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PASTINNOVA

Advanced Course
INNOVATIONS FOR
SUSTAINABLE MEDITERRANEAN
PASTORAL SYSTEMS

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# A focus on public policies and their importance for pastoralism in the Mediterranean context

## How pastoralism could answer the challenges of animal production in the Mediterranean !

Jean – Paul DUBEUF

SELMET LRDE, INRAE-ACT

Corte (France)

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# Content of the lecture

## Introduction-Some definitions :

- Pastoralism : Definitions and considerations on near polysemic concepts used

- Public policies and Public Action

- A brief presentation of the diversity of animal production systems and orientations in the Mediterranean ; their link to pastoralism

## The drivers of public policies : Mental models, paradigms and representations

## An outlook on public policies on pastoralism in the Mediterranean at several scales

## Main trends and challenges for public policies on pastoralism in the Mediterranean
# DEFINITIONS AND CHARACTERIZATION

- PASTORALISM : a concept mobilized for several realities

- Animal production practices based on the grazing of natural resources

- Mobility of herds : transhumance and nomadism; sedentary pastoralism and agro-pastoralism ; silvopastoralism

- Extensive animal husbandry ; resilience, vulnerability of pastoral communities to the effects of global warming and adaptation to changing unpredictable forage resources

- Pastoralism and small scale family farming, local development and value chains

- Pastoralism, organic farming, agro-ecology, ecosystemic services
# DEFINITIONS AND CHARACTERIZATION

* PASTORALISM is not only production systems :

an activity related to human culture, specific landscapes, local breeds - a land use system requiring a multidimensional approach (food from a human and animal point of view, environmental, economic, social, etc.) to policies. The need to encourage and direct consultation with political institutions at different levels (local, national, regional and international) so that policies take into account the specificities of pastoralism

* Pastoralists are used to develop subsistence strategies:

Pastoralism is adapted to a fast changing world with more uncertain resources
# PASTORALISM AND ANIMAL PRODUCTION

## A brief presentation of the diversity of animal production systems and orientations in the Mediterranean ; their link to pastoralism

Agriculture and animal production are very dependent on the support of public authorities

- Sheep, goats, cattle, dairy cows, pigs are present in the Mediterranean

- Indoor and intensive pigs are predominant but the Mediterranean region is among the few cases where pastoral running pigs are reared with local breeds (Alentejo, Extremadura, Pyrenees, Corsica, Sardinia, Greece...)

- Dairy cows are present everywhere often do not graze with feed stuffs produced in the farms or bought elsewhere. Some pastoral dairy cow systems still exist in mountain areas and for typical products but the intensive systems are dominant,

- Sheep milk production systems [Roquefort, Pyrenees, Spain, Sardinia, Greece, Cyprus, Turkey...] for these have often pastoral components (grazing of natural pasture, transhumance, local breeds,) but are often dependent on external purchases, intensified or irrigated resources

- Goat production is rather intensive for milk with high production breeds (Alpine, Saanen, Damascus) but pastoral dairy, mixed or meat systems in family farms with local breeds in Corsica, Sardinia, Greece, Turkey, Morocco, Tunisia, Lebanon)

- Sheep and beef meat production is present and developed nearly everywhere in Spain, Southern France, Italy, Turkey, Algeria, Morocco, Tunisia. Transhumance is often still practised with more and more difficulties. A high addiction to external feedstuffs with the consequence of climate changing and frequent droughts in Maghreb,

- Extensive cattle herds in Italy, France, Spain, Croatia, Slovenia, Greece... in relation to European subsidies

- Camel herds for meat (and now for milk) in arid areas of Maghreb
# ABOUT PUBLIC POLICIES

## PUBLIC POLICIES AND PUBLIC ACTION

- Public policies can be defined as "interventions of an authority invested with public power and governmental legitimacy in a specific area of society or territory" - Jean-Claude Thoenig (Dictionnaires des politiques publique, 2014). They traditionally emphasize all the actors and processes taking part in the definition and implementation of government action programs

- Public action goes beyond the centrality of state in a broader framework of interpretation emphasizing the plurality of actors, the complexity of coordination processes. Public action aims to create a social and political order, regulate tensions and integrate individuals and groups within a society

"Public action is the set of relationships, practices and representations which contribute to the politically legitimized production of modes of regulation of social relations"

"how to think political changes!"
# THE DRIVERS OF PUBLIC POLICIES

- Mental models, paradigms and representations

- The purpose of public policies is not really to resolve a problem but to propose a framework for interpreting situations and answer the expectation of the Society.

