LAND TENURE AND PROPERTY RIGHTS ASSESSMENT: THE NORTHERN RANGELAND AND COASTAL CONSERVATION PROGRAMS OF USAID/KENYA AUGUST 2008, UPDATED MAY 2009 This publication was produced for review by the United States Agency for International Development. It was prepared by ARD, Inc. Prepared for the United States Agency for International Development, Property Rights and Resource Governance Program under the Prosperity, Livelihoods and Critical Ecosystems (PLACE) Indefinite Quantity Contract (IQC) Contract No. EPP-I-00-06-00008-00, Task Order 002. Authors: Safia Aggarwal, Land Tenure and Natural Resource Specialist, ARD; Chris Thouless, ARD Consultant. Implemented by: ARD, Inc. 159 Bank Street, Suite 300 Burlington, VT 05404 Photo Credit: Safia Aggarwal, ARD, Inc. LAND TENURE AND PROPERTY RIGHTS ASSESSMENT: THE NORTHERN RANGELAND AND COASTAL CONSERVATION PROGRAMS OF USAID/KENYA AUGUST 2008, UPDATED MAY 2009 DISCLAIMER The author’s views expressed in this publication do not necessarily reflect the views of the United States Agency for International Development or the United States Government. CONTENTS ACRONYMS AND ABBREVIATIONS ............................................................................III PREFACE ............................................................................................................................. V EXECUTIVE SUMMARY ................................................................................................. VII 1.0 PURPOSE, BACKGROUND AND METHODOLOGY ............................................ 1 1.1 PURPOSE AND BACKGROUND .................................................................................................1 1.2 METHODOLOGY .............................................................................................................................1 2.0 THE LEGAL FRAMEWORK ........................................................................................ 3 2.1 LAND TENURE ..................................................................................................................................3 2.1.1 TRUST LAND.............................................................................................................................3 2.1.2 GOVERNMENT LAND ...............................................................................................................4 2.1.3 PRIVATE LAND ..........................................................................................................................5 2.2 PROPERTY RIGHTS TO NATURAL RESOURCES ....................................................................6 2.2.1 WILDLIFE, NATIONAL PARKS AND RESERVES.........................................................................6 2.2.2 FORESTS .....................................................................................................................................7 2.2.3 WATER ......................................................................................................................................8 3.0 THE NORTHERN RANGELAND TRUST REGION/PROGRAM ......................... 11 3.1 CONSERVANCIES ......................................................................................................................... 11 3.2 TRUST LAND ISSUES .................................................................................................................... 12 3.3 GROUP RANCH ISSUES ............................................................................................................... 14 3.4 COMMUNITY-BASED TOURISM .............................................................................................. 17 3.4.1 TYPE OF LAND TENURE ........................................................................................................ 18 3.4.2 OWNERSHIP OF FACILITY ..................................................................................................... 19 3.4.3 MANAGEMENT OF FACILITY ................................................................................................. 19 3.4.4 PAYMENT SYSTEM .................................................................................................................. 20 3.4.5 MANAGEMENT OF WILDLIFE RESOURCE ............................................................................. 21 3.4.6 IMPLICATIONS OF LAND TENURE FOR TOURISM PARTNERSHIPS, BIODIVERSITY CONSERVATION AND INCOME GENERATION .................................................................... 22 4.0 THE KIBODO CONSERVATION PROGRAM ....................................................... 25 4.1 LAND TENURE IN THE LAMU DISTRICT/KIBODO REGION .......................................... 25 4.2 LAND TENURE ISSUES ................................................................................................................. 26 LTPR ASSESSMENT: NORTHERN RANGELAND/COASTAL CONSERVATION PROGRAMS OF USAID/KENYA i 4.3 IMPLICATIONS FOR TOURISM AND BIODIVERSITY CONSERVATION ...................... 27 5.0 IMPLICATIONS FOR LAND POLICY ..................................................................... 29 5.1 NATURAL RESOURCE MANAGEMENT ................................................................................. 29 5.2 GROUP RANCHES AND COMMUNAL LAND ..................................................................... 30 6.0 REFERENCES.............................................................................................................. 31 ANNEX I: SCOPE OF WORK ......................................................................................... 33 ANNEX 2. LIST OF GROUPS/ INDIVIDUALS INTERVIEWED ................................ 37 ANNEX 3: CONSERVANCIES SUPPORTED BY NRT ............................................... 39 ANNEX 4: TENURE ISSUES AND TOURISM OPERATIONS IN USAID PROJECT AREAS ....................................................................................................... 41 ii LTPR ASSESSMENT: NORTHERN RANGELAND/COASTAL CONSERVATION PROGRAMS OF USAID/KENYA ACRONYMS AND ABBREVIATIONS ASAL Arid and Semi-Arid Lands CBNRM Community-based Natural Resource Management dNLP Draft National Land Policy FAO Food and Agriculture Organization FD Forest Department GOK Government of Kenya IDP Internally Displaced Person KFS Kenya Forest Service KPS Kenya Police Service KWS Kenya Wildlife Service LTPR Land Tenure and Property Rights MoL Ministry of Lands MWRMD Ministry of Water Resources Management and Development NGO Nongovernmental Organization NRM Natural Resource Management NRT Northern Rangeland Trust SOW Statement of Work USAID US Agency for International Development WCMA Wildlife Conservation and Management Act WCMD Wildlife Conservation and Management Department LTPR ASSESSMENT: NORTHERN RANGELAND/COASTAL CONSERVATION PROGRAMS OF USAID/KENYA iii PREFACE Globalization of the world’s economies, the increasing and sometimes violent competitive demands for scarce and valuable natural resources, and the (re)emergence and expansion of important nations in the world economy create new economic and political opportunities and challenges for the United States. The way in which nations define property rights—such as private, public, state-held—and