Addressing Land Issues Addressing Land Issues after Natural Disastersafter Natural Disasters

Lessons from AcehLessons from Aceh

Daniel FitzpatrickDaniel Fitzpatrick

Aceh Tsunami Impact ZoneAceh Tsunami Impact Zone

Urban DestructionUrban Destruction

Banda Aceh 6 - BeforeBanda Aceh 6 - Before

Banda Aceh 6 - AfterBanda Aceh 6 - After

Banda Aceh 7 - BeforeBanda Aceh 7 - Before

Banda Aceh 7 - AfterBanda Aceh 7 - After

Banda Aceh 1 - BeforeBanda Aceh 1 - Before

Banda Aceh 1 - AfterBanda Aceh 1 - After

Coastal Aceh - BeforeCoastal Aceh - Before

Coastal Aceh - AfterCoastal Aceh - After

Coastal Aceh 2 - BeforeCoastal Aceh 2 - Before

Coastal Aceh 2 - AfterCoastal Aceh 2 - After

Damage to Land Administration System Damage to Land Administration System (A)(A)

o 126,602 people killed and 93,638 people missing

o 514,150 people displaced

o252,223 houses totally destroyed or partially damaged as a result of the December 26 tsunami

oApproximately 23,330 ha of rice fields and 126,806 ha of other agricultural or garden areas damaged by mud, salination, sand or erosion

oApproximately 300,000 land parcels (170,000 urban; 130,000 rural) out of an estimated 1,498,200 in NAD generally affected by tsunami-related damage

Damage to Land Administration System Damage to Land Administration System (B)(B)

o Destruction of the National Land Agency (BPN) office in Kota Banda Aceh; 2 other BPN offices also destroyed and 3 severely damaged

o Loss of approximately 30% of the staff in the Banda Aceh BPN office

o Substantial damage to or loss of land records in BPN and sub-district offices (approximately 80%), including almost all cadastral maps.

o Land books: 10% lost; 90% badly damaged.

o Widespread loss of personal identity records in tsunami-affected areas

oSignificant inundation and subsidence.

o Significant obscuring or obliteration of boundary markers.

Aceh 4Aceh 4

Aceh 5Aceh 5

Aceh 6Aceh 6

Four Main Land IssuesFour Main Land Issues

Securing land rights and tenureSecuring land rights and tenure Mitigation and land use planningMitigation and land use planning Protecting the VulnerableProtecting the Vulnerable

Secondary rights-holdersSecondary rights-holders The landlessThe landless Women and childrenWomen and children

Land acquisitionLand acquisition

The Institutional ContextThe Institutional Context

Fragmented government systemFragmented government system Secessionist conflictSecessionist conflict Tsunami-affected government Tsunami-affected government

capacitycapacity Reconstruction authorityReconstruction authority Poor quality land administrationPoor quality land administration Lots of NGOsLots of NGOs

Securing land rights and Securing land rights and tenuretenure

Reconstruction of Land Reconstruction of Land Administration System in Aceh and Administration System in Aceh and Nias (RALAS) ProjectNias (RALAS) Project

World Bank-designedWorld Bank-designed Multi-donor trust fundMulti-donor trust fund National Land Agency (BPN) National Land Agency (BPN)

implementationimplementation

Diagram of the Flow of Community Agreement ProcessDiagram of the Flow of Community Agreement Process

Attachment 4-2Attachment 4-2 THE LETTER OF STATEMENT OF THE INSTALMENT OF BOUNDARY STAKES AND THE PHYSICAL OWNERSHIP OF A PIECE OF LAND THE LETTER OF STATEMENT OF THE INSTALMENT OF BOUNDARY STAKES AND THE PHYSICAL OWNERSHIP OF A PIECE OF LAND Regency/Municipality: District : Village : Neighbourhood (RT/RW) : Street/Block/Regency/Municipality: District : Village : Neighbourhood (RT/RW) : Street/Block/ JurongJurong: Code/No . . . . .(the same as the code in the map): Code/No . . . . .(the same as the code in the map) DATA OF TRUSTEE/GUARDIAN DATA OF TRUSTEE/GUARDIAN (filled in by those acting as trustee/guardian/representative)Name : . . . . . . . . . . . . . . . . . . . . . . . . (filled in by those acting as trustee/guardian/representative)Name : . . . . . . . . . . . . . . . . . . . . . . . .