- the governance of public action must not only be thought of by relying on institutions but also on sub-networks of actors to be mobilized around negotiated compromises likely to meet expectations with intelligible and admissible solutions

- The references of the agricultural sector (competitiveness, technical progress, economy of scale, cost killing) and those of sustainable development benchmark should be articulated at the territorial level
# THE DRIVERS OF PUBLIC POLICIES

## Mental models, paradigms and representations

### Pastoralism between myths, activism and productivism

<table><thead><tr><td>World visions</td><td>Activities</td><td>Main values</td></tr></thead><tbody><tr><td>Traditional</td><td>Family farming, Pastoralism, Pluri activities, activités peu dépendantes de ressources extérieures</td><td>Sobriety, Solidarity, Respect and humility, regarding Nature and the past</td></tr><tr><td>Modern</td><td>Intensive and entrepreneurial agriculture, Spécialisation, Technical Innovation, Production</td><td>Science and Technology are the levers to solve the problems. Performance, Stress, competitiveness and well being, Social status</td></tr><tr><td>Post modern</td><td>Alternative farming, Diversity, multifunctionality, Agro - ecology, Organic farming, Eco-systemic services, Organisational innovation</td><td>Diversity, Creativity, Imagination, Adaptability, relativism, New solidarities, Organisational innovation</td></tr></tbody></table>

From Hedlund - de Vitt, 2013
# THE DRIVERS OF PUBLIC POLICIES

## Concept of lock - in and path dependency.

Administrations are facing routines and the existing cognitive devices with "lock in" processes

In these processes, the merit and advantage of a technology are less linked to its intrinsic effectiveness than to the place it occupies, to the popularity among the greatest number and to the learning processes it generates
# AN OUTLOOK ON PUBLIC POLICIES ON PASTORALISM IN THE MEDITERRANEAN

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## Corsica

- A challenging future for animal production and pastoralism faced with the decline in livestock activity, the effectiveness of public policies is called into question

- A mythical reference to the pastoralism of yesteryear

- A sectoral logic without relation to the Corsican biological and cultural space, that is to say without a distinctive territorial strategy

- To sustain/reinstate diversity and complementarity between agricultural, pastoral and forestry activities and reconstitute multifunctional landscapes in all agro ecological areas of the island;

- To de-sectorize European, national and regional agricultural, land and environmental policies, and effectively coordinate and articulate them within territorial policies, local authorities and citizen organizations.

- To improving forage autonomy of livestock farming

- Developing training and research strategies for achieving these objectives and attracting new farmers

- Creating a socio-economic cultural and institutional environment to favor the renewal and improvement of agroforestry, sylvopastoralism and governance of summer pastures
# AN OUTLOOK ON PUBLIC POLICIES ON PASTORALISM IN THE MEDITERRANEAN

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## Sardinia

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### 2 policies frameworks face each other

The strength of a powerful sectorial policy in favor of a productive sheep milk and cheese pastoral sector

The need for a territorial policy to take the crucial challenges of fire prevention, encroachment, preserving biodiversity, encroachment and prevention of rural abandonment (cattle, goats)
# AN OUTLOOK ON PUBLIC POLICIES ON PASTORALISM IN THE MEDITERRANEAN

## Morocco, Green Generation and Plan Maroc Vert

- The awareness of the challenges of food autonomy, to export agro - food products, to improve the social economic situation of millions of small holders in remote areas

- Two ambitious National programmes to give priority to agriculture and social development (2008-2020; 2020-2030)

- The paradigm of intensification and technological progress still present in the several measures of these programs

