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Many have to ration food in the household and make difficult trade-offs between buying food or paying for other necessities such as electricity; some rely on neighbours for energy for cooking. Some people are even driven to engage in crime in order to put food on the table. However, such strategies do not guarantee adequate food.
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It was clear from the FGDs that very few people like to ask neighbours or relatives for food because of their sense of pride and the stigma attached: participants concurred that people do not want to be seen to be begging for food from neighbours. Social pressures mean that some households prefer to be food-insecure during the week but ensure that they have enough to eat on Sundays. ‘I would rather go hungry the whole week and manage to eat meat on Sunday.
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Eating good food on Sunday is important for us in the coloured community.’ - Community member, Langeberg, Western Cape Where nutrition programmes and soup kitchens are working effectively – as in Bloemendal and KwaNobuhle – they have reduced food insecurity for children, as parents have to prepare just one meal a day in the evening. In Ngqushwa and Bloemendal, however, some parents admitted that they dreaded the school holidays as they did not have food to give their children.
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FGD participants in Limpopo said that they used to dig pits and bury maize and sweet potatoes to cater for times of scarcity, but nowadays children would not eat such food. Borrowing from loan sharks to buy food runs the risk of ending up in bigger debt and losing property, bank cards or household items if the loan is not paid back. For child-headed households, solidarity can be an essential coping mechanism.
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Child heads of household in Bloemendal said that they often took care of friends who were in an even worse situation than themselves and shared the little food that was available. Opinions were mixed on food gardens as a coping strategy. The government is encouraging poor families to grow their own food in small gardens; however, some key informants argued that urban gardens are insufficient to guarantee long-term food security as they are high-risk – they require inputs and are labour-intensive.
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A significant number of FGD participants said that they did not grow food because water was too expensive. However, several others were eager to start food gardens but did not have the information they needed or seeds, equipment or fences to protect the produce from animals and thieves. Overall, FGD participants were inclined to see producing their own food as the most sustainable coping mechanism.
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An FGD member in Langeberg pointed out, ‘The reason we are food-insecure is that we buy everything, so we need to produce and sell stuff and then use the money to buy what we need.’ This was echoed by participants in other locations. 28 people facing hunger have less variety of food 29 Government policies do exist to tackle hunger but there are severe gaps with piecemeal implementation and lack of coordination at local level, and such policies are failing the 13 million people who face hunger.
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The country’s Constitution enshrines the right to sufficient food and water under Section 27, which obliges the State to take reasonable legislative and other measures to achieve the progressive realisation of these rights. This section offers a limited summary, within the scope of this study, of some policies that focus on food and hunger. the integrated food security strategy (ifss) The IFSS was introduced in 2002 with the goal of eradicating hunger by 2015 - which it is a long way from achieving.
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The strategy attempts to coordinate a series of programmes across departments under the leadership of the Department of Agriculture, Fisheries and Forestry (DAFF). Its objectives cover a range of food security factors and include initiatives such as the Comprehensive Agriculture Support Programme (CASP) to support vulnerable groups, school feeding programme, social grants and a public works programmes.
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However, communities in this study lamented the lack of coordination, maladministration and poor targeting of initiatives at local level. In Tshiombo, FGD participants claimed that schools often did not receive food, leaving children who rely on school for a daily meal hungry.
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The strategy has been criticized by others for poor leadership and lack of coordination (Drimie and Ruysenaar, 2010) and for containing a number of gaps such as accessibility, gender, comprehensive support to small-scale producers, environmental sustainability, climate change and the role of the food industry. integrated food security and nutrition This programme was introduced in 2006 and aims to increase production. It is run by DAFF.
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It is run by DAFF. the national developMent plan (ndp) The NDP identifies food and nutrition security as a key element of addressing poverty and inequality. It sets a goal to achieve food security by 2030, with proposals including the expanded use of irrigation, security of land tenure, especially for women, and the promotion of nutrition education.
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zero hunger prograMMe The zero Hunger Programme of 2012 was based on the successful Brazilian model and included a programme for government institutions to procure from local small-scale producers. However, it never became policy and lacked support. While its Masimbambisane Rural Development Initiative was dogged by political controversy due to the President’s personal involvement.
