review of selected land laws and the governance of … of selected land laws and the governance of...

Review of Selected Land Laws and the Governance of Tenure in the

Philippines

Discussion Paper in the context of the Voluntary Guidelines on the Governance of Tenure (VGGT)

Abridged Version1

Antonio B. QuizonJose Ignatius Pagsanghan

Prepared in behalf of the Asian NGO Coalition for Agrarian Reform and Rural Development (ANGOC) for the Philippine Development Forum - Working Group on Sustainable Rural Development (PDF-SRD), Deutsche Gesellschaft fur Internationale Zusammenararbeit (GiZ), and the Food and Agriculture Organization (FAO)

Land Watch AsiaISSN: 2 244-1360

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Selected acronyms usedADSDPP AncestralDomainSustainableDevelopmentandProtectionPlanA&D alienable and disposable (land)AFMA AgricultureandFisheriesModernizationActof1997ANGOC AsianNGOCoalitionforAgrarianReformandRuralDevelopmentCA Commonwealth ActCADC CertificateofAncestralDomainClaimCADT CertificateofAncestralDomainTitleCARP ComprehensiveAgrarianReformProgramCARPER ComprehensiveAgrarianReformProgramwithReformsorRA9700CARL ComprehensiveAgrarianReformLaworRA6657CFS CommitteeonWorldFoodSecurityCLOA CertificateofLandOwnershipAwardDA DepartmentofAgricultureDAR DepartmentofAgrarianReformDENR DepartmentofEnvironmentandNaturalResourcesDILG DepartmentofInteriorandLocalGovernmentDRRM DisasterriskreductionandmanagementEP EmancipationPatentFAO FoodandAgricultureOrganizationoftheUnitedNationsFPIC free,priorandinformedconsentGiZ DeutscheGesellschaftfurInternationaleZusammenararbeitICCs indigenousculturalcommunitiesIPs indigenous peoplesIPRA IndigenousPeoplesRightsActof1997LGU local government unitLRA LandRegistrationAuthorityNCIP NationalCommissiononIndigenousPeoplesNDRRMC NationalDisasterRiskReductionandManagementCouncilNIPAS NationalIntegratedProtectedAreasSystemActof1992NLUA NationalLandUseAct(aproposedbill)PD PresidentialDecreePDF-SRD PhilippineDevelopmentForum–WorkingGrouponSustainableRuralDevelopmentPDRRM PhilippineDisasterRiskReductionandManagementActof2010RA RepublicActSAFDZ StrategicAgricultureandFisheriesDevelopmentZoneUDHA UrbanDevelopmentandHousingActUN UnitedNationsUPAL untitledprivateagriculturallands(UPAL)VGGT VoluntaryGuidelinesonResponsibleGovernanceofTenureofLand,FisheriesandForestsinthe ContextofNationalFoodSecurity

Asian NGO Coalition for Agrarian Reform and Rural Development

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I. IntroductionTheVoluntary Guidelines on Responsible Governance of Tenure of Land, Fisheries and Forests in the Context of National Food Security,wasdevelopedundertheCommitteeonWorldFoodSecurityasaresultofcollaborationamongdifferentgroupsofstakeholders–governments,civilsociety,privatesector,academe.2Theguidelines(hereafterreferredasVGGT)areintendedtoprovideaframeworkforresponsibletenuregovernancethatsupportsfoodsecurity,povertyalleviation,sustainableresourceuseandenvironmentalprotection.TheVGGTsetsoutprinciplesandinternationally-acceptedpracticesthatmayguidethereview,preparationandimplementationofpoliciesandlawsrelatedtolandtenure&resourcegovernance.3

TheVoluntaryGuidelinesonResponsibleGovernanceofTenureaddressesawiderangeofissues including:

• Recognitionandprotectionoflegitimatetenurerights,evenunderinformalsystems• Bestpracticesforregistrationandtransferoftenurerights• Makingsurethattenureadministrativesystemsareaccessibleandaffordable• Managingexpropriationsandrestitutionoflandtopeoplewhowereforciblyevictedin the past• Recognitionofrightsofindigenouscommunities• Ensuringthatinvestmentinagriculturallandsoccursresponsiblyandtransparently• Mechanismsforresolvingdisputesovertenurerights• Dealingwiththeexpansionofcitiesintoruralareas• Dealingwithtenurerightsinthecontextofclimatechange,disastersandconflict

However,theVGGTdoesnotestablishbindingapplicationsnordoesitreplaceexistinglaws,treatiesandagreements.Hereliesthechallenge.HowcantheVGGTenforceitsobjectives?Atthesametime,whatisthevalueaddedoftheVGGTinthePhilippinecontext?Giventhattherearevariouslaws,policiesandprogramsonland,waterandfisheries,canthevoluntaryguide-linesenhancetheirimplementationinordertorealizethesetobjectives?

On10June2013,ThePhilippineDevelopmentForum–WorkingGrouponSustainableRuralDevelopment(PDF-SRD),UnitedNations-FoodandAgricultureOrganizationPhilippineResidentOffice(FAO-Phils),DeutscheGesellschaftfuerInternationaleZusammenarbeit(GIZ)GmbH,andtheAsianNGOCoalitionforAgrarianReformandRuralDevelopment(ANGOC)co-organizedthe “Stakeholder Briefing on the Voluntary Guidelines and other Land Governance Mechanisms” toprovideanoverviewoftheVGGT.Participatedinby124representativesfromgovernment,CSOsanddevelopmentpartners,theforum:a)discussedtherelevanceoftheVGGTinthePhilippines,b)raisedawarenessonthestateofgovernanceofland,forests,fisheries,andancestraldomainsinthePhilippines,andc)highlightedinitiativestoimproveagriculturalventureagreementsinagrarianreformcommunities.Followingthisevent,fromAugust2013toOctober2014,ANGOCimplementedtheproject“PromotingResponsibleLandGovernanceforSmallholdersinthePhilippines”inpartnershipwiththePDF-SRD,NCI,FAO-PhilippinesandGIZ.