- Pastoralism and local practices are little considered

- The water resources and the effect of climate changing little anticipated
# AN OUTLOOK ON PUBLIC POLICIES ON PASTORALISM IN THE MEDITERRANEAN

## Tunisia / Algeria

- The failure of pastoral laws and programmes to manage the rangelands (privatization and sedentarization)

- Strengthening agro-pastoralism and value chains (camel milk in Southern Tunisia, Local Organizations in Algeria)
# Main trends and challenges for public policies on pastoralism in the Mediterranean

> «As an economic activity, pastoralism is an animal production system which takes advantage of the characteristic instability of rangeland environments, where key resources such as nutrients and water for livestock become available in short-lived and largely unpredictable concentrations. Crucial aspects of pastoralist specialisation are: 1. The interaction of people, animals and the environment, particularly strategic mobility of livestock and selective feeding; and 2. The development of flexible resource management systems, particularly communal land management institutions and non-exclusive entitlements to water resources» (Republic of Kenya, 2012).

* Diversity

* Flexibility

* Autonomy

* Sel- Organization (cooperation for locally conceived norms)
# Main trends and challenges for public policies on pastoralism in the Mediterranean

- the challenges the Mediterranean region has to face : climate changing, demography, productivity, food autonomy, overpopulation of the sea sides and marginalization of the hinterlands

- The necessity for public policies not to be only sectoral and involve also environmental, social, cultural, territorial issues to face these challenges

- While animal production is more and more questioned in regard to climate changing, public policies will have to give priority to low carbon animal production systems and to optimize the organic fertilization of crops from livestock production. Pastoralism is one answer to this challenge

- The hypothesis is that innovation has a large role to play and that the present initiatives have to be supported by public policies at the several transnational, national regional levels
# The several possible priorities for public policies to negotiate and their articulations with animal production

- A-To produce more, to preserve food security and autonomy

- B- To preserve bio – diversity, natural landscapes, environment and cultural heritage

- C- To develop diversified activities and employment in rural territories (the start up scenario)

- D-To renew pastoral practices and valorize local resources
transnational level :
Improving the CAP measures

* CAP - Pilar II: Enhancing the weight of “ecoshemes” with National and Regional adaptations

* CAP – Pilar I : Considering scientific results on the use of not herbaceous resources for the attribution of subsidies

* Maghreb/Middle East : Balancing between the need for food security, social development of rural environments and preventing desertification, overgrazing and soil destruction,

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Bibliographical references

Hall, P.A., 1993. Policy paradigms, Social learning and the State. Comparative Politics, 25 (3), 1993, p.275-296.

March, J., Olsen, J., 1989. Rediscovering Institutions. The organizational Basis of politics. New Yorj, Free Press, p.22.

Simon, H., 1957. Administrative Behavior. A study of Decision – Making Processes in Administrative Organizations, New York, Free Press.

Lascoumes, P., 1996. Rendre gouvernable: de la traduction au transcodage. L'analyse des processus de changement dans les réseaux d'action publique ». In la gouvernabilité.
CURAAP, pp. 325-338

Hedlund-de Witt, A., 2013. Worldviews and the transformation to sustainable societies: an exploration of the cultural and psychological dimensions of our global environmental challenges. Doctoral dissertation, Vrieje University, Amsterdam, Netherlands.

Cowan, R., Gunby, P. (1996). Sprayed to death: Path dependence, lock-in and pest control. Economic Journal ; 106 : 521-4

Koop, K., Landel, P.A., Pecqueur, B., 2010. « Pourquoi croire au modèle du développement territorial au Maghreb ? Une approche critique », *EchoGéomis en ligne* le 20 septembre 2010URL : http://journals.openedition.org/echogeo/12065 ; DOI : 10.4000/echogeo.12065

Landel, P.-A., 2017. Activités pastorales et dynamiques territoriales Quelles articulations? Quelles synergies? In « Activités pastorales et dynamiques territoriales. Quelles articulations? Quelles synergies? » Pastum hors-série. Eychenne C., Buclet N. (dir.), Association Française de Pastoralisme et Cardère éditeur, 128 p.