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30 food security and nutrition policy Following the NDP, DAFF and the Department of Social Development created the Food Security and Nutrition Policy in 2013, to replace the IFSS but with a reduced ambition to ensure ‘the availability, accessibility and affordability of safe and nutritious food at national and household levels’. Another attempt at coordinated policy, it has been approved by Cabinet but not gazetted, with no clarity on its status at the time of writing.
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While it starts off well, the policy paper reveals severe gaps in both analysis and proposed solutions, particularly in terms of income and jobs, distribution, access, gender, food prices, volatility and fixing, the retail industry, climate change and the environment, standards and nutrition.
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fetsa tlala (end hunger) The Fetsa Tlala food security programme was approved by Cabinet at the same time as the FSNP in 2013 to support subsistence and smallholder farmers to put one million hectares of land under production by 2018/19, along with the Household Food and Nutrition Security Strategy to provide access to food for vulnerable groups through distribution and supporting households to become self-reliant. There is limited information available about its progress on these goals to date.
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Thidziambi Singo planting sweet potatoes in thulaMela Municipality, liMpopo 31 Today, more than half of all South Africans are either facing hunger or are at risk of going hungry. if they obtain food that is sufficient in quantity to assuage their hunger, it does not supply the essential elements that make it nutritious, and it may not even be safe. These people, and the reasons why they face hunger, are often hidden from view.
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yet efforts to address other socio-economic challenges, especially education, health and crime, will not be effective while millions are going hungry in this way. Food insecurity and hunger destroy human potential, strip away human dignity and foster inequality throughout society. This should be a national scandal.
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This should be a national scandal. The faces of food insecurity, so often unseen, are the faces of people in child- and female-headed households; the unemployed and those in precarious employment; people living in poverty in poor housing in rural and urban informal settlements; the landless and marginalized. Entrenched attitudes and gender discrimination mean that women and girls are disproportionately disadvantaged.
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If government bodies or the better-off strata of South African society think of hunger or food insecurity, they tend to imagine it exists mainly among the rural population or the occasional beggar at the traffic lights. yet food insecurity is a growing urban phenomenon. A key to understanding hunger and food security in South Africa is to reflect on how the market has become the main source of food for households.
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Much needs to be done to move to a more efficient and fairer system that puts forward alternatives that will work better for people living in poverty, women, children, small-scale producers and marginalized communities who are facing hunger and malnutrition. At the moment prohibitive transport costs and long distances to markets mean that many people must buy their food from spaza shops and local traders, often with limited access to good, nutritious food.
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The poverty hearings held for this study described the food sold at spaza shops as being of low quality and expired, and there being almost no fresh food. Over a quarter of South Africans find themselves squeezed between inadequate source of livelihood and income (unemployment, low wages and lack of other economic opportunities) and an unfair, expensive and wasteful food system dominated by a few large companies.
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Hunger adds fire to a society that is feeling increasing frustration at slow progress towards equality of income, services and opportunity 20 years after democracy. The rising number of protests around the country are a clear manifestation of this frustration. However, what is equally clear is that millions of people rise to these challenges every day in ways that are determined and resourceful.
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The story of Elzetta and her sister (see Box 2) shows how so many South Africans cope with the daily burden of hunger. 32 Amid the hardship, Elzetta and her sister have dreams of more fulfilling lives. Elzetta wants to become a nurse and her sister a pathologist. Their dreams may never be fulfilled, but in their aspirations they are not untypical of thousands of South Africans whose potential is being dampened and who are being deprived of the chance to prosper.
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Hunger and malnutrition play important parts in perpetuating the cycle of poverty and inequality. The causes are many and complex, which is why a coordinated and comprehensive approach is needed to tackle these causes, and not the somewhat simplistic and piecemeal approach taken thus far that concentrates concentrates only on alleviating the effects and has no accountability to people who are facing the scandal of hunger every day.