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AmajorcomponentofthisProjectwasthepreparationofthreedeskstudiestoidentifyexistinggapsinpoliciesandprogramsonthegovernanceoflandandresourcetenureinthePhilippines,andtofamiliarizestakeholdersontheVGGT.Thethreedeskstudieswerepresentedanddiscussedinseveralforums:experts’meetings,threeregionalconsultationsandanationalconferenceparticipatedinbyatotalof314representativesfromgovernmentagencies,policy-makers,CSOs,academicinstitutionsandinternationaldevelopmentorganizations.

Thispaper“Review of Selected Land Laws and the Governance of Tenure in the Philippines: Discussion Paper in the context of the Voluntary Guidelines on the Governance of Tenure (VGGT)”hasbeencommissionedbytheAsianNGOCoalition(ANGOC)asamemberofthePhilippineDevelopmentForum–WorkingGrouponSustainableRuralDevelopment(PDF-SRD).4 Itexaminesnationalpoliciesasembodiedinthe1987PhilippineConstitutionandthemajorlandandnaturalresourcelawspassedbythePhilippinelegislature.ThisresearchissupportedbytheDeutscheGesellschaftfürInternationaleZusammenarbeit(GiZ)GmbH.

Objective of the Review ThestudyaimstocomparetheVGGTandthemajorlawsgoverninglandandnaturalresourcesinthePhilippines,identifyingareasofpolicyandprogramcomplementationandgaps.Theiden-tifiedareasofconvergenceanddivergencebetweenthesetofvoluntaryguidelinesandmajorPhilippinelandlawscanserveasaspringboardfordiscussion,advocacyandimplementationoftheVGGTinthecountry.

Scope and LimitationsThisstudyexaminesthePhilippineConstitutionand10otherlawsrelatedtothegovernanceoftenureoverland,waterandforests,asfollows:

Overall policy framework 1. PhilippineConstitutionof1987

Tenure reforms in the 2. IndigenousPeoplesRightsActof1997(RA8371)rural sector 3. PhilippineFisheriesCodeof1998(RA8550) 4. ComprehensiveAgrarianReformProgramof1988(RA6657) asamendedbyCARPER(RA9700)

Natural resource 5. AgricultureandFisheriesModernizationActof1997(RA8435)management, protection 6. NationalIntegratedProtectedAreasSystemActof1992 and use (RA7586) 7. ForestryCodeofthePhilippines(PD305) 8. PhilippineMiningActof1995(RA7942) 9. PublicLandActof1936(CA141,asamended)

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Responses to climate 10.ClimateChangeActof2009(RA9729)change and risks 11.PhilippineDisasterRiskReductionandManagementActof 2010(RA10121)

The1987PhilippineConstitutionprovidesthebroadlegalframeworkonlandandresourcegovernance.Theotherlegislationslistedabovecoverthemajorlawsgoverninglandandnaturalresourcetenureintheruralareas,whichisthefocusofthisstudy.

Thisstudyislimitedtoacontent analysisoftheprovisionsoftheabovementionedlaws,andhowtheyrelatetotheVoluntaryGuidelines.Thisstudydoesnotassessthe implementationoftheselaws;neitherdoesitreviewthespecificadministrativeorders,implementingguidelinesandpoliciesthatmayberelatedtotheimplementationoftheabovelaws.

II. Summary of Main Findings

ContextThePhilippinesconsistsof7,107islandscovering30millionhectares,with29.8millionhectaresoflandand1.83millionhectaresofinlandwaters.5Moreover,ithasacoastlineof36,289kms,and2.2millionsquarekilometresofterritorialwatersthatincludeitsexclusiveeconomiczone(EEZ).6With98millionpeople,itranksasthesecondmostdenselypopulatedcountryinSoutheastAsia(with346personspersquarekilometerofland).7 Yet as an archipelago with ruggedandmountainousinteriors,only4.9millionhectares(or16%ofthelandarea)isarable.Landdistributionisunevenandhighlyskewed,andresourcessufferfromerosion,deforestationandpollution.

Onekeychallengefacedwillbehowthecountrywillfeeditselfwithagrowingpopulationwithdiminishinglandpercapita–amidstincreasingcompetitionforresources,withthethreatsofclimatechangeanddisasters,andincreasinghumancompetition,needsandexpectations.Theconservation,management,distributionanduseoflandandnaturalresourceswillbeacentralfactortomeetthischallenge,andthereforethegovernanceoftenurewilltakecentralimportance.

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Overview Table1andTable2provideaquickoverviewofthisassessment.Table1(below)compares10landandresourcelawswiththeVGGTPrinciples.Thecoloredareasindicatethose“gover-nance-of-tenure”principlesthatareaddressed(inwholeorinpart)bytheLawsunderreview.

Table 1. “Crowd Analysis” comparing Selected Land and Resource Laws with VGGT Principles

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Overview

Table 1 and Table 2 below provide a quick overview of this assessment. Table 1 (below) compares 10 land and resource laws with the VGGT Principles. The colored areas indicate those “governance-of- tenure” principles that are addressed (in whole or in part) by the Laws under review.

Table 1. “Crowd Analysis” comparing Selected Land and Resource Laws with VGGT Principles

Frame-work

Sector-based tenure reforms Resource management, protection & use CC and risks

CONSTI CARPER IPRA FISH AFMA NIPAS FOREST MINING CLIMATE DRRM

A. GENERAL MATTERS 3 Principles 4 Rights & responsibilities 5 Legal/ Org’l frameworks 6 Delivery of Services B. LEGAL RECOGNITION 7 Safeguards 8 Public, fishery & forestry 9 Indigenous/ customary 10 Informal tenure C. TRANSFERS 11 Markets 12 Investments 13 Land consolidation 14 Restitution 15 Redistributive reforms 16 Expropriation D. ADMINISTRATION 17 Records 18 Valuation 19 Taxation 20 Spatial planning 21 Dispute resolution 22 Transboundary issues E. CLIMATE & RISKS 23 Climate change 24 Natural disasters 25 Conflicts in tenure


Ontheotherhand,Table2(below)providesareverse imageofTable1.Thedarkshadedareasindicatethose“governance-of-tenure”principleswheretheLawsunderreviewappear“silent”.

