in preparing one leg of this programme which will address sustainable food security in vulnerable populations. 2. Work schedule After completing a literature review, an analytical framework and a classification of structural factors of CFI have been built. Emphasis has been paid to a joint analysis of chronic food insecurity and poverty in Ethiopia, Burkina Faso and Zambia. Interviews and the collection of data in SSA have been guided by this analytical framework and this classification. Consultancy in SSA had three objectives: (a) exploring structural factors of CFI and examining the characteristics of chronic food vulnerability in targeted populations; (b) assessing the capacity of information systems on food security to track and target populations in CFI; (c) analyzing the factors which obstruct the implementation of agricultural policies and rural development strategies conducive to a reduction in CFI and structural poverty. 3. Context and issues of CFI in SSA CFI is observable in subsistence crises which can be analysed according to three criteria: (a) the magnitude of their social, demographic and economic impact; (b) their temporal incidence; (c) their geographical scope. The most vulnerable social groups experience CFI as opposed to transitory food insecurity. A longer than expected seasonal divide between two harvests, or a local price-induced food shortage, are severe enough to push these groups in destitution. The most vulnerable populations are in CFI irrespective of fluctuations in food production, which are conducive to poverty traps. These populations are vulnerable in three respects: (a) a strong exposure to risks of CFI; (b) a weak ability to cushion subsistence stress; (c) a weak capacity for recovery once trapped in CFI. Chronic food insecurity is structural because it permeates coping strategies. Thus, a livelihood analysis is a necessary preliminary to a structural analysis of CFI. For example, this approach helps to understand the reluctance of farmers to intensify and to specialise in risky agro-ecological and social contexts. 5 Rural populations can be classified according to their experiences of chronic versus transitory poverty. This classification paves the way for examining the structural factors of CFI by helping to trace the most vulnerable groups and the factors which trap them in food insecurity. This distinction between chronic versus transitory food insecurity can now be found in a number of food security strategies adopted by African governments. One key insight of livelihood analysis is to explain the ways in which vulnerable rural households experience irreversible food insecurity. Livelihoods span resources and capacities mobilised by populations in their daily struggle for a living. Special attention must be paid to institutions and organisations regulating access to resources. Livelihoods are classified in three categories: • Viable livelihoods: households are in position to cushion, and recover from, food insecurity; • Vulnerable livelihoods: households are in precarious position to cushion, and recover from, food insecurity because their resources and capacities are under strain; • Destitute livelihoods: households have lost irreversibly their resources and capacities to cushion, and recover from, food insecurity. The exposure to vulnerability of CFI depends on household-level resources and capacities. It depends also on political, economic and social factors which bear upon access and management of resources in rural communities. Prominent factors conducive to CFI include agro-ecological, climatic and geographical conditions, demographic constraints (high population growth and morbidity), low productivity in agriculture and low value added in food farming. Africa is a historical nest of deep poverty and CFI. The continual and increasing vulnerability of rural livelihoods, in populations whose majority has remained producer and seller of agricultural products, is one of the prominent outcomes of Africa’s agricultural crisis. In 1998-2000, the value added per farmer in SSA was lower than those achieved by the group of low income countries and by South Asia. This value added had fallen by 6 per cent since 1988- 1990. The vulnerability of African rural societies to CFI is symptom, cause and consequence of the poverty trap faced by African populations. More than 24 per cent of poor people living in developing countries on less than a dollar a day, and a quarter of malnourished people, are African. With 34 per cent, the FAO indicators rank Africa first with respect to the proportion of people living in chronic malnutrition. This estimate made in 1998 was the same in 1969. Throughout the period 1950-2000, about 12 million Africans died in famines. However, more than 2.5 million children aged less than 5 years old die every year because of CFI. Daily hunger in SSA, as opposed to food crises, deserves scrutiny. In 1996-1998, the incidence of malnutrition was different in African sub-regions. The proportion of uploads/Geographie/ causes-insecurite-alimentaire.pdf