Augustinus Land Admin Comparative Analysis Africa Final

8/11/2019 Augustinus Land Admin Comparative Analysis Africa Final

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COMPARATIVE ANALYSIS OF LAND

ADMINISTRATION SYSTEMS:AFRICAN REVIEW

With special reference t M!a"#i$%e& '(an)a& Na"i#ia& *hana&

S%th Africa

+, Clarissa A%(%stin%s

WORK UNDERTAKEN FOR THE WORLD BANK, FUNDED

BY DFID

-an%ar,& .//01


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21 +ac3(r%n)

This review is based on five case studies of countries in Africa, namely Mozambique,Uganda, Namibia, Ghana and South Africa These countries were chosen because it wasconsidered that they had underta!en innovative land administration e"ercises and#or there

had been im$ortant $ro%ect interventions The five case studies were underta!en usinge"isting material and no new research was done s$ecifically for the study, which hasmeant that there are numerous ga$s in the data &owever, five case studies were done,more than in the other regions, to try and fill these ga$s and create an overall $icture TheAfrica review had to dovetail with the other regions as much as $ossible This wassomewhat $roblematic as the ma%ority of tenure in Africa is outside of the conventionalland titling system and the focus of new land laws has been on new forms of title andtenure security, rather than on e"tending the conventional titling system This reviewtherefore describes the conventional systems, the new tenure forms under develo$mentand that the ma%ority of rights are currently outside of these systems

212 Factrs that Distin(%ish Lan) A)"inistratin in the Re(in

'and administration in Africa consists of the conventional land administration systemsbased on land registration and( customary and#or informal land administration systemsAs Table ) illustrates, the vast ma%ority of African countries* $o$ulations use thecustomary land administration system, es$ecially in rural areas As most African cities are+-. $ercent informal /UN0&S1)2213, )22)1+4, most urban residents are also not usingthe formal land registration and administration system in urban areas

Ta#le 2: Fr"al an) c%st"ar, c4era(eTitle an)

c%st"ar,

'(an)a Na"i#ia M!a"#i$%e *hana S%th

Africa

C%st"ar,c4era(e

567 of surfacebut about 5.7of $o$ulation

Ma%ority of$o$ulation

27 of transactions

8.7 of totalarea

)-)+7 ofarea butabout 69-+7 of ruralformerhomeland$o$ulation

Title5)ee)

c4era(e

)6-)9 7 Ma%ority of surface areabut notma%ority of$o$ulation

)-)97 Un!nown .-27 of area bute"cludes atleast 69-+7 of $o$ulation

N1 f re(istere)

titles5)ee)s

8, titles Un!nown Un!nown )),+.+ titles#deedsun!nown

5,225,59.deeds

:ue to the com$le" nature of the cadastre and $ro$erty rights, colonial landadministration laws and regulations remain entrenched in many countries still to this dayin Africa /United Nations1)228134 ;n a number of countries, such as Uganda, Ghana,Namibia, Mozambique and South Africa, new land registration laws have been or are


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being introduced and discussed These laws are an attem$t to move away from colonialforms of land administration on the one hand, but also to develo$ land administrationsystems and laws that more closely reflect the social land tenures on the ground/customary and#or informal4

A review of the land registration, cadastral and land information management systems inAfrica indicates that1-

'ess than ) $er cent of sub-Saharan Africa is covered by any !ind of cadastral survey

/UN0&S1)22)1+, )22134 and the case studies show that the vast ma%ority of $eo$lein a country are instead using customary tenure forms /Uganda, Namibia,Mozambique, Ghana case studies4

Most African countries do not have a national land information management system

using ';S#G;S /UN0&S1)22),)22+, Uganda, Namibia, Mozambique, Ghana casestudies4

0adastral systems, generally in manual form, and with incom$lete coverage, are

su$$lying most of the available land information /

Some of the ma%or $roblems with land registration systems in Africa are1-

There is a general lac! of financial, technical and human ca$acity throughout Africa

=ecause the systems are under-resourced many of them are out of date, e"$ensive tomaintain and inefficient /:urand 'asserve1 )22813-9,)6,)5( >zigbali!e1)2251+9(