Table 2. “Silence Analysis” comparing Selected Land and Resource Laws with VGGT Principles

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On the other hand, Table 2 (below) provides a reverse image of Table 1. The dark shaded areas indicate those “governance-of- tenure” principles where the Laws under review appear “silent”.

Table 2. “Silence” analysis comparing Selected Land and Resource Laws with VGGT Principles

Frame-work

Sector-based tenure reforms Resource management, protection & use CC and risks

CONSTI CARPER IPRA FISH AFMA NIPAS FOREST MINING CLIMATE DRRM

A. GENERAL MATTERS 3 Principles 4 Rights & responsibilities 5 Legal/ Org’l frameworks 6 Delivery of Services B. LEGAL RECOGNITION 7 Safeguards 8 Public, fishery & forestry 9 Indigenous/ customary 10 Informal tenure C. TRANSFERS 11 Markets

12 Investments 13 Land consolidation 14 Restitution 15 Redistributive reforms 16 Expropriation D. ADMINISTRATION 17 Records 18 Valuation 19 Taxation 20 Spatial planning 21 Dispute resolution 22 Transboundary issues E. CLIMATE & RISKS 23 Climate change 24 Natural disasters 25 Conflicts in tenure

From Tables 1 & 2, some quick observations can be made regarding the different laws:

FromTables1&2,somequickobservationscanbemaderegardingthedifferentlaws:

• The Constitution providesthebroadoverallframeworkandprinciplesonthegovernanceoftenure.ItcoversmostoftheVGGTprinciplesunderGeneralMatters,LegalRecogni-tionandTransfers,butitdoesnotdealwithoperationalmattersonLandAdministrationoraddressClimateChangeandRisks.

• Thethreesector-based tenure reforms–CARP/ER,IPRAandtheFisheriesCode–furtherelaborateonthetenurerightsofdisadvantagedsectorsasguaranteed/providedbytheConstitution.Thus,theyalsodealwithGeneralMatters,LegalRecognitionandTransfers.Eachtenurereformlawfocusesonaspecific sectorsuchas:ontenants,farmworkersandlandlessfarmersinprivateandpubliclands(CARP/ER),onindigenousculturalcommuni-tiesandindigenouspeoples(IPRA),andonsmall-scaleandartisanalfisherfolk(FisheriesCode).

• Thefourlawsonresourcemanagement,protectionanduse–AFMA,NIPAS,ForestryCodeandMining–focusonthemanagementofthecountry’snaturalresources.TheysupportthegeneralprinciplesoftenuregovernanceunderGeneralMatters,andprovidesomesafeguardsandlegalrecognitionoftenurerightsinpubliclands,forestryandfish-eries,includingtherightsofindigenouspeoples.However,underTransfers,theirmainfocusisoninvestmentsratherthanontenurereforms.

• Finally,thetwolawsdealingwithclimatechangeanddisasters–ClimateChangeActandDRRM–donotappeartoaddressVGGTguidelinesontenureissues.

RegardingtheVGGTitself,thefollowingareobserved:

• Generally,thelawsreviewedonlypartiallyaddresstheVGGTguidelinesonLand Administration.ThisisprobablybecauseLandAdministration(includingvaluation,taxation,records,etc)isnotcoveredbythelawsunderthisReview.

• Meanwhile,noneofthelawsstudiedaddresstheguidelineson:Informal Tenure (Sec 10),Expropriation(Sec16),Taxation(Sec19),Trans-boundary Issues(Sec22),andClimate Change(Sec23).However,thisdoesnotnecessarilymeanthattheseare“policygaps”,astheseguidelinesmaybecoveredoraddressedbyotherlegislationsnotincludedinthisStudy.

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Summary of Findings

Principles of governance

The1987PhilippineConstitutionprovidestheoverallpolicy framework for responsible governance of tenure.

AlltheVGGTprinciplesofimplementation–“humandignity,non-discrimination,equity&jus-tice,genderequality,consultation&participation,ruleoflaw,transparencyandaccountability”–arewellenshrinedinthe1987PhilippineConstitution,especiallyunderStatePolicies(Art2)andBillofRights(Art3).

Moreover,the1987PhilippineConstitutionnotjustrecognizestenurerights,butalsoinstitutes“socialreforms”particularlyforthreeruralsectors–(i)farmers and farmworkers asthefocusofanagrarianreformprogram;(ii)subsistence fishermenwith“preferentialuseofcommunalmarineandfishingresources”;and(iii)settlers in public domains,includingsmall settlers and indigenous peopleswith“priorrightsinthedispositionorutilizationofnaturalresourcesandlandsofthepublicdomainsuitableforagriculture…“TheseConstitutionalmandateshaveledtosubsequentlegislations–i.e.,theComprehensiveAgrarianReformLaw(CARL/CARPER),theFisheriesCodeandtheIndigenousPeoplesRightsAct(IPRA).

ThePhilippineConstitutionstatesthat“theuseofpropertybearsasocialfunction”…Tothisend,theStateshallregulatetheacquisition,ownership,use,anddispositionofpropertyanditsincrements.”Italsoensurespeople’srightsagainstarbitraryevictions,anddemolitionofhomes.Theserightsarealsoreflectedinthedifferentlawsreviewed.

ThefundamentalequalitybeforethelawofwomenandmenisupheldundertheCivilCodeorRA386(notincludedinthisReview)whichupholdsequalpropertyrightsforwomenregardlessofchangesinmaritalstatus(marriage),aswellasequalrightstopropertyinheritance.Howeverwomen’stenurerightsandequalaccesstotenuresecurityshouldbereviewed,i.e.,byexaminingwhetherofficialtitles,licenses,permitsandtenureinstrumentsactuallyreflectequalrightsofwomen.

