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Transhumance, Climate Change and Conflicts: Reflections on the Legal Implications of Grazing Reserves and Ruga Settlements in Nigeria

Published online by Cambridge University Press:  05 March 2020

Millicent N Ele
Millicent N Ele*
Affiliation:
University of Nigeria, Nsukka
*
[email protected]
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Abstract

In recent times, clash after clash has arisen between herdsmen and farmers in Nigeria. These conflicts were linked to the effects of climate change in northern Nigeria, but have been exacerbated by other factors including ethno-religious sentiments. Herdsmen forced to migrate southwards face intense competition for arable and grazing land with the farmers in Nigeria's middle belt. This invariably leads to conflicts, often resulting in gruesome murder and carnage. Thousands have died, many more have been maimed and millions displaced because of this crisis. As a solution, the Nigerian government proposes to set up grazing reserves and rural grazing area settlements in all states of the federation. The problem with this proposal is how and where to obtain the land. This article reflects on the legal implications of the proposal and argues in favour of grazing reserves and ranching on the basis of a private freehold / leasehold tenure arrangement, not through the compulsory acquisition of land by the government.

Keywords

Nigeriaclimate changetranshumancegrazing reserves and ruga settlementsranchingconflictherdsmen and farmers
Type
Recent Developments
Information
Journal of African Law , Volume 64 , Issue 2 , June 2020 , pp. 199 - 213
Copyright
Copyright © SOAS, University of London, 2020

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Footnotes

*

Lecturer in law, Faculty of Law, University of Nigeria, Nsukka, Nigeria. LLB, Nigeria; LLM, Columbia University School of Law, New York. Doctoral candidate in law, University of Aberdeen, Scotland, UK. Admitted to practise law in Nigeria and the State of New York, USA.

References

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2 Nigeria is bordered to the south by the Atlantic Ocean and to the north by the Niger Republic and the encroaching Sahara Desert.

3 Parry, M et al. (eds) Climate Change 2007: Impacts, Adaptation and Vulnerability (working group II contribution to the fourth assessment report of the Intergovernmental Panel on Climate Change) (2007, Cambridge University Press)Google Scholar.

4 Fulani herdsmen are the predominant nomadic ethnic group in Nigeria and the West African sub-region, mainly associated with livestock herding.

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6 R Troup Buchanan “Global terrorism index: Nigerian Fulani militants named as fourth deadliest terror group in world” (18 November 2015) Independent, available at: <https://www.independent.co.uk/news/world/africa/global-terrorism-index-nigerian-fulani-militants-named-as-fourth-deadliest-terror-group-in-world-a6739851.html> (last accessed 21 January 2020).

7 Toromade “How FG wants to put”, above at note 1.

8 L Johnson-Salami “Nigeria's grazing crisis threatens the future of the nation” (July 2019) Financial Times, available at: <https://www.ft.com/content/a56ccf22-a331-11e9-a282-2df48f366f7d> (last accessed 21 January 2020).

9 A McGregor “Alleged connection between Boko Haram and Nigeria's Fulani herdsmen could spark a Nigerian civil war” (16 May 2014) 12/10 The Jamestown Foundation Terrorism Monitor, available at: <https://jamestown.org/program/alleged-connection-between-boko-haram-and-nigerias-fulani-herdsmen-could-spark-a-nigerian-civil-war/> (last accessed 21 January 2020).

10 Johnson-Salami “Nigeria's grazing crisis”, above at note 8.

11 Laws of the Federation of Nigeria, 1990, cap 202.

12 Ibid. O Adeniyi “Nigeria: Buhari and the ruga malcontents” (11 July 2019) This Day, available at: <https://allafrica.com/stories/201907110662.html> (last accessed 21 January 2020).

13 Onuoha, F “Climate change, population surge and resource overuse in the Lake Chad area: Implications for human security in the north-east zone of Nigeria” in Mwiturubani, D, van Wyk, J, Mwebaza, R and Kabanda, T (eds) Climate Change and Natural Resources Conflicts in Africa (2010, Institute for Security Studies) 23Google Scholar.

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15 Ibid.

16 Ibid.

17 McGregor “Alleged connection”, above at note 9.

18 “Nigeria population”, available at: <http://www.worldometers.info/world-population/nigeria-population/> (last accessed 21 January 2020).

19 AC Godwin “Anti-open grazing law behind Fulani herdsmen killings: Nigerian government” (25 January 2018) Daily Post (Nigeria), available at: <http://dailypost.ng/2018/01/25/anti-open-grazing-law-behind-fulani-herdsmen-killings-nigerian-government/> (last accessed 21 January 2020).