?A @orld =an! study on Africa /showed that4 if no dis$ute occurs, the $rocess of

land registration ta!es an average of )9 to ). months, and that normally, a $eriod of

two to seven years is not uncommon This lengthy and costly $rocedure /meansthat4 tens of thousands of land titles /are usually4 $ending /UN0&S1)22)19,Uganda, Ghana, Mozambique case studies4

Most of the systems are centralized /UN0&S1)22+, Uganda, Ghana, South African

case studies4

Available information often relates only to the $art of the city or rural area where

formal legal $rocedures were used for $lanning /UN0&S1)22.134 Bet most decisionsneed to be made about the non formal and#or customary $arts of the country, whichare not covered by the cadastre /

?:es$ite numerous initiatives during the last decade in sub Saharan Africa to set u$

new land information systems or to modernize e"isting ones, limited results havebeen achieved /:urand 'asserve1)2281)6, Uganda, Namibia, Ghana case studies4

@here information e"ists, it is often s$read among several government de$artments

and accessing it is difficult These institutions are usually $ublic, highly centralized,not well managed, and have over-la$$ing res$onsibilities /:urand 'asserve1)2281)6,UN0&S1)22.13, Uganda, South Africa, Ghana case studies4


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Many of the $arcels in the land registration systems are cloudy and hold ambiguous

information des$ite attem$ts to create land registration systems with certain, highlyaccurate information /UN0&S1)2251))( :urand 'asserve1)22816( UN0&S1)22+,)229,)22)1+()2213( UN>0A1)225, Uganda, Mozambique, Ghana case studies4

To conte"tualise the information $resented above and below further, a number of Africa*scharacteristics that affect land administration are identified

) 0ustomary tenure is generally secure and titling is unnecessary &owever,customary tenure also transforms under certain conditions and becomes lesssecure for customary residents Cthese conditions include, urbanization, ribbondevelo$ment, cash cro$s Also, the formal land registration system is not neutraland where titling is im$lemented often customary tenure $eo$le lose their rights/women and overla$$ing rights holders are very vulnerable4

6 'and mar!ets e"ist all over Africa, both in rural and urban areas They are not a

recent $henomena They are not free land mar!ets and the sale of land is limitedto relatives /by blood and#or marriage4, and#or ethnic#national grou$s, and#orreligion in certain areas and#or to men All of these sales generally ta!e $laceoutside of the formal titling system There is an active rental mar!et both in ruraland urban areas, also to strangers who do not fit into the above categories

+ :ue to the general wea!ness of the central state in Africa, it is not $ossible toim$lement at scale a centralised titling $rogramme, or land use controls, orenforcement Most im$lementation is only in the cities, es$ecially in the ca$italcity, and ad hoc

3 The $atron-client relationshi$ in relation to land can be very strong at national,ethnic, family, local government#$olitician levels

9 @omen*s rights to land are often nested in that of the family ;n countries wherethere have been wars, genocides etc women often struggle to obtain land rightswhen the men in their families are deceased, because society understands theirrights in terms of family#men*s rights

5 There are large scale $roblems around the flow of s$atial information for landadministration $ur$oses both within government, between de$artments at nationallevel, between national and lower level tiers, and between government and the$rivate sector and users 0oordination is a critical issue There are fewcom$rehensive national digital systems in o$eration that contain land informationfor land administration $ur$oses @here they do e"ist they only include that $artof the country covered by the cadastre, ty$ically formal urban areas

8 Most countries have colonial forms of legal evidence requiring high standards and$rofessional in$uts There are few registered $rofessionals Cmany countries haveless than +


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. Many countries have started law reform to change the situation and introduce newforms of evidence and a$$roaches, but the scale and com$rehensiveness ofchange needed is huge and has not reached im$lementation at scale levelSystematic titling is not considered an o$tion for most of Africa for a range of

reasons

2 Many of the e"isting titles are cloudy and require legal $rocesses rather than %ustadministrative $rocesses to transfer ;n defending their rights $eo$le will refer toboth the $a$er and to customary evidence to $rotect their rights, sometimes this islegal, occurs frequently in the legal system, or forms $art of land reform$rocedures