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It requires an integrated legislative response based on the State’s constitutional mandate to ensure that no one goes hungry. Perhaps a start in addressing hunger is to call it by its name and describe what it means for real people, and not disguise or distance it behind technical terms such as ‘food insecurity’. This is what this report has sought to do. Peach farming in western cape 33 oxfam believes it is time to end the scandal of hunger with a wide-reaching and coordinated approach.
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The following recommendations have been drawn from the findings of this research, particularly the testimonies of people facing hunger. it is recognized that more needs to be done to flesh out some of these recommendations, but they are a basis to begin the conversation.
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1. introduce a national food act to eradicate hunger and Malnutrition • The government should put in place a national Food Act that has been developed via a bottom up process with communities who are facing hunger, is adequately resourced and puts the goal of eradicating hunger and malnutrition at the heart of all government policy. An Act would have greater legal force than existing piecemeal policies to incentivize better coordination and implementation.
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• An Act could include a mechanism to hold government and stakeholders accountable, including businesses and other institutions, local or national. • The government should open the latest Food and Nutrition Security policy paper (August 2013) for consultation with all stakeholders, with a view to addressing gaps.
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2. iMprove local-level coordination and policy iMpleMentation • Local government and municipalities must, with the support of national government, improve targeting of households and individuals who are facing hunger; coordinate between policies; include communities and civil society in local planning; and support local markets to flourish (e.g. by supporting infrastructure, transport, storage facilities).
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3. create a fair, accountable and sustainable food industry • The food industry must do more to stop bad practices such as price fixing and cartels, food waste and environmental damage, while the government should strengthen regulation to enforce compliance and support the role of watchdogs such as the Competition Commission.
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• The food industry and government must do more to ensure that small-scale farmers can prosper by innovating away from exclusionary supply chains, supporting cooperatives, investing in rural infrastructure, improving access to credit and making certification and quality control more accessible. • Government and local planning authorities should ensure that the growth in supermarkets does not threaten the livelihoods of small informal traders and the important social role that they play.
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34 35 4. prioritize decent eMployMent and incoMe generation for people facing hunger • Local job creation should be targeted at those who are vulnerable to hunger and malnutrition and government work programmes should be better implemented, ensuring that wages are paid on time and that they improve the skills of those involved. • Both government and private sector actors working in the food system should ensure that employment can provide quality jobs with living wages.
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• The government should review social grants to reach the most vulnerable and take into account rising living costs. 5. iMprove rights to land and Means of production • The government should expedite ownership and access to land for the most marginal and vulnerable groups, alongside post-settlement support: water, equipment, access to credit, marketing and training for new farmers coming out of a post-apartheid era where agricultural skills were lost.
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• The government should increase the allocation of fishing rights and support alternative livelihoods, building the resilience of fishers to climate change and changes in fish stocks.
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6. create adaptation plans with the full participation of the people who are Most vulnerable • A National Adaptation Plan and local adaptation plans must be created with the participation of small- scale producers, women and vulnerable communities, backed with financial resources, to ensure that they are appropriate and sustainable.
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• Municipalities must be supported by national government to build local capacity to understand climate change and work with local communities to build resilience to it, including better access to early warning systems and weather information. • Government should give special attention to rehabilitating local environments and infrastructure that support access to water sources.
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7. step up action to reduce carbon eMissions • While rich country governments should take the biggest responsibility for tackling climate change, South Africa also has a part to play in moving away from high-emission fossil fuels and increasing investment in renewable energy that could reduce energy costs, create new jobs and build the resilience of poorer communities.
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8. create a national conversation to end hunger and Malnutrition • Society - at the national, local and individual levels - needs to better understand the extent and causes of the scandal of hunger if it is to be eradicated. • This conversation must include movements and ideas such as food sovereignty and agro-ecology, which place ordinary people who produce, distribute and consume food, as well as the protection of the environment, at the centre of defining a just and equitable food system.
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35 bibliography available on request Competition Commission (2010) ‘Competition Commission settles with Pioneer Foods’. http://www.compcom. co.za/assets/Uploads/AttachedFiles/MyDocuments/Commission-settles-with-Pioneer-Foods2.pdf Crush, J. and Frayne, B. (2011a) ‘Supermarket expansion and the urban food economy in southern African cities: implications for urban food security’, Journal of Southern African Studies 37 (4): 781–807 Crush, J. and Frayne, B.
