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Property Rights and Participation in REDD+: The Case of Mozambique

Published online by Cambridge University Press:  22 May 2012

Grit Ludwig
Grit Ludwig*
Affiliation:
Helmholtz Centre for Environmental Research – UFZ, Department of Environmental and Planning Law, Leipzig (Germany). The author worked in Mozambique, Nampula Province, between 2005 and 2007. Email: [email protected]
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Abstract

Reducing emissions from deforestation and forest degradation with the help of the emerging REDD+ mechanism provides an opportunity to combine climate protection with biodiversity conservation and poverty alleviation. However, one of the crucial questions is how the rights of indigenous peoples and local communities will be protected in REDD+ implementation. This article depicts the challenges involved in protecting the rights of local communities in the case of Mozambique. The study finds that constraints regarding property and participation rights arise, in particular, from incomplete procedures of delimitation and titling, corruption, lack of rights awareness, lack of democratic structures within the community or poor infrastructure. Because many states with a REDD+ potential are not able to guarantee sufficient rights protection, the REDD+ mechanism itself needs to be endowed with strong safeguards for the rights of indigenous peoples and local communities.

Keywords

REDD+Land TenureParticipationLocal CommunitiesMozambique
Type
Articles
Information
Transnational Environmental Law , Volume 1 , Issue 2 , October 2012 , pp. 381 - 401
Copyright
Copyright © Cambridge University Press 2012

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References

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31 Wertz-Kanounnikoff, Sitoe & Salomão, n. 28 above, at p. 4.

32 Kyoto Protocol to the United Nations Framework Convention on Climate Change, Kyoto (Japan), 11 Dec. 1997, in force 16 Feb. 2005, available at: http://unfccc.int/kyoto_protocol/items/2830.php.

33 Art. 12 of the Kyoto Protocol does not include safeguards concerning rights of indigenous peoples and local communities. This has resulted in adverse effects on the rights of indigenous peoples and local communities of some CDM projects, e.g., through controversial large-scale plantations: see Phelps et al., n. 14 above, at p. 323.

34 N. 12 above.

35 Meridian Institute, Reducing Emissions from Deforestation and Forest Degradation (REDD): An Options Assessment Report (Meridian Institute, 2009), at pp. 25–7.Google Scholar

36 There are 166 parties to the ICCPR (n. 42 below), 160 to the ICESCR (n. 43 below), 194 to the UNFCCC (n. 12 above), and 190 to the Kyoto Protocol (n. 32 above).

37 Rajamani, L., ‘The Increasing Currency and Relevance of Rights-Based Perspectives in the International Negotiations on Climate Change’ (2010) 22(3) Journal of Environmental Law, pp. 391–429Google Scholar, at 412.

38 Annex G, para. 2 lit. (c)–(d) of the Report of the Ad Hoc Working Group on Long-Term Cooperative Action under the Convention on its Eighth Session, Copenhagen (Denmark), 7–15 Dec. 2009, UN Doc. FCCC/AWGLCA/2009/17, 5 Feb. 2010, available at: http://unfccc.int/resource/docs/2009/awglca8/eng/17.pdf; and Appendix I, para. 2 lit. (c)–(d); Decision 1/CP.16, n. 13 above.

39 Decision 1/CP.16, n. 13 above, no. 71.d.

40 Outcome of the work of the Ad Hoc Working Group on Long-Term Cooperative Action under the Convention in Copenhagen, UN Doc. FCCC/CP/2010/2, 11 Feb 2010, Annex V, para. 5(c), available at: http://unfccc.int/resource/docs/2010/cop16/eng/02.pdf.

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49 UN Doc. A/RES/61/295, 13 Sept. 2007, available at: http://www.un.org/esa/socdev/unpfii/documents/DRIPS_en.pdf.

50 UN Doc. A/RES/47/135, 18 Dec. 1992, available at: http://www2.ohchr.org/english/law/minorities.htm.

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58 There are a few states that have already recognized carbon sequestration rights as separate from the property in trees or the forest. For the example of Australia cf. Lyster, n. 41 above, at p. 123. See also Takacs, D., Forest Carbon: Law and Property Rights (Conservation International, 2009), at pp. 21–3.Google Scholar

59 Constituição da República de Moçambique 2004, English version available at: http://confinder.richmond.edu/admin/docs/Constitution_%28in_force_21_01_05%29%28English%29-Mozlegal.pdf.