20 MO Awogbade “Grazing reserves in Nigeria” (1987) 23 Nomadic Peoples 19.

21 Ibid

22 Hoffmann, I “Access to land and water in the Zamfara Reserve: A case study for the management of common property resources in pastoral areas of West Africa” (2004) 32/1Human Ecology 77 at 86CrossRefGoogle Scholar.

23 LUA, sec 48.

24 Id, sec 1.

25 AS Olomola “Pastoral development and grazing resource management in Nigerian savannah areas” (Nigerian Institute of Social and Economic Research) at 3, available at: <https://www.researchgate.net/publication/42762730_Pastoral_Development_and_Grazing_Resource_Management_in_Nigerian_Savannah_Areas> (last accessed 21 January 2020).

26 Ibid.

27 Ibid.

28 “Federal Republic of Nigeria” CBPR Database (Centre for International Environmental Law), available at: <http://www.ciel.org/Publications/CBPR_Nigeria_9-18-06.pdf> (last accessed 21 January 2020).

29 Second sched, parts I and II.

30 O Ogunmade “Senate rejects Grazing Reserve Bill, says it's unconstitutional” (10 November 2016) ThisDay, available at: <https://www.thisdaylive.com/index.php/2016/11/10/senate-rejects-grazing-reserve-bill-says-its-unconstitutional/> (last accessed 21 January 2020). Although the Nigerian Senate declined to legislate on this matter, it nevertheless remains unsettled and debatable. In view of the escalating crisis, and the legal conundrum surrounding the matter, the author views it as a critical issue in contemporary Nigeria, worthy of legal analysis.

31 National Grazing Reserve (Establishment) Bill 2016 (copy on file with the author).

32 LUA, secs 1 and 2.

33 Id, sec 5(1).

34 Confirmed by the Supreme Court in Osho v Foreign Finance Corporation (1991) 4 NWLR (pt 184) 157.

35 Id, per Obaseki JSC at 48, para A.

36 Attorney General of Lagos State v NEPA suit no LD/372/81 of 5 July 1982, High Court of Lagos State (unreported).

37 LUA, sec 6(2).

38 Ibid.

39 Nkwocha v Governor of Anambra State and Others (1984) 6SC 362; Ogunleye v Oni (1990) 2 NWLR (pt 135) 745 at 784; Ogunola v Eiyekole (1990) 4 NWLR (pt 146) 632 at 653.

40 The 1999 Constitution, sec 43.

41 Toromade “How FG wants to put”, above at note 1.

42 D Falade et al “Southern states tackle FG over cattle colonies” (13 January 2018) Tribune Online Ng, available at: <https://tribuneonlineng.com/southern-states-tackle-fg-cattle-colonies/> (last accessed 29 January 2020).

43 Jegede, AO “The protection of indigenous peoples’ lands by domestic legislation on climate change response measures: Exploring potentials in the regional human rights system of Africa” (2017) 24 International Journal on Minority and Group Rights 24 at 56CrossRefGoogle Scholar.

44 African Charter on Human and Peoples’ Rights, available at: <https://treaties.un.org/doc/Publication/UNTS/Volume%201520/volume-1520-I-26363-English.pdf> (last accessed 21 January 2020).

45 African Union Department of Rural Economy and Agriculture “Policy framework for pastoralism in Africa: Securing, protecting and improving the lives, livelihoods and rights of pastoralist communities”, available at: <https://au.int/sites/default/files/documents/30240-doc-policy_framework_for_pastoralism.pdf> (last accessed 21 January 2020).

46 S Daniel, E Ovuakporie, P Duru and R Ojomoyela “Nigeria: Anti-open grazing law: NASS, Benue, Kwara, Taraba tackle defence minister” (7 June 2018) Vanguard, available at: <https://allafrica.com/stories/201806070118.html> (last accessed 21 January 2020).

47 Ibid, as per the statement of the minister of defence, Mansur Dan-Ali. See also Godwin “Anti-open grazing law”, above at note 19.

48 Daniel et al “Nigeria”, above at note 46.

49 “The problem with Ruga settlement” (4 July 2019) This Day, available at: <https://www.thisdaylive.com/index.php/2019/07/04/the-problem-with-ruga-settlement/?amp> (last accessed 21 January 2020).

50 P Piak “Revive 1965 Grazing Reserve Law: Gambari recommends” (30 March 2018) Sunnewsonline available at: <https://www.von.gov.ng/revive-1965-grazing-reserve-law-gambari-recommends/> (last accessed 21 January 2020).

51 O Braithwaite “Nigeria: Taming the herdsmen” (14 November 2017) This Day, available at: <https://allafrica.com/stories/201711140243.html> (last accessed 21 January 2020).

