Resolving Transhumance Conflicts in Guinea-Bissau

April 2025

The Gabu region in eastern Guinea-Bissau is home to the country’s largest cattle population, with an estimated 911,000 small ruminants as of 2009. For generations, pastoralists have followed a seasonal transhumance system, moving their herds in search of water and pasture. However, in recent years, this traditional practice has come under strain. The rapid expansion of agricultural land, particularly cashew nut plantations, has led to growing conflicts over land, water, and other resources.

Pastoralists often struggle to have their voices heard, facing marginalization, ethnic prejudice, and limited access to basic services such as healthcare and justice. In some cases, cattle are stolen or poisoned, and farmland is set ablaze after harvest, exacerbating long-standing divisions. Some stakeholders have proposed transitioning to a settled livestock system, similar to the model used in Senegal. However, experts caution that Guinea-Bissau currently lacks the necessary infrastructure - such as a year-round water supply, livestock feed, and veterinary services - to support such a transition.

Recognizing the urgent need for solutions amid rising community tensions, the United Nations Peacebuilding Fund (PBF) launched an innovative initiative in December 2022. Implemented by FAO, UN-Habitat, UNFPA, and local partners, this first-ever project of its kind in Guinea-Bissau seeks to prevent and resolve conflicts related to transhumance and pastoralism by fostering inclusive dialogue, improving resource management, and expanding access to service for affected communities.

Transforming Conflict Through Dialogue and Cooperation

The project takes a multidimensional approach, addressing not only land and water disputes but also broader social inequalities. Local dialogues have enabled communities to develop their own conflict-resolution mechanisms.

FAO has led stakeholder dialogues, providing training on pastoralism, legislation, and cross-border cooperation, while empowering communities to share their experiences and needs in local forums. UN-Habitat has developed a livestock value chain strategy in Bafatá and Gabú, strengthened pre-existing government-mandated land commissions - which provide the foundation for improving water infrastructure - and created a conflict monitoring platform. UNFPA has expanded healthcare access to remote areas by providing two mobile clinics, benefiting many pastoralists, especially women.

Building on these efforts, two mobile clinics introduced in Bafatá and Gabú have become powerful tools for inclusion and trust-building with transhumant pastoralist communities. Since their launch in September 2024, the clinics have reached over 1,800 individuals, providing vital services such as prenatal care for 342 women, 398 ultrasounds, 689 child vaccinations, and nutritional screenings for children under five.

These services go beyond healthcare—they contribute to a renewed relationship between the state and historically underserved populations. By bringing state-led services directly to remote communities, the clinics are helping reduce long-standing feelings of neglect and marginalization. This renewed state presence is reinforcing social cohesion and trust, particularly in areas where public services have long been absent.

To deepen this impact, the project has supported the creation of six men’s clubs across five communities—three in each region. These clubs, involving 60 men aged 18 to 70, foster dialogue and action on key peacebuilding themes, including gender equality, human rights, reproductive health, and the prevention of gender-based violence. Members have received training to promote behavior change within their communities, especially around gender-based violence and the abandonment of harmful practices such as female genital mutilation.

The presence of the mobile clinics and their teams is not only reducing feelings of marginalization but also facilitating dialogue and strengthening relationships between communities and local authorities. By increasing the state’s presence and supporting community engagement, these efforts aim to address underlying sources of tension, such as exclusion and unequal access to services.

Sustainability is a key focus. The clinics are managed and staffed by the regional health services, with the Minister of Health publicly committing to their continuity at the official handover. Discussions are underway with the regional health directorates to establish regular government contributions for operational costs, while UNICEF support and community contributions are being explored to ensure continued service delivery. The clinics are fully operated by the regional health authorities of Bafatá and Gabú and are embedded within the existing public health systems, ensuring long-term ownership and sustainability.

Capacity-building efforts are ongoing, particularly in health data management, including the integration of human and animal health data through the One Health approach.

Informed by the livestock value chain development strategy, seven boreholes are being rehabilitated, and 11 new ones are under construction in the target regions. Locations were collaboratively defined to allow water access for pastoral communities along transhumance routes, reducing the risk of conflict. The project is also acquiring equipment to support Livestock Breeders' Associations, enabling them to systematically monitor and record conflict cases and generate accessible and reliable statistical data for deeper analysis of conflict patterns.

Additionally, the project promotes sustainable land and water governance and supports peaceful transhumance.

Recognizing the importance of women’s participation, the project has adapted its operational strategy to create spaces where women can voice their concerns and contribute ideas. Dedicated meetings with women pastoralists have allowed them to speak openly about human rights violations—including cases of sexual violence and the denial of inheritance rights over cattle—as well as to share aspirations, such as developing milk processing initiatives. In January 2024, the project trained 40 key stakeholders – including local community radio journalists, public prosecutors, judges, and security forces – on pastoralist rights and ECOWAS legal frameworks. This training has already shifted mindsets.

Cadija Camara, a criminal investigator from Bafata reflected, “The training helped me a lot. I didn’t know that we cannot arrest someone because his cow entered a family field, which is a recurrent situation; I came out of this training sensitized and I will take greater care with the work of the herders.”