60 Government of Mozambique 1997, Lei de Terra 19/97. English translation available at: http://faolex.fao.org/docs/pdf/moz15369E.pdf.

61 The titleholder of the right of land use and benefit may mortgage the immovable assets and improvements which he or she has duly been authorized to make on the land, or over which he or she has legally acquired a right of ownership: Art. 16(5) Land Law.

62 Lei de Florestas e Fauna Bravia 1999, Law No. 10/99, available at: http://www.legisambiente.gov.mz/index.php?option=com_docman&task=doc_details&gid=37&Itemid=39.

63 Available at: http://www.legisambiente.gov.mz/index.php?option=com_docman&task=cat_view&gid=14&Itemid=39.

64 Rights and Resources Initiative (RRI) & International Tropical Timber Organization (ITTO), Tropical Forest Tenure Assessment: Trends, Challenges and Opportunities (RRI & ITTO, 2009), at p. 16Google Scholar. The study accounts for 84% of African tropical forests.

65 Salomão & Matose, n. 25 above, at p. 13.

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77 Alden Wily, ibid., at pp. 31–2.

78 FCPF, n. 75 above. Serra & Tanner, n. 72 above, at p. 63.

79 Global Forest Coalition, n. 23 above, at p. 56; Serra & Tanner, n. 72 above, at p. 61; Norfolk & Tanner, n. 76 above, at p. 31.

80 Norfolk & Tanner, ibid., at p. 31.

81 Ibid., at p. xi; Tanner, C. et al. ., Making Rights a Reality: Participation in Practice and Lessons Learned in Mozambique (FAO, LSP Working Paper 27, 2006), at p. 24.Google Scholar

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84 N. 48 above.

85 With regard to participation in REDD+, cf. in detail Morgera, E., ‘Participation, Balancing of Rights and Interests, and Prior Informed Consent’, in Costenbader, J. (ed.), Legal Frameworks for REDD Design and Implementation at the National Level (IUCN, 2009), pp. 35–56Google Scholar, at 49–53.

86 N. 51 above.

87 N. 49 above.

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89 Regarding access to information on REDD+, see also Morgera, n. 85 above, at p. 49.

90 Own observations; Tanner et al., n. 81 above, at p. 54.

91 Hobley, M., Where in the World is There Pro-Poor Forest Policy and Tenure Reform? (Rights and Resources, 2007), at p. 27Google Scholar, available at: http://www.rightsandresources.org/documents/files/doc_658.pdf.

92 Tanner et al., n. 81 above, at p. 67.

93 Global Forest Coalition, n. 23 above, at p. 78; Seymour, F., ‘Forests, Climate Change and Human Rights: Managing Risks and Trade-Offs’, in Humphreys, S. (ed.), Human Rights and Climate Change (Cambridge University Press, 2010), pp. 207–37Google Scholar, at 216.

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95 Cumbane, ibid., at p. 359.

96 Norfolk & Tanner, n. 76 above, at pp. 27–8, illustrate a case where the lack of ID cards was a constraint in the delimitation and land titling process.

97 Phelps et al., n. 14 above, at p. 326.

98 Global Forest Coalition, n. 23 above, at pp. 54–5.

99 See http://www.ohchr.org/EN/Countries/Pages/HumanRightsintheWorld.aspx.

100 Own observations; Open Society Initiative for Southern Africa (OSIfS), Mozambique – Justice Sector and the Rule of Law (OSIfS Africa, 2006), at p. 123.Google Scholar

101 Ibid., at pp. 123–4.

102 Own observations; cf. also Section 3.4 above.

103 OSIfS Africa, n. 100 above, at pp. 125–6 and 135.

104 Norfolk & Tanner, n. 76 above, at p. 31; Serra & Tanner, n. 72 above, at p. 64.

105 Norfolk & Tanner, ibid., at p. 31.

106 With the same conclusion: Bond, I. et al. ., REDD+ in Dryland Forests: Issues and Prospects for Pro-Poor REDD in the Miombo Woodlands of Southern Africa (IIED, 2010), at p. 24.Google Scholar

107 The term was shaped by Phelps et al., n. 14 above, and comprises – besides carbon storage in forests – a quality forest governance and the protection of rights of forest-dependent people. With regard to forest governance, it was pointed out that Mozambique has serious problems, which are linked in the first place with corruption: Mackenzie, n. 27 above, at p. 71, for Zambézia Province.