.1 C"parati4e Anal,sis

The five countries reviewed have a range of tenure ty$es, both colonial and introduced

under new law

.12 Lan) Ten%re S,ste"s

Ta#le .: Ten%re t,pes 6fr"al an) infr"al

Ten%re t,pes '(an)a Na"i#ia M!a"#i$%e *hana S%th

Africa

Freehl) Bes Bes No Bes Bes

Re(istere) leases Bes Bes Bes Bes Bes

C%st"ar, 7nt necessaril,

le(al8

Bes Bes Bes Bes Bes

Occ%panc, ri(hts Bes No Bes Un!nown Bes

Anti9e4ictin ri(hts Bes No No Un!nown Bes

*r%p5fa"il, titles Bes Un!nown Bes in law Bes Bes

M)ern starter; 5pr4isinal

t,pe titles

Bes -$ilot Not yet No Bes No C $lanned

A)4erse

pssessin5;s$%atters ri(hts;

Un!nown Un!nown Un!nown No Bes

State lan)


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.1. Le(al Fra"e


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parcels still t #e

re(istere) 7if

)esire)8

Spatial )ata

infrastr%ct%re

fr c%ntr,

No Cunderdevelo$ment

No No No Bes

Technicalstaffin( ;nsufficient Cless than 6$rofessionalland surveyors

;nsufficient-less than 6$rofessionalland surveyors

;nsufficient Cless than 6$rofessionalland surveyors

;nsufficient Good

M)ern

"rt(a(e la: Csts

'SD '(an)a Na"i#ia M!a"#i$%e *hana S%th Africa

Ttal cst per

parcel

Un!nown Un!nown Un!nown =ase USI 3 Jad valoremscale

Un!nown

Cst per parcel

fr state

Un!nown Un!nown Un!nown Un!nown US: 3

Cst f re(istere)

transfer t %ser

Un!nown US: 6.8 Un!nown =ase US: )+J ad valoremscale

=etweenUS: 9). forUS: 8,23 CUS: 3,9+.for US:

98,9+8 $er$ro$erty

Cst per s%r4e, Un!nown Un!nown Un!nown Scaleregulated-based on sizeand locationof $arcel

Un!nown

Csts fr

s,ste"atic titlin(

Not beingunderta!en

Not beingunderta!en

:oing s$oradiconly

Un!nown Not done


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%nit

Percenta(e f

natinal #%)(et

'ess than 67for wholede$artment

Un!nown Un!nown Un!nown 'ess than )7for wholede$artment

R%nnin( csts f

re(istr,

Un!nown Un!nown Un!nown About US:+, $a

US:)2,28,23

$aR%nnin( csts fS%r4e,r

*eneral

Un!nown Un!nown Un!nown About US: )million $a

About US:. million

R%nnin( csts f

lan) titlin( at

lcal (4ern"ent

le4el

Un!nown Un!nown Un!nown Nota$$licable

None

Ann%al f%n)in(

#, )nrs fr

lan)

a)"inistratin

Un!nown Un!nown About US: 6million

Karies None

.1= Lan) "ar3et infr"atin

Ta#le ?: Lan) "ar3etsLan) "ar3ets '(an)a Na"i#ia M!a"#i$%e *hana S%th Africa

Fr"al 6n1 f

re(istere)

transfers per

,ear

Un!nown Cabout +,current titles

Un!nown Un!nown 6)5 titles/)2224, .9/64, deedsun!nown

+.,

'nre(istere)

transfers

Un!nown Un!nown Un!nown Bes Bes

Occ%rrin( in

c%st"ar,

Bes -s$oradically

Bes-s$oradically

Bes Csome areasonly

Bes Bes-s$oradically

Infr"al

settle"enttransfers

Bes Bes Bes Un!nown Bes

+ The intr)%ctin f ne< appraches t lan) a)"inistratin

There are large scale $roblems both within the conventional land administration systemand with the conventional system by users As indicated, the ma%ority of $eo$le in mostAfrican countries live outside of the formal land administration system associated withtitling @hat follows is firstly a descri$tion of user $roblems with conventional titlingsystems Secondly, the best $ractices and lessons learned from five African countries aredescribed with res$ect to transforming land administrations systems to be more user

friendly and $ro-$oor Hinally, an attem$t is made to draw cost com$onents together