. . . . . . . .Place/Date of Birth (age) : . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .Place/Date of Birth (age) : . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . Address : . . . . . . . . . . . . . . . . . . ... . . . . . . .. . . . .Occupation : . . . . . . . . . . . . . . . . . . . . . .. . . . . .. . . . .Acting on Address : . . . . . . . . . . . . . . . . . . ... . . . . . . .. . . . .Occupation : . . . . . . . . . . . . . . . . . . . . . .. . . . . .. . . . .Acting on behalf of : Trustee/guardian of . . . . . . . . . . . . .. . . . . . . . . . (as filled in as follows)behalf of : Trustee/guardian of . . . . . . . . . . . . .. . . . . . . . . . (as filled in as follows)

DATA OF LAND OWNER[S]: DATA OF LAND OWNER[S]: (According to the ID, if any)Name : . . . . . . . . . . . . . . . . . . . . . . .. . . . . (M/F)Place/Date of Birth (According to the ID, if any)Name : . . . . . . . . . . . . . . . . . . . . . . .. . . . . (M/F)Place/Date of Birth (age) : . . . . . . . . . . . . . . . . . . .. . . . . . . . . . .Identity No : . . . . . . . . . . . . . . . . . . . . . . . . . . . . . Status : (age) : . . . . . . . . . . . . . . . . . . .. . . . . . . . . . .Identity No : . . . . . . . . . . . . . . . . . . . . . . . . . . . . . Status : Married/unmarried/widow/widowerName of husband/wife : . . . . . . . . . . . . . . . . . . . . .Present/temporary Married/unmarried/widow/widowerName of husband/wife : . . . . . . . . . . . . . . . . . . . . .Present/temporary address : . . . . . . . . . . . .. . . . . . . . . . . . .. . . . . . . . . . . . . . . . . . . .. . . . . . . . . . . . . . . .Address before Tsunami : . . . . . . address : . . . . . . . . . . . .. . . . . . . . . . . . .. . . . . . . . . . . . . . . . . . . .. . . . . . . . . . . . . . . .Address before Tsunami : . . . . . . . . . . . . . . . . . . . .. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .. . . . . Past occupation  : . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .. . . . . Past occupation  : . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .Present occupation  : . . . . . . . . . . . . . . . . . . . . . . . . .. . . . . .Status of land   : HM/HGB/HGU/HPCertificate . . . . . . . . . . . . .Present occupation  : . . . . . . . . . . . . . . . . . . . . . . . . .. . . . . .Status of land   : HM/HGB/HGU/HPCertificate : with/without certificate : with/without certificateHak tanggunganHak tanggungan : as collateral/not collateralThis land is owned since : . . . . . . . . . . .. . . . . . . . . : as collateral/not collateralThis land is owned since : . . . . . . . . . . .. . . . . . . . . (d/m/y)Obtained from : purchase/(d/m/y)Obtained from : purchase/hibahhibah/inheritance/right /inheritance/right extension . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .This land will be certified in the names of extension . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .This land will be certified in the names of 1. . . . . . . . . . . . . . . . . . . . . . . . . . . . 2. . . . . . . . . . . . . . . . . . . . . . . . . . . . 3. . . . . . . . . . . . . . . . . . . 1. . . . . . . . . . . . . . . . . . . . . . . . . . . . 2. . . . . . . . . . . . . . . . . . . . . . . . . . . . 3. . . . . . . . . . . . . . . . . . . . . . . . . . . .IF THERE IS NO ID CARD, THIS PART MUST BE FILLED IN . . . . . . . . .IF THERE IS NO ID CARD, THIS PART MUST BE FILLED IN Thumb mark of land owner Thumb mark of land owner