Legal recognition and allocation of tenure rights and duties

Legal framework and safeguards. Philippine laws lack an integrated approach to the governanceoftenure,makinglandadministrationcomplicated.UnlikesomeAsiancountriesthathaveacomprehensiveandconsolidatedLandLaworaLandCode,thePhilippineshasnumerous legislationsthatdefinethedifferentpolicy,legalandorganizationalframeworksrelatedtotenureandgovernanceofland,forestsandfisheries.AndwhilenewlawsandamendmentsarepassedbyCongress,theoldlawsarenot repealed.Sectionsofoldlawsaremerelysuperceded,replacedoramendedinpartbythenewlaws,andthissystemallowsthe old laws to retain their residualvalidity.Thesefactorsresultinacomplexsystemoflegaljurisprudencethatonlylawyerscannavigate.

Thecountryhastakenonahighly sectoral or landscape approach toland/naturalresourcepolicy,tenurereforms,andlandadministration.ThereisCARP/ERforagrarianreformcoveringpublicalienableanddisposable(A&D)landsandprivateagriculturallands,theFisheriesCodecoveringmunicipalwaters,andIPRAforancestraldomains.Inaddition,therearetheMiningAct,NIPAS,ForestryCode,AFMAandothers.

Thelackofsynchronizationofpolicyhasresultedinacomplexandfragmentedlandscapeoflaws.Sectoralapproachestolandpolicyleadtooverlappingjurisdictionsandfunctionaloverlapsamongagencies.Forexample,therevisedForestryCodeof1975stipulatesthat“alllandsabove18degreesslopeautomaticallybelongtothestateandclassifiedasforestlands”.Also,ancestraldomainsoverlapwithnationalparksandprotectedareas.Ancestrallandrightsarefurthererodedbyminingandlandconcessions,andbyagrarianreformtitlesandforestrystewardshipagreements.

Conflictingpolicyandjurisdictionalissuesareoftenaddressedbygovernmentthroughadministrative action(JointAdministrativeOrders,inter-agencyTechnicalWorkingGroups),national programs (NationalConvergenceInitiative)andbyjudicial courts.Butwhilethesemeasuresseektoaddressdisputes,theydonotnecessarilyleadtothesynchronizationofpolicy.

Public domain.Figure1showstheoveralllandtenuresysteminthePhilippines.8Itshowsthattheterrestialdomainisdividedintothreetenure domainscoveredbyrespectivedomainlaws– Ancestral Domain(IPRA),Public Domain(PublicLandsActorCA141)andPrivate Ownership (CivilCode).ThePublicDomain(about16millionhas)isfurtherdividedinto“non-disposable”(remainswiththeState)and“alienableanddisposable/A&D”lands.

Fig 1: Land tenure system in the Philippines (abridged version)

Alienable & Disposable Lands CA141

Sovereign territory of the Philippines Constitution

Ancestral Domain Constitution/RA8371IPRA

Lands of the Private Ownership Constitution/CivilCode

Art XII Constitution

Non-disposable Lands CA141

Tenure instruments (titles, rentals, leases, permits, contracts, others)

Lands of the Public Domain Constitution/CA141

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Sometenureinstrumentsareissuedbynationalagencies;othersareissuedbylocalgovernmentunits.Holdersoflegaltenureinstrumentstendtohavesecuretenure,whilethosewithinformal tenuretendtohaveinsecurityoftenure.However,tenurerightsaresecureonlyifsuchrightsareenforceable.

Tenurerightsarefurtherextendedtootherusers,throughtenure instrumentsthatincluderentals,leases,permits,contractsandothers.

ThePublicLandsActof1936(CA141)remainstheframeworklawthatdefinesthecoverageofthe public domain,aswellasitsmanagement,useanddisposition.TheRevisedForestryCode(Sec13)thenestablishestheSystem of Land Classificationoverforestlands.

Thelegalframeworkformanagementofthepublicdomain:(i)includesutilization and management bysmallholders–whetherbyindividualhouseholdsorthroughtheircollectives/cooperatives;(ii)requiresFilipino controlintheexploitationanduseofnaturalresources;(iii)places limitsonthescope(1,000ha)andduration(25years,renewable)ofleaseagreements;and(iv)giveslegalrecognitiontothecustomary tenure rights of indigenous peoples.

However,therealityisthatgovernanceofthepublicdomainlandsiscomplicatedbyoverlappinglawsandtenurerights,aswellaslandconflicts.Thedemarcationofthepublicdomainanditsdifferentlandclassificationshaveyettobecompleted.

Customary tenure. ThetenurerightsofindigenouspeoplesislegallyrecognizedandprotectedundertheIndigenousPeoplesRightsAct(IPRA).Itrecognizestherightsofindigenouspeoplestotheir“ancestrallands/domains(which)shallincludesuchconceptsofterritorieswhichcovernotonlythephysicalenvironmentbutthetotalenvironmentincludingthespiritualandculturalbonds.”

AsaleadingpolicyamongAsiancountries,IPRAaddressesfoursubstantiverightsofIPs:(i)therighttoancestraldomainsandlands,(ii)therighttoself-governance;(iii)therighttoculturalintegrity;and(iv)therighttosocialjusticeandhumanrights.Thedefinitionofancestraldomaincoversforests,pastures,residentialandagriculturallands,huntinggrounds,worshipandburialareas,andincludelandsnolongeroccupiedexclusivelybyindigenousculturalcommunitiesbuttowhichtheyhadtraditionalaccess,particularlythehomerangesofindigenousculturalcommunitieswhoarestillnomadicorshiftingcultivators.