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(2011b) ‘Urban food insecurity and the new international food security agenda’, Development Southern Africa 28 (4): 527-544. Crush, J., Frayne, B. and Grant, M. (2006) ‘Linking migration, HIV/AIDS and urban food security in Southern and Eastern Africa’. CSIR (2013) ‘The Magnitude and Cost of Food Waste in South Africa’, Briefing Note, 1 February 2013. De Schutter, O. ( 2014) ‘Democracy and diversity can mend broken food systems – final; diagnosis from UN right to food expert’.
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http://www.srfood.org/en/democracy-and-diversity-can-mend-broken-food-systems-final- diagnosis-from-un-right-to-food-expert Department of Agriculture (2002) ‘Integrated Food Security Strategy for South Africa’, Government Printer, Pretoria. Department of Agriculture, Forestry and Fisheries and Department of Social Development (2013) ‘National Policy on Food and Nutrition Security’.
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FAO (1996) ‘The State of Food and Agriculture 1996’, Food and Agriculture Organization of the United Nations, Rome. FAO (2014) ‘The State of Food Insecurity in the World – Food Security Indicators’. http://www.fao.org/economic/ ess/ess-fs/fs-data/en/#.U9PUA_mSzkv Greenberg, S. (2010) ‘Contesting the Food System in South Africa: issues and Opportunities’, Research Report no. 42. PLAAS, University of the Western Cape.
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42. PLAAS, University of the Western Cape. HLPE (2014) ‘Food Losses and Waste in the Context of Sustainable Food Systems’, High Level Panel of Experts on Food Security and Nutrition of the Committee on World Food Security, Rome. SANHANES (2013) ‘The South Africa National Health and Nutrition Survey’, Human Sciences Research Council and Medical Research Council, Pretoria. 36 Labadarios, D. et al.
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36 Labadarios, D. et al. (2008) ‘Executive summary of the National Food Consumption Survey Fortification Baseline (NFCS-FB-I) South Africa, 2005’. South African Journal of Clinical Nutrition, 21(3) (Suppl. 2): 247–300. Labadarios, D., Steyn, N.P. and Nel, J. (2011) ‘How diverse is the diet of adult South Africans?’, Nutrition Journal 10 (33). Lancet/Murra, C. et al.
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(2014) ‘Global, regional, and national prevalence of overweight and obesity in children and adults during 1980–2013: a systematic analysis for the Global Burden of Disease Study 2013’, The Lancet, May 2014. http://www.healthdata.org/research-article/global-regional-and-national-prevalence-overweight-and- obesity-children-and-adults Mail & Guardian (2009) ‘Competition commission to continue dairy probe’, August 2009. http://mg.co.za/ article/2009-08-26-competition-commission-to-continue-dairy-probe Mail & Guardian (2011) ‘Big five fight for food market share’, 2011. http://mg.co.za/article/2011-11-04-big-five- fight-for-food-market-share/ Mail & Guardian (2012) ‘Small fry for big fisheries’, 11 May 2012. http://mg.co.za/article/2012-05-11-small-fry- for-big-fisheries Mail & Guardian (2013a) ‘Something fishy this way comes’, 17 December 2013. http://mg.co.za/article/2013-12- 13-00-something-fishy-this-way-come Mail & Guardian (2013b) ‘Major supermarkets exposed in meat labelling scandal’, 14 April 2013. http://mg.co.za/ article/2013-04-14-major-supermarkets-exposed-in-meat-label-scandal Masemola, M.E., Aardt, C. and Coetzee, M.C.
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(2012) ‘Income and Expenditure of Households in South Africa 2011’, Research Report 429, UNISA Bureau of Market Research. Nahman, A. and De Lange, W. (2013) ‘Costs of food waste along the value chain: evidence from South Africa’, Waste Management 33 (2013) 2493-2500. National Planning Commission (2011) ’National Development Plan: Vision for 2030’.