Thumb marking is done in presence of geucikThumb marking is done in presence of geucik Acknowledged the accuracy of the data by geucik/head of village.(…….Name of Geucik/the head of village…..)Acknowledged the accuracy of the data by geucik/head of village.(…….Name of Geucik/the head of village…..)This land is owned by This land is owned by

the undersigned and its boundaries have been installed witnessed by all neighbors still alive. the undersigned and its boundaries have been installed witnessed by all neighbors still alive. aa bb Sketch of the piece of land Sketch of the piece of land (made by the land owner)(made by the land owner)

Jalan melatiJalan melati XcdfeXcdfe

ExampleExample The undersigned are responsible in the court of law on the accuracy of their claims in this document. . . . . . . . . . . ., …. …. ……. Legal land The undersigned are responsible in the court of law on the accuracy of their claims in this document. . . . . . . . . . . ., …. …. ……. Legal land

owner/heir/guardian Full Name( signature)Family witness:1husband/wife…………………….2)…………………………………….Neighbouring land owner owner/heir/guardian Full Name( signature)Family witness:1husband/wife…………………….2)…………………………………….Neighbouring land owner witnesses a. . . . . . . . . . . . signatureb. . . . . . . . . . . . c. . . . . . . . . . . .d. . . . . . . . . . . .e. . . . . . . . . . . .f. . . . . . . . . . . . .Village institution witnesses a. . . . . . . . . . . . signatureb. . . . . . . . . . . . c. . . . . . . . . . . .d. . . . . . . . . . . .e. . . . . . . . . . . .f. . . . . . . . . . . . .Village institution witnesses:Imam Menasah . . . . signatureTuhapeut . . . . . . . . . . Geucik . . . . . . . .witnesses:Imam Menasah . . . . signatureTuhapeut . . . . . . . . . . Geucik . . . . . . . .

Table 7: Inheritance Case Brought Before Mahkamah Syar’iyah (Banda Aceh and Jantho)

Heir ConfirmationMahkamah

Syar’iyah (Banda Aceh)

Heir ConfirmationMahkamah Syar’iyah (Jantho)

Inheritance Dispute

Mahkamah Syar’iyah

(Banda Aceh)

Inheritance Dispute Mahkamah Syar’iyah

(Jantho)

Jan 2005 - 2 - -

Feb 2005 - 18 - -

Mar 2005 22 116 - -

Apr 2005 101 71 - 1

May 2005 118 80 - -

June 2005 110 93 1 1

July 2005 69 64 1 1

Aug 2005 91 64 4 -

Sept 2005 123 39 2 1

Oct 2005 104 24 - -

Nov 2005 55 40 - 2

Dec 2005 134 67 1 1

Jan 2006 83 56 1 -

Feb 2006 70 39 - 1

Mar 2006 39 30 2 1

TOTAL 1119 803 12 9

Work Program Year   Total Land Parcels Mapped    

Total Adjudicated   

Titles registered in the land book

Total number of titles signed  

Total number of titles distributed

2005            53,338                            49,727         18,989         15,349                10,514 

2006           158,312                          116,389       103,911       103,586                94,037 

Total   211,650     166,116    

122,900  

118,935 104,551

By September 30, 2007, 210,591 By September 30, 2007, 210,591 land parcels had been surveyed, and land parcels had been surveyed, and 104,551 land title certificates 104,551 land title certificates distributed by BPN. distributed by BPN.

Securing land rights and Securing land rights and tenure: Lessonstenure: Lessons

Community-driven determinations of land ownership can help to Community-driven determinations of land ownership can help to avoid delays and conflict in the process of restoring housing after avoid delays and conflict in the process of restoring housing after disasters.disasters.

