Land Administration of Communal Land: Lessons from the ... · Pre-Hispanic (1917-1992)...
Transcript of Land Administration of Communal Land: Lessons from the ... · Pre-Hispanic (1917-1992)...
Land Administration of Communal
Land: Lessons from
the Ejidos in
Mexico
Grenville Barnes
Maria DiGiano
XXV International Federation of Surveyors Congress, Kuala Lumpur, Malaysia, 16 – 21
June 2014
Contents
• GLTN and Customary Tenure Tool Objectives• Conceptual Framework• Community Property in Mexico (Ejido)• Continuum of Property Rights• Fieldwork/Sampling• Property Registration Systems• Lessons
Mexico operates a pro-poor land administration system that has been around for
almost a century and covers approximately half the country’s land
XXV International Federation of Surveyors Congress, Kuala Lumpur, Malaysia, 16 – 21
June 2014
Focal Areas of GLTNGender: • How do we guarantee women’s access to land and tenure
security?Vulnerability and Poverty:
• What protections can we offer to the most vulnerable and marginalized populations?
Sustainability:
• What role can customary systems play in terms of the sustainable management of natural resources and environmental services?
General Objective of GLTN: Break the cycle of poverty through land reform and the improvement of land management systems and tenure security
XXV International Federation of Surveyors Congress, Kuala Lumpur, Malaysia, 16 – 21
June 2014
Formal
Tenure
Security
Governance (rules
and rights)
Communities
User Groups
Households
Women and
Men
Vulnerable
Groups
Families, Clans,
Lineages, etc.
Enforceability
Durability
Legitimacy
Cultivated
Land
Forests
Pasture
Wetlands
Urban Land
Water
Resources
Resource
TypesVulnerabilityLand-
holders
Customary
Environmental &
Economic Services
Conceptual Framework
Objective:Identify, describe and analyze mechanisms to attain land tenure security with customary tenure systems, including how these systems operate and adapt to external and internal forces.
Customary Land Tenure Tool
XXV International Federation of Surveyors Congress, Kuala Lumpur, Malaysia, 16 – 21
June 2014
The Ejido
Forest(indivisible)
Agric. Parcels
Common-use area
Urban Lots
Ejidatarios
InhabitantsPossessors
Common-use area
XXV International Federation of Surveyors Congress, Kuala Lumpur, Malaysia, 16 – 21
June 2014
Continuum of Property Rights in Mexico
Formal
Land
Rights
Informal
Land
Rights
Customary
Creation of
Ejidos(unencumberable,
indivisible, inalienable)
Reforms to
Article 27Allowed conversionto Private Property
Registered
Private
Property
Group Tenure
Perceived Tenure
Approaches Occupancy Leases
Anti-Evictions
AdversePossession
Indigenous Forms of Tenure
TIME
Pre-Hispanic
(1917-1992) (1992- present)
Colonial Era
(1519-1821)
Land Reform Era Neo-liberal EraPost-Colonial Era
(1821-1910)
Mexican Revolution (1910-1917)
Dismantling of
Indigenous
Tenure (encomiendas,
haciendas,
congregaciones)
XXV International Federation of Surveyors Congress, Kuala Lumpur, Malaysia, 16 – 21
June 2014
Ejido Field Samples
Source: Bureau of Business Research
Land Tenure Ejidos Visited Factors affecting Tenure
Common-Use
(no parcels)
Naranjal Poniente
(Qroo, MexicoState)(forest ejidos),
• Collective forest use• Traditional Practices• Distrust of Government
Common-Use
(with Certified
Parcels)
Noh Bec (QRoo)Tonalaco
(Veracruz)
• Continue to benefit from collective tenure
• Environmental Services important revenue source
• Limited land sales, less secure
Certified ParcelsMozamboa
(Veracruz)
• Parcels and titles confused• Land sales (agriculture) • Fear of property taxes limits
conversion to dominio pleno
Dominio Pleno
El Chico
Emiliano Zapata
(Veracruz)
• Conversion to DP (urbanizationand rising land values)
• Ejido losing original meaning • Subdivision and sale of ejido
parcels (urbanization primary driver)
• Considering dissolving ejido• Many land sales
32%
65%
1% 2%
Parceled
Common-use
Urban
Other
Land Tenure Status (Area) Nationally (2007)
By 1992 number of Ejidos exceeded 30,000
XXV International Federation of Surveyors Congress, Kuala Lumpur, Malaysia, 16 – 21
June 2014
Level of Parcelization
0 20 40 60 80 100
VERACRUZ
TABASCO
COLIMA
TLAXCALA
CHIAPAS
MÉXICO
TAMAULIPAS
MORELOS
GUANAJUATO
MICHOACÁN
HIDALGO
AGUASCALIENTES
PUEBLA
SINALOA
BAJA CALIFORNIA
GUERRERO
JALISCO
NAYARIT
OAXACA
QUERÉTARO
ZACATECAS
SAN LUIS POTOSÍ
NUEVO LEÓN
CAMPECHE
COAHUILA
YUCATÁN
SONORA
DISTRITO FEDERAL
CHIHUAHUA
DURANGO
QUINTANA ROO
BAJA CALIFORNIA…
Percentage Ejido Area
Parceled by State (2007)
(National Average = 40%)
0 10.000 20.000 30.000 40.000 50.000 60.000