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012 E@perience f cn4entinal s,ste" #, %sers

Ta#le : Pr %sers pr#le"s


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A"#i(%%s

a)"inistrati4e

infr"atin

Bes Un!nown Bes Bes Bes Cinformerhomelands

01. Phases& se$%ences an) acti4ities fr a ne< re(%latr, fra"e


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The new land laws that are under develo$ment or have been develo$ed in these 9countries have common characteristics These are identified in Table ) below

Ta#le 2/: Ele"ents f ne< lan) la


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Re$%ires re9str%ct%rin(

f (4ern"ent t

i"ple"ent lan) titlin(

etc

Bes Bes Bes No Dlanned

Acc%rac, f parcels &andheldGDS with

localreferencesystem

None forstarter titles,

lower for landhold title

Un!nown, butvery low for

communitydemarcation

&igh Un!nown

Ri(hts #taine) #, pr Sale, lease,mortgage,inheritance,com$ensationif moved notas individualright but asfamily#grou$

Fight to$er$etualoccu$ation,sell, inherit,donate, formof familytitle


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Ta#le 22: *en)er aspects*en)er aspects '(an)a Na"i#ia M!a"#i$%e *hana S%th

Africa

Ne< (en)er frien)l,

lan) la1. Pre9Titlin( in)icatrs fr the first )eca)e


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)9 Sufficient funding at local level to im$lement land administration /differento$tions such as conditional grants, local government revenue, land ta" etc4

)5 :evelo$ment of a $ro$erty data base for routine statistical data base collectionsuch as numbers of titles etc, number of dis$utes, number of solved dis$utes,number of women with titles, or co-ownershi$ /see below4

)8 0ourt cases com$leted indicating robustness of new land law). Multi-sta!eholder acce$tance of hierarchy of evidence relating to land rights/different government de$artments, users and state, donors4 Cthis indicatesagreement and not divergence between ma%or sta!eholders

)2 'and titles of all ty$es guaranteed, with either the $rivate or $ublic sectoracce$ting liability

6 Hull lin!age of land use right allocation with land right allocation6) 'and administration $rocesses such as a$$lication, recording, ad%udication,

transfer, land use regulations and distribution of benefits are becoming clearer,better !nown and more used

66 Authority in land administration $rocesses is becoming clearer, better !nown and

more used6+ There are more and increasingly accessible $laces to go to for recourse in terms ofland administration $rocesses, and these are becoming better !nown and moreused

63 'and administration $rocesses are becoming less unfairly discriminatory againstany $erson or grou$

69 =ridges are being built that s$an the ga$s between actual $ractice and legalrequirements

65 =enefits and services are becoming as available to $eo$le living under all formsof tenure as they are to $eo$le living under freehold tenure systems

Some of these indicators can be measured $rior to the first title being delivered, whilesome of them may be measured as the new system is being $ut into $lace at an earlystage, $rior to full roll out, and some may only be $ut in $lace after roll out has started

>10 In)icatrs after title5)ee) rll %t

) Hee structure of agencies $ublished, with affordable a$$roaches for the $oor6 Average cost of different ty$es of titles to the state+ Number of title a$$lications of different ty$es of titles3 Number of titles of different ty$es registered9 Number of new registrations in $revious )6 months5 Number of transactions#transfers $er year /$arcels sold48 Number of households with land dis$utes in $revious )6 months. Number of land dis$utes solved in $revious )6 months2 Average cost of solving dis$utes) Number of titles owned by women)) Number of titles co-owned)6 Number#hectarage of $oor titled#demarcated)+ Dercentage of country covered by titles


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)3 Dercentage of land holdings titled, or demarcated, or described in the S$atial :ata;nfrastructure