Muller P., 2000. L'analyse cognitive des politiques publiques : vers une sociologie politique de l'Action publique ; In: Revue française de science politique, 50e année, n°2, 2000. pp. 189-208. http://www.persee.fr/doc/rfsp_0035-2950_2000_num_50_2_395464
# Bibliographical references

Berkes, F., Colding, J., & Folke, C. (Eds.), 2008. *Navigating social-ecological systems: building resilience for complexity and change*. Introduction, p 1-24. Cambridge university press.

Walker, B., Holling, C. S., Carpenter, S. R., & Kinzig, A. 2004. Resilience, adaptability and transformability in social-ecological systems. *Ecology and society*, 9(2).

Republic of Kenya, Ministry of State for Development of Northern Kenya and Other Arid Lands. *Releasing Our Full Potential*. Sessional Paper n° 8, on National Policy for the Sustainable Development of Northern Kenya and other Arid Lands. Nairobi, 2012, 42 p.

Krätli, S. (2015). Valuing variability: New Perspectives on climate resilient drylands development. IIED. Edited by de Jode, H.

Van der Ploeg, J. D. (2018). *The new peasantries: rural development in times of globalisation*. Routledge.

Nori, M. 2022a. Assessing the policy frame in pastoral areas of Europe. Working Paper, EUI ; Nori, M. 2022b. Assessing the policy frame in pastoral areas of West Asia and North Africa. EUI.

Manzano, P & White, S R 2019, 'Intensifying pastoralism may not reduce greenhouse gas emissions: wildlife-dominated landscape scenarios as a baseline in life cycle analysis', *Climate Research*, vol. 77, no. 2, pp. 91-97. https://doi.org/10.3354/cr01555

Bessaoud, O., 2023. L'Algérie agricole et rurale 60 ans après : de la décolonisation au modèle Concessionnaire Insaniyat n° 100, avril-juin 2023, p. 15-50

Saidoun, r., Aithammou, s, Chehat, f. la politique agricole et rurale en algérie : de la centralisation a la gouvernance, *les cahiers du cread*-vol. 38 - n° 03 - 2022
https://dx.doi.org/10.4314/cread.v38i3.17
Bibliographical references

* Jean-Paul Dubeuf, Fanny Bielhmann, Jean-Michel Sorba, Philippe Valentini, Marion Valenti, et al.. *Les futurs du Pastoralisme en Corse : Scénarios prospectifs, interpellations stratégiques*. [Rapport Technique] INRAE UMR Selmet -LRDE. 2021, pp.96. [hal-03219543]

* Jean-Paul Dubeuf, Thierry Linck, Said Chatibi. *Public interventions regarding pastoral activities in the Argane tree area in Morocco: continuities and changes*. *Livestock Policies and Ecological intensification*, 2016.

* Jean-Paul Dubeuf, François Casabianca. *The commitment of sheep and goat production systems in the agro – ecological transition, Options méditerranéennes A, n°123, "Innovation for sustainability in sheep and goats"* pp.469-475, 2019.

* Jean-Paul Dubeuf, Fanny Biehlmann, Régis Lorton, Jean-Michel Sorba, Marion Valenti. *Assessing the operational perspectives of agrosilvopastoralism in the Mediterranean Region: Learnings from observations in Corsica* ; *Small Ruminant Research 229 (2023) 107131*.

* Jean-Paul Dubeuf, 2015. *Les politiques publiques en faveur des arrières pays et du pastoralisme en Méditerranée : Poids des logiques institutionnelles, des représentations et des rapports de force entre acteurs locaux pouvoirs publics et financeurs - Mise en œuvre et impacts des projets*. Rapport de Recherche MEDINNLOCAL. 33 pp.

* Jean - Paul Dubeuf, Jose Castel Genis, Pierre Morand-Fehr, Francisco de Assis Ruiz. The contribution of goats in the future redesigning of livestock activities and value chains. *Small Ruminant Research*, Volume 227 October 2023, 107065 2023 https://doi.org/10.1016/j.smallrumres.2023.107065.