VERACRUZ
TLAXCALA
GUANAJUATO
HIDALGO
MÉXICO
PUEBLA
TABASCO
AGUASCALIENTES
DISTRITO FEDERAL
QUERÉTARO
CHIAPAS
MICHOACÁN
MORELOS
TAMAULIPAS
COLIMA
JALISCO
SAN LUIS POTOSÍ
SINALOA
YUCATÁN
ESTADOS UNIDOS MEXICANOS
NUEVO LEÓN
GUERRERO
ZACATECAS
OAXACA
NAYARIT
SONORA
DURANGO
COAHUILA
CAMPECHE
QUINTANA ROO
CHIHUAHUA
BAJA CALIFORNIA
BAJA CALIFORNIA SUR
Average Area (ha)
per Ejido (2007)
(National Average = 3,362 ha)
XXV International Federation of Surveyors Congress, Kuala Lumpur, Malaysia, 16 – 21
June 2014
Legal Framework
Agrarian Law (1992)
Constitution (Art. 27) of 1992
Civil Code (Libro 4 – 2000)
Regulations – Planning of Rural
Properties (2012)
Regulations – Promotion of
Organization and Development of
Female Small Farmers (1998)
Regulations – Certification of Ejidal
Rights and Titling of Urban Lots (1993)
Organic Law - Federal Public Administration (2012)
General Law - Human Settlements (1993)
Technical Norms - Delimitation of
Land inside Ejidos (2008)
Organic Law – Agrarian Tribunals (1998)
Regulations (Interior) – Agrarian
Tribunals (1992)
Regulations (Interior) – Agrarian
Reform Secretariat (1995)
Regulations (Interior) – Agrarian
Attorney’s Office (1996)
Regulations (Interior) – National
Agrarian Registry (1997)
Regulations (Interior) – Land
Tenure Regularization Commission (1995)
Regulations – State and
Municipal levels
Internal Regulations (Ejido) XXV International Federation of Surveyors Congress, Kuala Lumpur, Malaysia, 16 – 21
June 2014
Original Property Documents
Original Ejido Title
Ejido Tlalmimilolpan
Agrarian Rights Certificate
Ejido San Miguel Atlautla
XXV International Federation of Surveyors Congress, Kuala Lumpur, Malaysia, 16 – 21
June 2014
Products of Certification Process
Internal Plan
Urban Lot Plan
Common-use Land Plan
Individual Parcel Plan
Human Settlement Plan
Common-Use Land Certificate
Parcel Certificate Urban Lot Title
XXV International Federation of Surveyors Congress, Kuala Lumpur, Malaysia, 16 – 21
June 2014
Characteristics of Ejidatarios
80%
20%
Gender of All Ejidatarios (2007)
1 1
16
45
54 57
36
7
24-30 31-43 44-53 54-63 64-73 74-83 84-93 94-103
Mozomboa Ejidatarios
Age Distribution (2003)
04
10
2124 25
11
6
24-30 31-43 44-53 54-63 64-73 74-83 84-93 94-103
Los Molinos Ejidatarios
Age Distribution (2000)
74%
26%
Ejidatarios vs Possessors (2007)
Ejidatarios
Male
XXV International Federation of Surveyors Congress, Kuala Lumpur, Malaysia, 16 – 21
June 2014
Property Registration Systems
EJIDO
NATIONAL
AGRARIAN
REGISTRY
(RAN)
Registry
Book
Issue New
Certificates (adverse
possession) (sales)
Approve General
Plan
Issue Parcel
Certificate
Issue Common-use
Certificate
Approve Internal
Plan
Technical
Norms
Issue New DP Title
Technical
Assistance
Internal
Regulations
List of Successors
General Assembly
Minutes
Land Use Contracts
(with 3rd Parties)
Sell Parcels
Convert to DP
Sell Membership
Private Property
Registry
State
Offices
XXV International Federation of Surveyors Congress, Kuala Lumpur, Malaysia, 16 – 21
June 2014
Evolution of Ejidos
• Approx. 7-10% of ejidos have converted to private property• Why have they converted?
� Rising land values due to urbanization� Maximizing payment when expropriation imminent� Land near tourism areas� Leave (will) to multiple successors
Urban
zone
Urban
zone
Urban
zone
XXV International Federation of Surveyors Congress, Kuala Lumpur, Malaysia, 16 – 21
June 2014
Factors Contributing to Evolution
[Adapted from: Barsimantov, DiGiano, Barnes, and Racelis (2010)]
NAFTAExternally
funded Programs
Age
PROCEDE
Extreme weather events
XXV International Federation of Surveyors Congress, Kuala Lumpur, Malaysia, 16 – 21
June 2014
Lessons - Positive
• Title over community provided protective shell
• Standardized governance template
• Specific pro-poor registry for communities• Communal land has preserved natural resources which provide
valuable environmental services (e.g. clean water)
XXV International Federation of Surveyors Congress, Kuala Lumpur, Malaysia, 16 – 21
June 2014
Lessons - Negative
• Residents and possessors do not have a direct voice in community Governance
• Inter-generational transfer issues• Many community members do not distinguish between title and usufruct
certificates (land market in both)• Registry structure is not easily accessible (recent initiatives address this)• Policy change to allow private individual property has not integrated community
members in the larger economy
XXV International Federation of Surveyors Congress, Kuala Lumpur, Malaysia, 16 – 21
June 2014