)9 'ength of time for an average technical $rocess from a$$lication to final titling)5 Number of local government level offices o$ened, fully staffed and functioning

for transfers, information on land rights and com$laints

)8 Number of information requests by the $ublic, other government de$artments,$rivate sector at local government offices by category). Fevenue from s$atial information sold)2 'and sector revenue6 Ty$es of land information used#required at local government level for the delivery

of economic and social services6) Number of com$laints or dis$utes about land sector staff $er office66 Number of $rivate sector surveyors, valuers, at all levels of qualification

registered6+ Foutine mechanisms for distributing information to the $ublic and users /ma$s

available, brochures describing land rights, !nowledge transfer when

titling#demarcating, media cam$aigns, client access through local offices etc463 :evelo$ment of a state asset register /to se$arate the state*s rights fromcommunity land rights and to manage state facilities4

68 'and administration $rocesses such as a$$lication, recording, ad%udication,transfer, land use regulations and distribution of benefits are clear, !nown andused

6. Authority in land administration $rocesses is clear, !nown and used62 Accessible $laces across the country at local level to go to for recourse in terms of

land administration $rocesses, and these are well !nown and used+ 'and administration $rocesses are not unfairly discriminatory against any $erson

or grou$+) =ridges e"ist to s$an the ga$s between actual $ractice and legal requirements+6 =enefits and services are available to $eo$le living under all tenure systems and

not %ust $eo$le living under freehold tenure

>1= In)icatrs cncernin( the e@tensin f the lan) a)"inistratin s,ste"s t

c%st"ar, areas in ne<


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1 'ocal government level land administration offices where $eo$le can obtaininformation about their land rights, com$lain about infringements

2/1 Deo$le*s rights are becoming clearer, $eo$le !now better what their rights are andthey are more able to defend their rights

221 There are more and increasingly accessible $laces to go to for recourse in terms of

land administration, and these are becoming better !nown and more used2.1 'and administration is becoming less unfairly discriminatory against any $ersonor grou$

201 =ridges are being built that s$an the ga$s between actual $ractice and legalrequirements De factocustomary tenure behaviour is also to a large e"tent dejure/different mechanisms can be used such as occu$ancy rights, titling, familylaw etc4

2=1 =enefits and services are becoming as available to $eo$le living under customarytenure as they are to $eo$le living under titled tenures such as freehold


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+i#li(raph,

Alberts, F, Hourie, 0, 'ats!y, and : Dalmer /)2294 :iscussion $a$er on o$tions for $arallelinterchangeable $ro$erty registration systems, Ministry of 'ands, Fesettlement andFehabilitation, Namibian Government /un$ublished4

Alberts, F, Hourie, 0, &o%gaard, D:, Shitundeni, , 0orbett, A and 'ats!y /)2254

:iscussion $a$er on land management and local level registries, Ministry of 'ands,Fesettlement and Fehabilitation, Namibian Government /un$ublished4

Asiama, Sntity Assessment Dro%ect, Association forFural Advancement, Dietermaritzburg, South Africa

:ambiane, S Fovicene /)2284 An investigation of land ad%udication $rocedures to increasetenure security by incor$orating local customary land rights, Msc Thesis, :e$artment of'and Surveying, University of Natal /:urban4

:eininger, L and F 0astagnini /664 ;ncidence and im$act of land conflict in Uganda, The

@orld =an!>zigbali!e, ;0 /)2254 ;ntegrated Ecadastre* for rural Africa, South African ournal of Surveying

and Ma$$ing 6+/54Hederation of ;nternational Surveyors /)2294 The H;G statement on the cadastre, H;G Dublication

No ))Hourie, 0 /64 'and and the cadastre in South Africa1 ;ts history and $resent government

$olicy1 Guest lecture $resented at the ;nternational ;nstitute of Aeros$ace Survey and>arth Sciences /;T04, >nschede, The Netherlands, )stNovember,6

Hourie, 0 and Shar$ley /64 @or!ing :raft 'and Sector Strategic Action Dlan, Ministry of@ater, 'ands and >nvironment, Government of Uganda

Hourie,0 /6+4 Altering Fegulatory Hramewor!s in Namibia1 Merging ;nformal and Hormal'and Tenures, Da$er $resented at 'incoln ;nstitute of 'and, &arvard University, Dolicy

wor!sho$ on 0om$arative Ders$ectives on Urban 'and Mar!et Feform in 'atin America,Southern Africa and >astern >uro$e, 0ambridge, Massachusetts, USA, 8-2th uly,)22.