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http://www.npconline.co.za/ medialib/downloads/home/NPC%20National%20Development%20Plan%20Vision%202030%20-lo-res.pdf National Treasury (2014) ‘2014 Budget Review’.
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http://www.treasury.gov.za/documents/national%20 budget/2014/review/FullReview.pdf New Age (2014) ‘South Africans are milked who is creaming it’, 27 May 2014. http://thenewage.co.za/121860-9- 53-South_Africans_milked_Who_is_creaming_ir SAPA (2012) ‘Oceana accepts responsibility for price fixing’, IOL 9 May 2012. http://www.iol.co.za/dailynews/ news/oceana-accepts-responsibility-for-price-fixing-1.1293000#.U9OL4_mSzkU Statistics South Africa (Stats SA) (2012) ‘General Household Survey 2012’.
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Statistics South Africa (Stats SA) (2013a) ‘quarterly Labour Force Survey 2013’. Statistics South Africa (Stats SA) (2013b) ‘General Household Survey 2013’. Statistics South Africa (Stats SA) (2013c) ‘Income and Expenditure Survey 2010-2011’. Sustainalytics (2012) ‘Building a Sustainable South African Food Retail Sector: Issues for Responsible Investors’.
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Stevenson, S. (2014) ‘Ending hunger in South Africa: We have to do better’, Daily Maverick, 11 April 2014. http:// www.dailymaverick.co.za/opinionista/2014-04-11-ending-hunger-in-south-africa-we-have-to-do-better/ - .U7WzVvmSzkU UNICEF (2011) ‘Exploring the Impact of Climate Change on Children in South Africa’. Vink, N. and van Rooyen, J.
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Vink, N. and van Rooyen, J. (2009) ‘The Economic Performance of Agriculture in South Africa since 1994: Implications for food security’, Development Planning Division Working Paper Series No.17, DBSA: Midrand. World Bank (2014) ‘World Development Indicators’. http://wdi.worldbank.org/table/2.9 World Food Programme: ‘Hunger Glossary’.
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http://www.wfp.org/hunger/glossary 37 annex a: glossary (Definitions from FAO unless otherwise stated) hunger: The body’s way of signalling that it is running short of food and needs to eat something. Hunger can lead to malnutrition.
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Hunger can lead to malnutrition. Malnutrition: Defined as a state in which the physical function of an individual is impaired to the point where he or she can no longer maintain natural bodily capacities such as growth, pregnancy, lactation, learning abilities, physical work and resisting and recovering from disease. It can lead to being underweight, stunted or overweight/obese.
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right to food: The right to have regular, permanent and free access, either directly or by means of financial purchases, to quantitatively and qualitatively adequate and sufficient food corresponding to the cultural traditions of the people to which the consumer belongs, and which ensures a physical and mental, individual and collective, fulfilling and dignified life free of fear (UN Special Rapporteur on the right to food).
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stunting: Reflected by shortness-for-age; an indicator of chronic malnutrition and calculated by comparing the height-for-age of a child with a reference population of well nourished and healthy children. undernourishMent: Describes the status of people whose food intake does not include enough calories (energy) to meet minimum physiological needs.
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underweight: Measured by comparing the weight-for-age of a child with a reference population of well nourished and healthy children (Comparative quantification of Health Risks, 2004). annex b: list of key inforMants interviewed orGanisaTion 1. SAHRC conTacT Person Ms. Karam Singh, Head of Research 2. Resource Centre on Urban Agriculture and Food Security Mr. Takawira Mubvami, Regional Coordinator 3. Environment Monitoring Group (EMG) Mr. Stephen Law,Director 4.
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Foodbank South Africa Ms. Kate Hamilton and Mr. Neil Davison 5. Trust for Community Outreach and Education (TCOE) Mr. Siviwe Mdoda 6. zingisa Educational Trust 7. Mawubuye Land Rights Forum 8. Section 27 9. HSRC Mr. Sithembelo Tempi Mr. Joe Nkopo Ms. Denia Jansen Ms. Sasha Stevenson Dr. Peter Jacobs, Chief Research Specialist 10. Institute for Poverty, Land and Agrarian Studies Prof. Andries du Toit 38 11. Independent academic and science writer Prof. Leonie Joubert 12.