Undertheprincipleofself-determination,IPRArecognizestherightofIPcommunitiestodocumentanddelineatetheirownancestraldomainclaims,andtoformulatetheirownAncestralDomainSustainableDevelopmentandManagementPlans(ADSDPs).Thelawfurtherstatesthatcontracts,licenses,concessions,leasesandpermitswithintheancestraldomainsshallnotbeallowedorrenewedwithoutthefreeandpriorinformedconsent(FPIC)oftheIPcommunity,inaccordancewiththeirrespectivecustomarylawsandpractices–freefromanyexternalmanipulation,interferenceorcoercion.

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However,theimplementationofIPRAhasbeenhinderedbycontradictorylegislations,conflictingboundariesandoverlappingagencymandates.ThesehavehaderodingeffectsontheapplicationofIPRA.

Informal tenure. InthePhilippines,theprotectionofinformal tenure rights is provided under RA8368whichde-criminalizessquatting.9Further,theUrbanDevelopmentandHousingAct(UDHA,orRA7279)discouragesthepracticeofforcedevictionsanddemolitions,andrequiresthatadequaterelocationbeprovidedincasesinvolvingevictionanddemolitionofpoorsettlers.Althoughtheselawsareintendedfortheurbanpoor,theyapplytoruralsettlersaswell.10

Intheruralareas,however,thenumbersofinformalsettlersremainslargelyunknown.Thegovernanceoftenureisfocusedmainlyonthegovernanceandmanagementoflandscapes wherepeopleandcommunitiesaretreatedaspartofthelandscape.Thelandlawsprovideforlandclassificationandforresourceinventories,butlittledataisgeneratedaboutthelandlessandaboutthehouseholdswithinformal/insecuretenure.

Transfers and changes to tenure and duties

Markets. Tofunctioneffectively,marketsneedcommonanduniformtenuresystemsandinstruments,aswellastransparencyininformationandreliablelandregistries.However,the(land)marketinthePhilippinesisstillfraughtwithmanyproblems.Theseinclude:multiplelawsandagenciesdealingwithlandadministration,inadequatemanagementofrecords,unreliableregistries,limitedaccesstomarketinformation,inadequatecadastralinformation,amongothers.Onthepolicylevel,thereisneedtoreviewtheproposedLandAdministrationReformAct(LARAbill)longpendinginCongress.

Investments. Theneedforresponsibleagriculturalinvestmentshasgrabbedglobalattentioninlightofrecenttrends,i.e.:(i)theoveralldeclineinpublicinvestmentspendinginagriculture;and(ii)thegrowingglobalphenomenaoflarge-scalelandacquisitionsinpoorandfoodinsecurecountries.Thus,whilethereisaneedtopromoteinvestmentsinagriculture,thismustbebalancedoffbytheinterestsofsmallholders,andtheprotectionoftheirtenurerights.Akeyissueespeciallyinlarge-scalelandtransactionsistheoveralllackofapolicyoninformationdisclosureandaccesstoinformationbythepublic,especiallybycommunitieswhosetenureandlivelihoodsarelikelytobeaffected.Therearemanycaseswherelocalcommunitiesarecaughtunaware,orelsemisinformed,aboutaninvestmentorprojectthatislikelytoaffecttheirtenure.

TheIPRAlawprovidessomesafeguards.Itstatesthatcontracts,licenses,concessions,leasesandpermitswithintheancestraldomainsshallnotberenewedorallowedwithoutthefree,priorandinformedconsent(FPIC)oftheindigenouscommunity.ThequalityofFPICthusbecomesimportant.FPICisdefinedunderIPRAasthe“consensusofallmembersoftheIPs/ICCs[indigenouspeoples]tobedeterminedinaccordancewiththeirrespectivecustomarylawsandpractices,freefromanyexternalmanipulation,interferenceorcoercion.”

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ButwhileFPICisrequiredforancestraldomains,FPICisnotrequiredasapolicyforothernon-IPsectors.

Moreover,environmentalimpactassessmentsarerequiredforlargeinvestmentprojects.Inreality,however,manyEIAsareoftenundertakeninbehalfofinvestorsratherthanbyindependentparties.

Land consolidation referstothe“plannedreadjustmentandrearrangementoflandparcelsandtheirownership”.Itaimstoprovideamorerationaldistributionoflandtoimprovetheefficiencyoffarming,anditinvolvesaprocessofrenegotiatingtenurearrangements.

FromanoverallpolicyperspectiveitappearsthatthereisnolaworprogramonlandconsolidationinthePhilippines.

DARundertakesso-called“landconsolidation”bydevelopingalanduseplanwhileengagedintheprocessofbreaking-uplargeestatesorplantations.TheDAR’sobjectiveistoavoidthefurther fragmentation of farms,ratherthantoreconsolidatefragmentedplotsintosingle,contiguousfarms.

UnderAFMA,theconceptoftheSAFDZfocusesonlanduseplanningandzoning,butitdoesnotinvolvetherenegotiationoflandtenurerightsasinland consolidation.

Restitutionmeans“theactofgivingbacksomethingthathasbeenlostorstolen”or“theactofrestoringtotherightfulownersomethingthathasbeentakenaway,lost,orsurrendered”.

InthePhilippines,IPRAisthemainmeasureofrestitution,orthereturnoftenurerights.InareversaloftheRegaliandoctrine,IPRArecognizestheprior rights,includingthepre-conquest rightsofindigenouspeoples.ThisrightsupersedesthelandandresourceclaimsoftheStateandotherentities.

Thedefinitionofancestraldomaincoversforests,pastures,residentialandagriculturallands,huntinggrounds,worshipandburialareas,andincludelandsnolongeroccupiedexclusivelybyindigenousculturalcommunitiesbuttowhichtheyhadtraditionalaccess,particularlythehomerangesofindigenousculturalcommunitieswhoarestillnomadicorshiftingcultivators.

Redistribution. TheConstitutiondevotesasectiontoAgrarian and Natural Resources Reform.Itstates:“TheStateshallapplytheprinciplesofagrarianreformorstewardship…inthedispositionorutilizationofothernaturalresources,includinglandsofthepublicdomainunderleaseorconcessionsuitabletoagriculture,subjecttopriorrights,homesteadrightsofsmallsettlers,andtherightsofindigenouscommunitiestotheirancestrallands.”