52 BO Akinyemi “Bolaji Akinyemi exposes reasons why ruga settlements should be in the north” (21 July 2019) The World News, available at: <https://theworldnews.net/ng-news/bolaji-akinyemi-exposes-reason-why-ruga-settlements-should-be-in-the-north-must-read> (last accessed 21 January 2020).

53 Ibid.

54 Ibid.

55 Ibid.

56 R Muggah and JL Cabrera “The Sahel is engulfed by violence. Climate change, food insecurity and extremists are largely to blame” (23 January 2019) World Economic Forum, available at: <https://www.weforum.org/agenda/2019/01/all-the-warning-signs-are-showing-in-the-sahel-we-must-act-now/> (last accessed 21 January 2020).

57 Revised ECOWAS Treaty, art 3(2)(d)(iii).

58 Ibid.

59 ECOWAS decision A/DEC.5/10/98 Relating to the Regulations on Transhumance between ECOWAS Member States, Abuja, 31 October 1998, chap III, arts 5–9, available at: <http://ecpf.ecowas.int/wp-content/uploads/2016/01/Decision-1998-English.pdf> (last accessed 21 January 2020).

60 The ECOWAS member states are: Benin, Burkina Faso, Cape Verde, Côte d'Ivoire, The Gambia, Ghana, Guinea, Guinea Bissau, Liberia, Mali, Niger, Nigeria, Senegal, Sierra Leone and Togo.

61 ECOWAS decision, above at note 59.

62 Id, art 11.

63 “Livestock sector policy brief: Burkina Faso” (July 2004), available at: <http://www.fao.org/tempref/AG/Reserved/PPLPF/Docs/ESC/Policy%20brief/UGO_040716_Burkina%20Faso.doc> (last accessed 21 January 2020).

64 N Dyer “Securing pastoralism in East and West Africa: Protecting and promoting livestock mobility: Review of the legislative and institutional environment governing livestock mobility in East and West Africa” (April 2008) IIED Report, available at: <http://pubs.iied.org/pdfs/G03457.pdf> (last accessed 21 January 2020).

65 “The problem with”, above at note 49.

66 “ECOWAS calls for increased coordination to address security and developmental challenges in Sahel region” (19 September 2018) ECOWAS Int, available at: <http://www.ecowas.int/ecowas-calls-for-increased-coordination-to-address-security-and-developmental-challenges-in-sahel-region/> (last accessed 21 January 2020).

67 Examples include the agreements on the transhumance between Burkina Faso and Mali (1988), between Mauritania and Mali (1989) and between Mali and Côte d'Ivoire (1994).

68 P Veit “Rise and fall of group ranches in Kenya” (March 2011) Focus on Land in Africa, available at: <http://www.focusonland.com/fola/en/countries/brief-rise-and-fall-of-group-ranches-in-kenya/> (last accessed 21 January 2020).

69 Id at 4.

70 International Bank for Reconstruction and Development Kenya Second Livestock Development Project (World Bank report no 10, 1977).

71 Veit “Rise and fall”, above at note 68.

72 JG Galaty “The Masai group ranch: Politics and development in an African pastoral society” in P Salzman (ed) When Nomad, Settle (1980, Praeger) 157.

73 Ibid.

74 Ibid.

75 A Laithead “Are Kenya ranch invasions driven by drought or politics?” (4 February 2017) BBC News, available at: <https://www.bbc.co.uk/news/world-africa-38866389> (last accessed 21 January 2020).

76 See id at 6–7.

77 The Grazing Land and Animal Feed Resources Act, 2010, sec 16(1).

78 Id, sec 17(1).

79 Id, sec 17(2).

80 Id, sec 39.

81 S Domasa “Tanzania: ‘Government cattle ranches not doing well at present’” (6 June 2018) Tanzania Daily News, available at: <https://allafrica.com/stories/201806060304.html> (last accessed 21 January 2020).

82 Ibid.

83 The Grazing Land and Animal Feed Resources Act, secs 16(1) and 17(1).

84 G Abioye and Others v Sa'adu Yakubu and Others (SC 169/1987) [1991] 1; (1991) All NLR 1.

85 Id at 4–5.

86 Nugent “Land conflict”, above at note 5.

87 Ibid.

88 Awogbade “Grazing reserves”, above at note 20.

89 H Adobor “Solving the Fulani herdsmen and cattle grazing problem: Some business-based solutions” (10 January 2018) Ghanaweb, available at: <https://www.ghanaweb.com/GhanaHomePage/NewsArchive/Solving-the-Fulani-herdsmen-and-cattle-grazing-problem-some-business-based-solutions-615918> (last accessed 29 January 2020).

90 Ibid.

91 Braithwaite “Nigeria”, above at note 51.

92 ECOWAS decision, above at note 59.