Local Mediation and Resource-Sharing Agreements

Starting from October 2024, Interpeace and Voz di Paz, key local implementing partners, facilitated the creation of local mediation committees in Pirada and Pitche (Gabu region). These committees include herders, farmers, women horticulturists, traditional and official authorities, and religious leaders, ensuring broad community representation.

The committees adopt a structured mediation approach: consulting each party separately to understand their concerns, analyzing the core issues fueling conflicts, and bringing all sides together to negotiate solutions.

In Pitche, the committee rebranded itself to expand its role beyond mediation, now known as the “Célula Técnica de Apoio às Iniciativas de Desenvolvimento Local” (Technical Cell for Supporting Local Development Initiatives). Through this initiative, significant strides have been made, including the formal declaration of the cultivated area as sacred land. A land-sharing agreement was reached, where farmers relocated to alternative plots, improving water access for the community and reducing illegal fishing.

In Pirada, pastoralists and farmers agreed to create a shared grazing area with water access, significantly reducing land disputes. To sustain this momentum, the committee launched a regional awareness campaign aimed at preventing illegal fishing, deforestation, and land mismanagement. There are plans to replicate the committee model across other areas in the region.

Selo Embalo, a mediator in Pitche, shared his observations, ‘’The aspect that has changed a lot is the following: with the introduction of the new dynamics that were presented in these forums, all scheduled meetings are now attended massively by Cell members. Sometimes, they leave their private jobs to come and participate in the Cell’s actions and activities because the cell and its actions are priorities for us at Pitche.’’

“These multisectoral mediation mechanisms in Bafata and Gabu resulted in a significant decrease in the registered conflicts in Gabu, from 80 cases per month (in 2018-2020) to just 10 in 2024 (January to October 2024),” said Aladji Tijane Kande, President of the Herders’ Association of Gabú region.

Cross-Border Cooperation and Cattle Recovery

Conflicts between pastoralists and authorities have also strained cross-border relations, especially due to limited coordination. To address this, the project facilitated cross-border dialogues between pastoralists and authorities from Guinea-Bissau, Senegal, Guinea-Conakry, and The Gambia.

Held in Pirada (April 2024) and Buruntuma (September 2024), these dialogues have led to stronger cooperation among security forces and pastoralist groups. A direct result was the recovery of 149 stolen cattle in 2023 and 2024, recorded by the Gabu Region Cattle Breeders’ Association - the first time such recoveries have occurred. Previously, cross-border thefts often went unaddressed or triggered violent retaliation.

Aladje Tidjane Candé, Commissioner of the Public Order Police in Gabu, said, “As you can see, we were with our brothers from Conakry, Senegal, and Gambia, and we are working hand in hand to find solutions. The problems are many: climate change, the small size of the territory, and the needs that are increasing day by day. We have to manage our needs and our conflicts. Otherwise, we will suffer.”

The Commissioner noted that better coordination among cross-border herders has contributed to the reduction in transhumance-related conflicts.

Women’s Inclusion in Decision-Making

Historically, women were excluded from transhumance discussions despite their critical role in pastoralist communities. The project changed this by ensuring separate consultation spaces and advocating for their inclusion in key dialogues.

Aminata Seidi, a cattle owner from Pirada, says, “Previously, women were not listened to on the issues of pastoralism and transhumance, which often resulted in human losses, even among family members. This shouldn't happen, because the cattle breeder is also a farmer and vice versa. Thanks to this project and the inclusive approach, today women participate in meetings on these issues. As a woman and owner of 30 head of cattle, I believe that we should be heard, especially about problems such as the lack of water for our animals, which forces us to travel at risk, of theft, attacks, and even abuse. I am hopeful about the results from this project, especially in terms of creating the conditions to avoid having to leave our communities in search of water and food for our animals.”

Institutional Support and Future Prospects

The regional authorities have shown consistent commitment to conflict resolution since the project’s inception. The Governors of Bafatá and Gabú have led dialogues and mediated disputes, promoting more equitable access to grazing lands and protected areas. To strengthen mediation capacity, the project trained various stakeholders - including traditional leaders, cattle breeders' association presidents, and community organizations - on land law, conflict mediation, and awareness-raising.

The Strategic Spatial Development Framework (SDF), developed under this project, aims to promote the sustainability of the livestock value chain and ensure harmonious and peaceful transhumance. This instrument integrates land-use planning, economic resilience aligned with each region’s vocation, and environmental sustainability.

The project is led by the Ministry of Agriculture and Rural Development, with key contributions from the General Directorate of Spatial Planning, the General Directorate of Water Resources, the Ministry of the Environment, regional governments, and the National Land Commission. Civil society organizations, particularly Livestock Breeders’ Associations in Bafatá and Gabú, are critical stakeholders, acting both as direct beneficiaries and key agents for implementing the framework’s strategies.

Despite significant progress, continued investment is essential. Future priorities include agro-sylvo-pastoral zoning, institutionalizing dialogues, expanding veterinary services, strengthening participatory land-use planning, setting up border health posts, and raising awareness about the agro-sylvo-pastoral calendar.

This initiative has demonstrated that peaceful transhumance is possible when communities, authorities, and international partners work together. Discussions are ongoing with the Government of Guinea-Bissau and development partners to sustain and expand these efforts, ensuring that dialogue, cooperation, and trust-building continue to guide the region’s path forward.