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African Centre for Cities (UCT) Dr. Jane Battersby-Lennard 13. Western Cape Province: Agriculture and Rural Development Mr. Mogale Sebopetsa, Acting Chief Director 14. Nkuzi Development Association Ms. Motlanalo Lebepe 15.
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Councillors in Bloemendal, KwaNobuhle, Thulamela, Polokwane City, Cape Town Metropolitan, Langeberg Municipality annex c: poverty hearings Methodology and survey This is a qualitative rapid appraisal method that brings policy makers and other stakeholders into communities to understand community realities and aspirations, it has been employed by researchers in the formulation of grassroots opinion on the post-MDG process and extensively in South Africa, Ghana, Kenya, Mozambique and Sierra Leone.
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For this research, it involved the following steps: scoping: This was done at provincial level by drawing community representatives from the various wards and districts, and was further refined through interactions with CBOs in consultation with other stakeholders. coMMunity chaMpions were identified and engaged: Community champions included activists, community leaders, elders, traditional leaders, village heads, councillors and members of parliament.
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Their role was to support community involvement and buy-in and facilitate group discussions and follow-up. voiceless groups were Mapped for targeting: The greatest care was taken to ensure that the voices of target groups were captured. Purposeful sampling was employed in each area or ward. In order to generate variations in responses, each group had a maximum of 10 participants from the community, structured according to gender, age, locality, etc.
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Participants were selected after meeting with stakeholders in the community to understand the gender and age dimensions of hunger. focus group discussions: Participants were asked to focus on the top 3–5 priority issues concerning hunger and to provide feedback based on their experiences. A neutrally phrased focus statement was posed in local languages and elaborated by facilitators (e.g.
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‘What are your experiences and aspirations regarding food security and climate change?’) in order to allow them to relate their experiences in their own words. Sufficient time was allowed for community members to generate and connect narratives, and to capture issues and stories. testiMonies and ‘huMan’ stories were elicited: One or two people from each group volunteered to provide a testimony of their experiences.
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Some volunteers were chosen at random and some were selected because their stories were particularly powerful or representative. testiMonies were recorded, validated and docuMented: Testimonies were digitally recorded, either as audio or video depending on the comfort level of the participants. The emerging raw data was then analyzed, synthesized and documented.
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39 This paper was researched and written by yared Teka Tsegay and Masiiwa Rusare from Africa Monitor and Rashmi Mistry from Oxfam, with the support of John Magrath and Robin Willoughby from Oxfam. Oxfam acknowledges the contribution of communities from Thulamela, Fetakgomo and Polokwane municipalities in Limpopo province; Ngqushwa and Nelson Mandela Metropolitan municipalities in Eastern Cape province; Cape Town, Langeberg and Swellendam municipalities in Western Cape; and the NGOs that support them.
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In particular, Oxfam would like to thank the zingisa Educational Trust, Mawubuye Land Rights Forum, Nkuzi Development Association and Xihlobo xa Ndivho as well as Justin Renze, Charles America, Boyce Tom and Siviwe Mdoda from the Trust for Community Outreach and Education (TCOE). Production was managed by Basheerah Mohamed with the assistance of Anna Coryndon. Text was edited by David Wilson. All photographs in the publication were taken by Urban Lung Productions www.urbanlungproductions.com.
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Designed by LUMO www.lumo.co.za. Oxfam Research Reports are written to share research results, to contribute to public debate and to invite feedback on development and humanitarian policy and practice. They do not necessarily reflect Oxfam policy positions. The views expressed are those of the author and not necessarily those of Oxfam.
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For more information, or to comment on this report, email: rmistry@oxfam.org.uk © Oxfam International August 2014 This publication is copyright but the text may be used free of charge for the purposes of advocacy, campaigning, education and research, provided that the source is acknowledged in full. The copyright holder requests that all such use be registered with them for impact assessment purposes.
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Oxfam is an international confederation of 17 organizations networked together in more than 90 countries, as part of a global movement for change, to build a future free from the injustice of poverty.
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