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Rapport Final Formalisation juridique des usages sur la zone lagonaire en Nouvelle-Calédonie Rapport de synthèse Volet 1 : Etude des structures juridiques adaptées aux comités locaux de gestion émergeant dans le cadre des dossiers UNESCO et COGERON Carine DAVID , Maître de conférences Volet 2 : Outils juridiques de formalisation des en droit public droits d'usages traditionnels sur le domaine marin Guillaume ZAMBRANO , stagiaire Raphaël CASADO , stagiaire Université de la Nouvelle-Calédonie Sven MENU GIE Océanide (Gestion Intégrée de l’Environnement en Océanie) Mai 2011 Remerciements Je tiens à remercier les stagiaires qui ont travaillé sur cette étude, Guillaume Zambrano et Raphaël Casado. Je tiens également à remercier toute l’équipe qui a œuvré sur ce programme pluridisciplinaire et particulièrement son coordinateur, Marc Léopold, pour sa patience et sa grande faculté de mobilisation des effectifs. Enfin, je remercie le ministère de l’écologie, du développement durable, des transports et du logement pour son soutien tout particulier au volet juridique de ce programme. 2 SOMMAIRE Volet 1 - Etude sur les structures juridiques adaptées aux comités locaux de gestion émergeants dans le cadre des dossiers UNESCO et COGERON .................................... 6 PARTIE I LE DROIT FRANÇAIS ET LE CORPUS JURIDIQUE DE NOUVELLE- CALEDONIE ...................................................................................................................... 16 Chapitre 1 Les aires protégées .............................................................................................................. 16 Chapitre 2 Les contrats publics ............................................................................................................. 20 Chapitre 3 Les structures associant les collectivités et les partenaires privés...................................... 21 PARTIE II STRUCTURES ORIGINALES ................................................................... 43 Chapitre 1 La fiducie.............................................................................................................................. 43 Chapitre 2 Le trust public ...................................................................................................................... 45 CONCLUSION .................................................................................................................. 488 Volet 2 - Outils juridiques de formalisation des droits d'usages traditionnels sur le domaine marin ............................................................................................................... 5151 PARTIE I – LA FORMALISATION DES USAGES, UNE SOLUTION SOUHAITABLE AU REGARD DU DROIT COMPARE .......................................................................................... 56 Chapitre 1 La reconnaissance de droits d’usages exclusifs ............................................................... 56 Chapitre 2 L’utilisation des AMP en tant qu’outils de réservation ............................................... 6268 PARTIE II - UNE SOLUTION CONFORME AU DROIT POSITIF ......................................... 69 Chapitre 1 Une solution conforme au principe d’égalité ................................................................... 69 Chapitre 2 Une solution imposée par le droit international .......................................................... 7779 CONCLUSION ................................................................................................................... 8689 BIBLIOGRAPHIE ........................................................................................................... 8891 TABLE DES REFERENCES .............................................................................................. 93 ANNEXE 1 – POSSIBILITES DE ZONAGE A L’INTERIEUR D’UNE RESERVE 98101 ANNEXE 2 - LE MODELE AUSTRALIEN .................................................................... 103 ANNEXE 3 – LE MODELE CANADIEN ....................................................................... 153 3 En s’inscrivant dans le cadre fixé par les études anthropologiques, socio-économiques et relatives aux ressources halieutiques, l’étude juridique avait pour objectif de déterminer les solutions s’offrant aux autorités provinciales pour gérer et, le cas échéant, formaliser les usages existant sur le domaine public maritime sur la zone d’étude de VKP. Une étude comparée prenant en compte des situations similaires, à savoir la présence d’une revendication sur le domaine public maritime par une population autochtone pour la reconnaissance de droits a été réalisée. Elle portait principalement sur l’Australie, la Nouvelle-Zélande, le Canada et les Etats-Unis. Elle a fait ressortir deux éléments récurrents : • Il n’est généralement pas