TheComprehensiveAgrarianReformProgram(CARP)isthePhilippines’mainredistributivereform.Atthelevelofpolicy,thereappearstobeageneralconvergenceandagreementbetweenCARP/ERandSection15oftheVoluntaryGuidelines.

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However,therearesecond-generationpolicyissueswithCARPinrelationtotheVGGT,i.e.:(i)One,theunfinishedtaskoflandtransferaftertheCARPER-setdeadlineofJune2014;(ii)Two,thetenuresecurityforthoseleftoutoftheCARPprogram,suchasseasonal agricultural laborers and informal settlerswhowerenotprimarytargetbeneficiariesoftheprogram;and(iii)Three,thecontinuingneedforlandredistribution,astheforcesofmarketreconsolidationbegintoerodetheredistributiveeffectsoflandreform.

Administration of tenure

Records. ThelandinformationsysteminthePhilippinesremainsgenerallypoorandinadequate.Thereisagenerallackofsystematic,reliableandaccurateinformationaboutlandownership,tenure,boundaries,location,actuallandusesandlandvaluation–includingatthelocalgovernmentlevels.Cadastralinformationisgenerallyinadequate.Thereisnocompletedelineationoftheboundariesofpublic,privateandforestlandparcels.Thereisnosetofcadastralmapsthatshowtitledanduntitledproperties,andlandparcelsthatareunderdifferenttypesoftenureinstruments.SeveralagenciesandLGUsissuedifferenttenureinstruments,butthereisnoconsolidatedinformationonthetenurestatusoflandparcels;eachagencymaintainsseparatelandrecordswithdifferentsystemsofrecordingandmapping.

Theexistingmanagementoflandrecordsremainsgenerallypoor.Manyrecordsaremissingduetoflooding,war,theft,anddamagefromfire.Informationisnoteasilyaccessible.Moreover,thereareinstancesoffraudulentlandtitling,alteringofrecordsandillegalactivitiesthatcauseslandconflicts,andthismaytakeyearstoresolve.LGUscontinuetoissuetaxdeclarationsevenforlandsunderthepublicdomainthatareinalienable.

Valuation. Overall,thereappearstobenonationalstandardandcommonmethodforvaluatingrealproperty.Differentagenciesapplyseveralsystemsandmethodsinthevaluationofproperties,dependingonthepurposeforwhichlandisbeingassessed.Theseinclude:(i)landvaluationbyprovincial,municipalandcityassessorsforpurposesoftaxation,basedontheTax Code;(ii)valuationforcompensationoflandacquiredorexpropriatedforpublicinvestment; (iii)valuationunderCARPbytheLandBankofthePhilippines;and(iv)valuationbytheprivatesectorforthepurposesofbanklending,insurance,purchaseandsaleofrealpropertybyinvestors.

Landvaluationsystemsandactualsalepricesnotmadeaccessibletothepublic.Thelawsdonotsetstandardsfortransparencyofinformationandmethodologies.Wherelandadministrationispoor,andwhererecord-keepingisweak,thesystemispronetocorruptionandmanipulation.

Taxation. Thecollectionoftheprivatelandtax(realtytax)fallslargelyunderthelocalgovernment,whileotheragenciescollectdifferentfees(permits,licenses,leases).Landtaxationiscoveredbyotherlaws,includingthe Tax Code and the Local Government Code,andthereforeisnotdirectlycoveredbythisassessment.

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Spatial planning.Thelawscoveredbythisreviewrequirespatial planningfordifferentpurposes (i.e.,forproductivity,resourcemanagementandprotection,disasterriskreduction),Differentagenciescarryouttheirownspatialplanningandmappingsystems,andyettheirplansandmapsarenotconsolidatedorharmonised.AFMAfocusesonlanduseandzoningforagriculture;therevisedForestryCodeprovidesfortheclassificationandsurveyofalllandsofthepublicdomain;theDRRMlawprovidesforriskassessmentandvulnerabilitymapping;whileIPRArequirestheformulationofADSDPPplansforthemanagementandprotectionofancestraldomains.

Itshouldbenotedthatregulatedspatialplanningisthemajorfocusofalegislationthathasbeenpendingformanyyears–theproposedNational Land Use and Management Act,orNLUA.ItisrecommendedthatdiscussionsontheNLUAbillalsotakeintoaccounttheprinciplesofVGGTSection20–i.e,theneedtoreconcileandharmonizethedifferentexistinglaws,andtonegotiateamongoverlappingandcompetinginterests.

Resolution of disputes. Someofthelawsreviewedprovideforspecialgrievancemechanismsandalternativesystemsforresolvingdisputesovertenure.Theyalsoprovidepartieswiththerightofappeal,andtherighttoelevatecasestojudicialcourts.Somelaws(i.e.,MiningAct)recognizetheneedforaspeedydispositionofcases,andthereforestipulatetheperiodbywhichdecisionsshouldbemade.

Theseextra-judicialdisputemechanismshelpprovidetimely,affordable&effectivemeansofresolvingdisputesovertenurerights,inaccordancewithVGGTSec21.Howeverquestionsarisewhendifferentsectorshaveconflictingclaimsoverthesameresource,andtheirtenurerightsareinvokedunderdifferentlaws.Themultiplicityoflaws,andthelackofharmonizationamongdifferenttenurepolicieshasledtoconflictingclaimsamongsectors,andfunctionaloverlapsamongimplementingagencies.

Responses to climate change and disasters

Climate change. TheClimateChangeActof2009articulatesthecountry’sgeneralpolicyonclimatechange,andestablishesaClimateChangeCommissionforthispurpose.ThefocusofthelawisoncreatingtheCommissionwhosemajortaskistheformulationofa“FrameworkStrategyandProgramonClimateChange”and“NationalClimateChangeActionPlan”.