Community-based identification of heirs can identify landowners for Community-based identification of heirs can identify landowners for reconstruction purposes in a rapid and relatively conflict-free manner, reconstruction purposes in a rapid and relatively conflict-free manner, particularly in circumstances of high mortality.particularly in circumstances of high mortality.

The identification of land boundaries through community-driven The identification of land boundaries through community-driven adjudication can often be inaccurate, and at times opportunistic in adjudication can often be inaccurate, and at times opportunistic in nature. Community-driven adjudication need to be supplemented by nature. Community-driven adjudication need to be supplemented by trained surveyors with legal authority to demarcate boundaries.trained surveyors with legal authority to demarcate boundaries.

Community-driven land ownership determinations may be subject to Community-driven land ownership determinations may be subject to undue delays where they need to be cross-checked against pre-undue delays where they need to be cross-checked against pre-disaster land records.disaster land records.

Community-driven determinations must be fully supported in law to Community-driven determinations must be fully supported in law to avoid institutional delays and the emergence of long-term disputes.avoid institutional delays and the emergence of long-term disputes.

Systematic land titling may be useful for longer term investment and Systematic land titling may be useful for longer term investment and recovery, but it is not of itself an appropriate tool to establish tenure recovery, but it is not of itself an appropriate tool to establish tenure security for the purposes of house reconstruction after a disaster.security for the purposes of house reconstruction after a disaster.

Mitigation and Land Use PlanningMitigation and Land Use Planning

Banda Aceh Zoning PlanBanda Aceh Zoning Plan

IK Aceh - BeforeIK Aceh - Before

IK Aceh - AfterIK Aceh - After

Aceh Coast & MountainsAceh Coast & Mountains

Mitigation and land use Mitigation and land use planning: lessonsplanning: lessons

Groups with location-dependent livelihoods, and Groups with location-dependent livelihoods, and limited opportunities for off-land employment, will limited opportunities for off-land employment, will face disproportionate income risks if they are face disproportionate income risks if they are relocated from their pre-disaster lands.relocated from their pre-disaster lands.

Reconstruction should be allowed to proceed in Reconstruction should be allowed to proceed in areas vulnerable to future disasters if mitigation areas vulnerable to future disasters if mitigation measures short of resettlement will suffice to measures short of resettlement will suffice to reduce disaster vulnerability to an acceptable level. reduce disaster vulnerability to an acceptable level.

Minimising reconstruction in unsafe areas should Minimising reconstruction in unsafe areas should not be based on outright prohibitions, which will not be based on outright prohibitions, which will cause controversy and popular protests, but on cause controversy and popular protests, but on community consensus and the use of safety community consensus and the use of safety standards and financial or infrastructure incentives.standards and financial or infrastructure incentives.

Protecting the Vulnerable: Protecting the Vulnerable: Renters and SquattersRenters and Squatters

February 2007: 14,280 verified February 2007: 14,280 verified victim households remaining in the victim households remaining in the barracks, of which as many as 4,082 barracks, of which as many as 4,082 households were renters. households were renters.

Renters and Squatters: Renters and Squatters: LessonsLessons

Temporary living centres cannot be decommissioned unless Temporary living centres cannot be decommissioned unless housing, or access to housing, is provided to renters and housing, or access to housing, is provided to renters and squatters. Unless they are decommissioned, temporary living squatters. Unless they are decommissioned, temporary living centres can become long-term settlements characterised by centres can become long-term settlements characterised by poor living conditions, unregulated development and poor living conditions, unregulated development and inadequate access to infrastructure and services.inadequate access to infrastructure and services.

There may be a degree of government caution in dealing with There may be a degree of government caution in dealing with the housing needs of renters and squatters because providing the housing needs of renters and squatters because providing them with land can create equivalent demands outside the them with land can create equivalent demands outside the disaster zone. Because international actors generally need to disaster zone. Because international actors generally need to work with or through government agencies, the appropriate work with or through government agencies, the appropriate international response to government inaction may be international response to government inaction may be assistance for advocacy or policy development measures assistance for advocacy or policy development measures relating to renters and squatters.relating to renters and squatters.