besoin de transférer des droits de propriété aux populations autochtones, mais plus simplement de leur reconnaitre des droits d’usage sur le domaine public maritime, si besoin en leur octroyant des droits exclusifs ; • L’outil privilégié pour se faire est l’aire marine protégée (AMP). A partir de ce double constat, l’étude a résidé dans : • La vérification de la compatibilité d’une telle solution avec les règles de droit international : celle-ci apparait comme imposée par le droit international (notamment par la Déclaration des Nations-Unies sur les droits des peuples autochtones de 2007, la convention sur les droits de la mer de 1982 ou encore la Déclaration de Cancun sur la pêche responsable de 1992). • La vérification de la conformité d’une telle solution avec le principe d’égalité des usagers du domaine public en droit français : il apparait à cet égard que la mise en place d’AMP auxquelles n’auraient accès que les tribus riveraines en vue de satisfaire leurs besoins de subsistance et les usages coutumiers ne porte pas atteinte au principe d’égalité des usagers du domaine public, en application de la règle fixée par le Conseil constitutionnel selon laquelle il est possible d’opérer des distinctions entre des personnes se trouvant dans des situations différentes, ce qui est le cas des populations autochtones et des riverains du domaine public. 4 • L’étude de la nécessité de faire évoluer le cadre réglementaire et législatif en vigueur en Province nord : il s’avère que le récent Code de l’environnement de la Province nord de 2008 contient des dispositions satisfaisantes pour mettre en œuvre la solution préconisée, notamment au regard de son préambule et des dispositions relatives aux aires naturelles protégées, et plus particulièrement celles relatives aux aires de gestion durable. Ces premiers points font l’objet du volet 2 de l’étude sur les « Outils juridiques de formalisation des droits d'usages traditionnels sur le domaine marin ». Au préalable, un premier volet de l’étude a consisté à évaluer les formes juridiques envisageables afin de permettre une participation des populations locales à la gestion du domaine public maritime. Un grand nombre de formes juridiques ont été envisagées et comparées. Il en ressort la nécessité de mettre en place des structures légères, n’étant pas forcément dotées de la personnalité juridique (ex : comité de gestion), au regard des revendications finalement faibles des populations pour la mise en place d’une gestion participative sur le lagon. Il a toutefois été suggéré d’étendre la possibilité aux tribus et aux groupements de droit particulier local (GDPL) de signer des conventions de gestion avec la Province afin de participer à la gestion du lagon, ce qui n’est pas possible en l’état actuel de la réglementation provinciale. 5 VOLET 1 ETUDE SUR LES STRUCTURES JURIDIQUES ADAPTEES AUX COMITES LOCAUX DE GESTION EMERGEANTS DANS LE CADRE DES DOSSIERS UNESCO ET COGERON Carine DAVID Maître de conférences en droit public Université de la Nouvelle-Calédonie Sven MENU Président du Gie Océanide Gestion Intégrée de l’Environnement en Océanie 6 1. Contexte : La présente étude s’inscrit dans le cadre du projet COGERON, dépendant du programme national LITEAU, financé par le Ministère de l’Ecologie, de l’Energie, du Développement durable et de la Mer. Le projet scientifique pluridisciplinaire COGERON, associe l’IRD, l’UNC, l’IFREMER et l’IAC, ainsi que les provinces Nord (zone VKP) et Iles (Ouvéa). L’étude juridique alimentera les autres actions de ce projet qui vise à organiser la cogestion des lagons de Nouvelle-Calédonie sur deux sites pilotes, Ouvéa en province des îles Loyauté et la zone Voh-Koné- Pouembout en province Nord. 2. Les représentants de la province Nord, de la province Sud, de la province des îles Loyauté et du Gouvernement de Nouvelle-Calédonie participant au groupe de travail local de l’IFRECOR, se sont accordés sur un cahier des charges pour une étude juridique répondant aux différentes attentes des collectivités en matière de gestion participative sur le domaine public maritime. Dans ce cadre, il a été proposé que l’IFRECOR serve de plate-forme à ces discussions et cofinance l’étude. 3. Globalement, dans le cadre du programme COGERON, l’étude juridique vise à formaliser sur le plan juridique et organisationnel une gestion partagée de la zone lagonaire (environnement et ressources) en Nouvelle-Calédonie. 4. Cette étude comprend deux volets complémentaires : - L’un destiné à déterminer les structures / formes juridiques les plus adaptées aux divers comités locaux de gestion en recherchant si les formes juridiques disponibles en droit positif permettent de répondre aux spécificités socio- culturelles des populations présentes en Nouvelle-Calédonie et aux enjeux de gestion actuels,
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