&illermann, F /6)4 :evelo$ment of a state asset register, including state domestic facilities,:e$artment of Traditional and 'ocal Government Affairs, Lwaulu-Natal, South Africa

&illermann, F /664


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Lasanga, L /664 ;ntegrating land issues into the broader develo$ment agenda1 The case ofGhana, Da$er $resented at @orld =an! Fegional @or!sho$ on 'and ;ssues in Africa,Lam$ala, Uganda, 62 A$ril -6 May 66

'and Act ;m$lementation Study /)2224 U =lac!shaw and '>turu /summary re$ort4, 'eatherdale and : Dalmer /Technical A$$raisal4, AFae and D Nyai!a /HinancialA$$raisal4, FDurcell and A=abumba Lyeyune /'and Hund A$$raisal4, >Marsh and

0Lego 'a!er /Social A$$raisal4, D caat />nvironmental A$$raisal4,DMcAuslan and FMwebaza /'egal A$$raisal4, U=lac!shaw, 'nvironment, Government of Uganda

'and >quity com$any /664 >mail notes from T=urns and 0Grant on Ghana*s landadministration system

Nichols, S, Hourie, 0 and M Me%ias /)2284 Sida Su$$ort to :;NAG>0A in Mozambique )22)-)225, An evaluation of Sida su$$ort to national surveying and ma$$ing, :e$artment forNatural Fesources and the >nvironment, 28#)9

Ouadros, 0 /664, 0ountry case study Mozambique, Da$er $resented at the @orld =an!regional wor!sho$ for Africa and the Middle >ast, Lam$ala, Uganda, A$r 62-6 May,66

Fe$ublic of Mozambique /)22.4 DF


28/28

United Nations 0entre for &uman Settlement /&abitat4 /)2294 Gestion Honciere Urbaine,Dolitiques de Fegularisation et :evelo$$ement 'ocal en Afrique et :ans les >tatsArabes, Serie Gestion, Honciere No 9, 0onclusions de '*etude et du Seminaire /Abid%an,6)-63 Mars )2294

United Nations 0entre for &uman Settlement /&abitat4 /)2254 New :elhi, &abitat ;; Global0onference on Access to 'and and Security of Tenure as a 0ondition for Sustainable

Shelter and Urban :evelo$ment, New :elhi, ;ndia /)8-)2 anuary, )2254United Nations 0entre for &uman Settlement /&abitat4 )228 Global Urban "$eriences in ;m$lementingthe &abitat Agenda, 'and Management Series No 8 /:raft version1 Nairobi, une )22.4

United Nations >conomic 0ommission for Africa )225 Sub-Fegional @or!sho$ on 'and Tenure;ssues in Natural Fesource Management in the Anglo$hone >ast Africa with a focus onthe ;GA: region, Addis Ababa, )) to )9 March )225

United Nations >conomic 0ommission for Africa )22. An integrated geo-information /G;S4 withem$hasis on cadastre and land information systems /';S4 for decision-ma!ers in Africa,@or!ing document for meeting of Grou$ of >"$erts at United Nations >conomic

0ommission for Africa, Addis Ababa, 6+-65November,)22.Kan der =erg, A /664, &istory of Settling Southern Africa, Da$er $resented on behalf of :r N

M!galamele, at Sym$osium on 'and Fedistribution in Southern Africa, Hederation of;nternational Surveyors, Dretoria, November, 66

Kan der =erg, M /664, Survey methods and data management for the demarcation andmanagement of informal rights in South Africa, at Sym$osium on 'and Fedistribution inSouthern Africa, Hederation of ;nternational Surveyors, Dretoria, November, 66

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Augustinus Land Admin Comparative Analysis Africa Final

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