108 Simula, M., Analysis of REDD+ Financing Gaps and Overlaps (REDD+ Partnership, 2010), at p. 58.Google Scholar

109 Dooley, K. et al. ., Smoke and Mirrors: A Critical Assessment of the Forest Carbon Partnership Facility (FERN and Forest Peoples Programme, 2011), at p. 16Google Scholar. For more references, see Westholm, L. et al. ., REDD+ and Tenure: A Review of the Latest Developments in Research, Implementation and Debate (Focali, 2011), at p. 14Google Scholar. Cf. also Davis, C. et al. ., A Review of 25 Readiness Plan Ideas: Notes from the World Bank Forest Carbon Partnership Facility (WRI Working Paper, 2009), at p. 2.Google Scholar

110 Brown, M.L., ‘Limiting Corrupt Incentives in a Global REDD Regime’ (2010) 37(1) Ecology Law Quarterly, pp. 237–68Google Scholar, at 254. Not surprisingly, developing countries highly dependent on forest resources, and thus in the first line of potential countries eligible for REDD+ funds, are among the most corrupt countries in the world: Kishor, N. & Damania, R., ‘Crime and Justice in the Garden of Eden: Improving Governance and Reducing Corruption in the Forestry Sector’, in Campos, J.E. & Pradhan, S. (eds.), The Many Faces of Corrruption: Tracking Vulnerablities at the Sector Level (World Bank, 2007), pp. 89–114Google Scholar, at 90.

111 E.g., the costs of information and participation in the form of free, prior and informed consent for the implementation of REDD+ in the 40 provinces in Viet Nam were estimated to be US$14 million: T. Boyle, Application of Free Prior Informed Consent in the UN-REDD Programme: Experiences from Viet Nam, Presentation at the FPIC and Recourse Workshop, Panama, Oct. 2010, at p. 29.

112 Ring, I. et al. ., ‘Biodiversity Conservation and Climate Mitigation: What Role Can Economic Instruments Play?’ (2010) 2(1–2) Current Opinion in Environmental Sustainability, pp. 50–8Google Scholar, at 52. In respect of corruption within REDD+ in detail, see Brown, n. 110 above.

113 A. Savaresi & E. Morgera, ‘Ownership of Land, Forest and Carbon’, in Costenbader, n. 85 above, pp. 15?34, at 34; and Global Forest Coalition, n. 23 above, at p. 79.

114 Vatn, A. & Vedeld, P., Getting Ready! A Study of a National Governance Structure for REDD+ (Noragric, 2011), at p. 8Google Scholar. In detail, see Meridian Institute, n. 35 above, at p. 25; Chagas, T., Non-State Actors and REDD: Issues Surrounding the Participation of Indigenous People and Local Communities (Climate Focus, 2009), at pp. 7–9Google Scholar, available at: http://www.redd-oar.org/links/Legal%20Issues%20REDD.pdf.

115 Okereke & Dooley, n. 14 above, at p. 93.

116 Hobley, n. 91 above, p. 53.

117 UNFCCC, Adoption of the Rules of Procedure of the Conference of the Parties and its Subsidiary Bodies, UN Doc. FCCC/CP/1996/2, 22 May 1996, available at: http://unfccc.int/resource/docs/cop2/02.pdf.

118 Pilot projects, e.g. in Bolivia, led to a cessation of deforestation in the project area but to accelerated deforestation in the rest of the country: see F. Pearce, ‘Noel Kempff Project is “saving the forest” by Forcing Destruction Elsewhere’, The Guardian, 11 Mar. 2010, available at: http://www.guardian.co.uk/environment/2010/mar/11/greenwash-noel-kempff-forests.

119 Cf. the references in n. 16 above.

120 Hobley, n. 91 above, at pp. 30–1.

121 Karky, B.S. & Skutsch, M., ‘The Cost of Carbon Abatement through Community Forest Management in Nepal Himalaya’ (2010) 69(3) Ecological Economics, pp. 666–72Google Scholar, at 671; Skutsch &Ba, n. 16 above, at p. 269.

122 IUFRO, Embracing Complexity: Meeting the Challenges of International Forest Governance (International Union of Forest Research Organizations, 2010), at p. 137.Google Scholar

123 Ostrom, E. & Cox, M., ‘Moving Beyond Panaceas: A Multi-Tiered Diagnostic Approach for Social-Ecological Analysis’ (2010) 37(4) Environmental Conservation, pp. 451–63Google Scholar, at 460.