The scope and scale of any renter and squatter problem The scope and scale of any renter and squatter problem needs to be assessed soon after a disaster. Undue delays needs to be assessed soon after a disaster. Undue delays may lead to social conflict as landless groups agitate for may lead to social conflict as landless groups agitate for housing, or engage in land invasions and construction of housing, or engage in land invasions and construction of extralegal settlements.extralegal settlements.

Protecting to vulnerable: Protecting to vulnerable: womenwomen

Approximately 14,000 displaced Approximately 14,000 displaced widowswidows

Syariah law of inheritanceSyariah law of inheritance Local misunderstanding of complex Local misunderstanding of complex

Syariah cases.Syariah cases. Localised denial of widows’ claims by Localised denial of widows’ claims by

male relatives and neighbours. male relatives and neighbours.

Women and land titlingWomen and land titling

Low rates of co-titling marital landLow rates of co-titling marital land Need for gendered disaggregated Need for gendered disaggregated

data (new program underway)data (new program underway)

Gender and land: LessonsGender and land: Lessons

Early collection of gender-Early collection of gender-disaggregated data.disaggregated data.

Awareness of localised dispossession Awareness of localised dispossession risks: assessment and response.risks: assessment and response.

Importance of land rights Importance of land rights adjudication procedures.adjudication procedures.

Land acquisition for Land acquisition for resettlementresettlement

February 2007: BRR estimates that February 2007: BRR estimates that 13,068 households require 13,068 households require resettlement.resettlement.

Some community-based resettlement Some community-based resettlement programs involving purchase of land, programs involving purchase of land, or grant by local governments.or grant by local governments.

Relocation Housing and Land Requirements (February 2007)

District

Displaced P

erson's Originally N

eeding R

esettlement

Displaced P

erson's Resettled to date

Displaced P

ersons Still Needing R

esettlement

Land

Released for R

esettlement (m

2)

Land

Used (m

2)

Land A

vailable for Resettlem

ent (m2

)

Total L

andN

eeded (m2

)

Land

Surplus (m2

)

Aceh Barat Daya 188 154 34 51,165 41,165 10,000 9520 480

Pidie 884 177 707 130,671 71,763 58,908 148470 -89562

Aceh Barat 4015 396 36191,887,22

0 111,4001,775,82

0101332

0 762500

Aceh Jaya 1300 359 941 622,891 95,960 526,931 263480 263451

Lhokseumawe 213 0 213 50,995 0 50,995 44730 6265

Bireun 341 246 95 154935 69658 85,277 26600 58677

Langsa 756 0 756 172330 0 172,330 158760 13570

Banda Aceh[1] 311 720 0 151,249 81,685 69,564 0 69564

Aceh Singkil 2222 709 15131,578,50

4 564,8201,013,68

4 423640 590044

Aceh Besar 930 1163 01,717,66

7 273,0741,444,59

3 0144459

3

Nagan Raya 352 40 312 404,158 11200 392,958 87360 305598

Aceh Tamiang 200 0 200 274,900 0 274,900 56000 218900

Aceh Utara 889 374 515 220,597 77320 143,277 144200 -923

Aceh Timur 266 40 226 245,938 22,050223,888.

0 63280 160608

Simeuleu 201 12 189 52,400 2400 50,000.0 39690 10310

TOTAL 13068 4390 9320 7715620 1422495 6293125247905

0381407

5

[1] The figures for Banda Aceh are unreliable as the initial calculation of persons requiring resettlement is lower than the numbers ready resettled.

Land acquisition: lessonsLand acquisition: lessons

Rapid needs assessmentRapid needs assessment Rapid identification and verification Rapid identification and verification

of beneficiariesof beneficiaries Little lead time for consultation and Little lead time for consultation and

participationparticipation Land acquisition takes time: start Land acquisition takes time: start

early stopearly stop