However,theClimateChangeActitselfdoesnotprovideaclear link between climate change and the need to secure the tenure rightsofaffectedpeoplesoverland,fisheriesandforests.

Thereisneedtofurtherexploreanddiscusstheactualissuesandtherelevanceofpoliciesastheyapplytoclimate change and tenure rights,especiallyinthelightofrecentevents–i.e.,TyphoonYolanda.Theseincluderiskreductionandpreventionmeasures,disasterresponse,recoveryandrebuildingeffortsforaffectedcommunities.Asnotedduringtheconsultations,manyoftheareasmostseverelyaffectedbyTyphoonYolandawerecoastalcommunitieswhereresidentshavenolegaltenure.

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Disasters. ThePhilippineDisasterRiskReductionandManagementActof2010(DRRM)focusesonthecreationofaninstitutionalframework–startingwiththecreationoftheNationalDisas-terRiskReductionandManagementCouncil(NDRRMC)aswellasRegionalandLocalDRRMCouncils.

HowevertheDRRMlawitselfremains silent about the link between“disasterprevention/riskreduction”andtenure rights.Forexample,whilethelawprovidesmeasuresforspatialplanning(preparationofriskandhazardmaps),itdoesnotarticulatehowsuchspatialplans/mapsaretobeused,forexample,asregulatoryframeworksfortenure.NeitherdoesitgivetheNDRRMCtheregulatorypowersonspatialplanning.

DRRMisalsosilentonpoliciesregardingtheneedtoaddresstenureissuesduringemergencyresponseoratthereconstructionphase.Thisincludesresolvingdisputesovertenurerightsandboundaries,provisionoftemporaryshelters,returningpeopletotheirplacesoforiginandrebuilding,andprovidingpermanentresettlementasmaybenecessary.Resettlementareasshouldbenegotiatedwithhostcommunitiestoensurethat“peoplewhoaredisplacedareprovidedwithsecureaccesstoalternativeland…andlivelihoodsinwaysthatdonotjeopardizetherightsandlivelihoodsofothers”.

Theneedtoaddress tenure rights and issuesin“disasterprevention/riskreduction/response/rehabilitation”–isanareathatrequiresfurtherpolicyreviewandstudy.

Conflict. Theconcernhereisaboutthetenureofpeoplewhomaybeaffectedordisplaced,whetherornottheyareadirectpartytotheconflict.Theseconflictsincludetribalwars,insurgencies,andrebellions.Acase-in-pointistheZamboangaCityCrisisofSeptember2013wherethousandslosttheirhomes.Untiltoday,manyremainhomelessas“internally-displacedpeople”.

Noneofthelawsstudieddealswithtenurerightsandissuesincasesofconflict.OnlyIPRAclearlystatestherightIPs/ICCstoreturnandtobereinstatedontheirlandsincasesofpost-conflict.

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List of ReferencesOfficial documents: Policies, Legislations & Decrees

The 1987 Constitution of the Republic of the PhilippinesIndigenous Peoples Rights Act of 1997/Republic Act 8371Agriculture and Fisheries Modernization Act of 1997/Republic Act 8435National Integrated Protected Areas System Act of 1992/Republic Act 7586Forestry Reform Code of the Philippines (as amended)/Presidential Decree 705 of May 19, 1975Philippine Mining Act of 1995/Republic Act 7942Climate Change Act of 2009/Republic Act 9729Philippine Disaster Risk Reduction and Management Act of 2010/Republic Act 10121Comprehensive Agrarian Law of 1988/Republic Act 6657 as amended by Republic Act 9700 of 2009Presidential Decree 27 of 1972: Decreeing the Emancipation of Tenants from the Bondage of the

Soil, Transferring to Them the Ownership of the Land They Till and Providing the Instruments and Mechanisms Therefor

The Public Land Act/Commonwealth Act 141 of 1936 (as amended)

FAO-UN Document

FAO(2012).Voluntary Guidelines on the Responsible Governance of Tenure of Land, Fisheries and Forests in the Context of National Food Security.Rome:FoodandAgricultureOrganizationoftheUnitedNations.

Related research studies

Borras,SaturninoandJenniferFranco.“FromThreattoOpportunity?ProblemswiththeIdeaofa‘CodeofConduct’forLandgrabbing”.Yale Human Rights and Development L.J,Vol13.

DeJanvry,AlainandElisabethSadoulet(2001).Access to Land and Land Policy Reforms.Helsinki:UNUWorldInstituteforDevelopmentEconomicsResearch(UNU/WIDER).

FAO(2003).Multilingual Thesaurus on Land,Rome:FoodandAgricultureOrganization.Guiang,ErnestoandGemCastillo.“TrendsinForestOwnership,ForestResourcesTenure

andInstitutionalArrangementsinthePhilippines:AreTheyContributingtoBetterForestManagementandPovertyReduction?”

UniversityofthePhilippinesLawCentreandLandEquityInternational(2002).“LandLawsandRegulationsPolicyStudy-FinalReport:Volume1”.StudypreparedforthePhilippines-AustraliaLandAdministrationandManagementProject.July2002.

LandEquityInternational(2002).“InstitutionalArrangementsPolicyStudy”.StudypreparedforthePhilippines-AustraliaLandAdministrationandManagementProject.July2002.

Melana,Dioscoro(2008).“PrivateToolsforMangroveConservationinthePhilippines”.Pulihin,JuanM,JosefinaDizonandRexVictorO.Cruz(2008).“TenureReformandItsImpactsinthe

PhilippineForestLands”.Paperpresentedatthe12thBiennialConferenceoftheInternationalAssociationfortheStudyoftheCommons(IASC)heldon14-18JulyattheUniversityofGloucestershireinCheltenham,England,UK.