permit citizen to hold property (e.g., private, leaseholds, etc.) and defend those rights through the rule of law or administrative procedures, greatly influences the processes of globalization, national economic growth, and the development of democratic society. Indeed, property rights are seen as a critical factor in economic growth, nation-building, governance, and political stability in the U.S. Foreign Assistance Framework. While there is a need in every society for state-held and public land, “private rights,” whether individual, corporate, or community, have been shown to be the most robust, facilitating investment, economic growth, and more sustainable use of natural resources. These private rights can be administered and secured through formalized systems, including land registration and titling, or through less formal systems, such as customary, “traditional,” or other non-statutory systems as seen in many parts of Africa and Asia. The degree of formalization needed depends on the development of national markets; the needs of the country; its administrative capacity; and other social, political, economic, and cultural challenges and opportunities. It is not uncommon or necessarily problematic to have both formal and informal or less formal systems operating in one country at the same time. When these dual systems exist, the challenge is not to eradicate one in favor of the other—the informal in favor of the formal—but to create linkages between these systems that will provide security of property rights and allow individuals, communities, and corporate structures opportunities to make transactions between these systems, and opportunities to upgrade or transform property rights (from less formal to more formal) when economic conditions are rights, and institutions exist to administer, record, and adjudicate more formalized rights. From the inception of the organization, the United States Agency for International Development (USAID) has focused on fostering the development and promotion of property rights in countries where it works. Over the years, critical thinking from within USAID, U.S. universities, and the Agency’s domestic and international partners has led to new programmatic approaches to foster property rights around the world. These programs have contributed to economic growth and increased private investment; fostered political stability, improved governance, and mitigated violence; and improved sustainable and profitable management of natural resources. The lessons learned from these programs have, in turn, led to new strategies and sequencing in reforms to promote property rights in diverse economic, political, and cultural settings. In 2003 and 2004, USAID embarked on a small-scale program to develop (a) a more uniform methodology to understand and address property rights issues, and (b) measure the demand from USAID missions for technical assistance to address property rights reforms and institutional development in our partner countries. This led to a much more ambitious program beginning in 2004 to develop a comprehensive framework and tools to conceptualize, programmatically address, and promote property rights around the world. This program was implemented as a Task Order (Lessons Learned: Property Rights and Natural Resource Management) through the RAISE1 IQC. The results of both sets of work have defined the conceptual framework for land tenure and property rights (LTPR) as part of USAID foreign assistance and tools for USAID’s engagement in LTPR programming internationally. 1 Rural and Agricultural Income with a Sustainable Environment (RAISE). LTPR ASSESSMENT: NORTHERN RANGELAND/COASTAL CONSERVATION PROGRAMS OF USAID/KENYA v Under the Property Rights and Resource Governance (PRRG) task order, implemented through the PLACE2 IQC, USAID seeks to expand upon the LTPR Framework, and refine existing and develop new companion tools to augment the Framework. This task order focuses on the promotion of the Economic Growth objective, within the new U.S. Foreign Assistance Framework, by promoting property rights and natural resource governance. The task order has the following goals: 1. Improve Knowledge Management and Best Lessons: develop and transfer lessons learned/best practices regarding land tenure, property rights and resource governance to development practitioners including partner institutions, USAID, and other USG partners. 2. Improve Economic Growth: through the development of methodologies promoting property rights (including private individual and “group,” corporate, shareholder, and community rights) through such tools as land titling and registration, community demarcation, and the development of new models for enterprise property rights. An emphasis will include tools to promote land and natural resource markets. 3. Promote Governance and Mitigate Conflict: through development of methodologies and tools to improve transparency in land and natural resource access, to broaden civil participation in decision making, and in the development of tools to resolve disputes and conflicts over natural resources (including land, forests, wildlife, and coastal and mineral resources such as diamonds and oil). 4. Improve Natural Resource Management and Biodiversity Protection: by promoting methodologies to link property rights for land, forest, water, wildlife, and other resources with natural resource management practices (particularly in protected, buffer, and corridor areas, and in areas adversely impacted by conflict). 5. Address Gender and Vulnerable Populations Needs: by developing best practices/lessons for access and rights to land and natural resources by women and vulnerable populations’ (e.g., indigenous groups, minorities, displaced and disadvantaged groups). This will promote economic growth and equity for frequently disenfranchised populations. It could also create options, through access to productive resources, which would mitigate the transmission and/or economic impacts of HIV/AIDS for women and vulnerable populations. 6. Provide Technical Support to USAID Missions and operating units: by providing evaluation, design, and technical support for activities related to property rights and natural resource governance. These activities may include (but are not limited to) property rights in privatization, economic growth, finance, governance, conflict resolution, post-conflict reconstruction, conflict resources, natural resource management, biodiversity, gender, and resettlement of displaced and vulnerable populations.3 The PRRG Program is managed for USAID by ARD, Inc., of Burlington, Vermont, USA. Key partners on this task order include the Rural Development Institute, the World Resources Institute, and Links Media. The Program’s CTO is Dr. Gregory Myers, Senior Land Tenure and Property Rights Specialist, EGAT\NRM\LRMT, United States Agency for International Development; [email protected]. 2 Prosperity, Livelihoods, and Critical Ecosystems (PLACE). 3 Gregory Myers, EGAT\NRM\LRMT, excerpt from Property Rights and Resource Governance Global Task Order. vi LTPR ASSESSMENT: NORTHERN RANGELAND/COASTAL CONSERVATION PROGRAMS OF USAID/KENYA