Rudinas,JoelS.,EstebanC.GodilanoandAliciaG.Ilaga(2013).ImplementingClimateSmartAgriculture:Ridge-River-Reef:ThePhilippineAdaptationandMitigationInitiativeforAgriculture.PaperpresentedattheASEAN-FAO-GIZRegionalExpertForumonClimateChange:AgricultureandFoodSecurityinASEAN.2-3May2013,Bangkok,Thailand.

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Endnotes

1 ThisabridgedpaperisoneofthestudiespreparedfortheANGOC-implementedproject“Promoting Responsible Land Governance for Smallholders in the Philippines”undertakeninpartnershipwiththePDF-SRD,NCI,FAO-Philip-pinesandGIZ.Thefullpapercanbefoundatwww.angoc.org/portal

2 TheVGGTwasnegotiatedundertheCommitteeonWorldFoodSecurity(CFS)asafollow-uptotheearlierVoluntary Guidelines to Support the Progressive Realization of the Right to Adequate Food in the Context of National Food Security thatwaspassedatthe2006InternationalConferenceonAgrarianReformandRuralDevelopment(ICARRD).TheVGGTwasformallyadoptedatthe38th(Special)SessionoftheCommitteeonFoodSecurityconvenedbyFAOinRomeon11May2012.TheVGGTdocumentisavailableonlineat:http://www.fao.org/docrep/016/i2801e/i2801e.pdf

3 “Tenure” istherelationship,whether legallyorcustomarily-defined,amongpeopleas individualsorgroups,withrespecttolandandassociatednaturalresources.Rulesoftenuredefinehowpropertyrightsinlandaretobeallo-catedwithinsocieties.Landtenuresystemsdeterminewhocanusewhatresourcesforhowlong,andunderwhatconditions.FAO(2003).Multilingual Thesaurus onLand,Rome:FoodandAgricultureOrganization,page36.

4 ThePDF-SRDisplatformforgovernmentagencies,CSOs,anddevelopmentpartnersworkingonruraldevelopmentinthePhilippines.AsamemberofthePDF-SRD,ANGOCisimplementingthisproject.TheprojectintendstofacilitatetheformulationofanimplementationplanoftheVGGTatcountrylevelbybuildingpartnershipsamongkeystake-holdersfromgovernmentagencies;CSOs,NGOsandPOsworkingonaccesstoland;developmentpartnersledbyGIZandFAOandothersectors.

5 Datafromfaostat.fao.org/(accessed6March2014)6 http://siteresources.worldbank.org/INTPHILIPPINES/Resources/PEM05-ch1.pdf(accessed6March2014)7 PhilippinesrankssecondtoSingaporeinpopulationdensityinSoutheastAsia.8 Thisdiagramistakenandadapted(slightlyeditedandabridged)froma2001DENRStudy“Land Laws and Regulations

Policy Study: Final Report, Volume 1”underLandAdministrationandManagementProject(LAMP).9 TitleofRA8368isthe“ActRepealingPresidentialDecree772,entitled’PenalizingSquattingandOtherSimilarActs’”10 Thetwolaws–RA8368andRA7279–arenotcoveredbythisStudy.

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Founded in 1979, ANGOC is a regional association of 16 national and regional networks on non-government organizations (NGOs) in Asia actively engaged in food security, agrarian reform, sustainable agriculture, participatory governance and rural development. ANGOC member networks

and partners work in 14 Asian countries with an effective reach of some 3,000 NGOs and community-based organisation (CBOs). ANGOC actively engages in joint field programs and policy debates with national governments, intergovernmental organizations (NGOs), and international financial institutions (IFIs). ANGOC is a founding member of the International Land Coalition (ILC), regional convenor of the Land Watch Asia (LWA) campaign and the Asian Alliance Against Hunger and Malnutrition (AAAHM-Asia). ANGOC is also a member of the Global Land Tool Network (GLTN) and the Indigenous Peoples’ and Community Conserved Territories and Area (ICCA).

Asian NGO Coalition for Agrarian Reform and Rural Development73-K Dr. Lazcano St., Barangay Laging Handa, 1103 Quezon City, PhilippinesP.O. Box 3107,QCCPO 1101, Quezon City, PhilippinesTel.: +63 23510581 Fax: +63 2 3510011E-mail: [email protected]: www.angoc.org

Land Watch Asia (LWA) is a regional campaign to ensure that access to land, agrarian reform and sustainable development for the rural poor are addressed in national and regional

development agenda. The campaign involves civil society organizations in seven (7) countries – Bangladesh, Cambodia, India, Indonesia, Nepal, Pakistan, and the Philippines. LWA aims to take stock of significant changes in the policy and legal

environments: undertake strategic national and regional advocacy activities on access to land; jointly develop approaches and tools; and encourage the sharing of experiences on coalition-building and actions on land rights issues.

Deutsche Gesellschaft für Internationale Zusammenarbeit (GIZ) GmbH is an international development organization of the Federal Government of Germany working in more than 130 countries worldwide.The organization is guided by the concept of sustainable development with areas of expertise in economic development and employment promotion; governance and democracy; security, reconstruction, peacebuilding and civil conflict transformation; food security, health and basic education; and environmental protection, resource conservation and climate change mitigation.

ILC is a global alliance

This briefing paper is made possible with the support of Deutsche Gesellschaft fur International Zusammenarbeit (GIZ). ANGOC likewise acknowledges the contribution of the International Land Coalition (ILC) and MISEREOR in the production of this briefing paper. The views and the information provided in this publication do not necessarily reflect the views or policies of GIZ, ILC and MISEREOR.

As the overseas development agency of the Catholic Church in Germany, MISEREOR works

in partnership with all people of goodwill to promote development, fight worldwide poverty, liberate people from injustice, exercise solidarity within the poor and persecuted,and help create “One World”. MISEREOR supports projects and promotes local initiatives in Africa, Asia and Latin America, irrespective of nationality, religion or gender.

of intergovernmental, governmental and civil

society organizations working together with the rural poor to increase their secure access to natural resources, especially land.


review of selected land laws and the governance of … of selected land laws and the governance of...

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