A New Approach for the Establishment of a Regional Multipurpose Cadastre

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A NEW APPROACH FOR THE ESTABLISHMENT OF A REGIONAL MULTIPURPOSE CADASTRE IN LA MOJANA, COLOMBIA – HOW TO OVERCOME LARGE SCALE CADASTRAL OPERATIONS CHALLENGES THROUGH TECHNOLOGICAL AND METHODOLOGICAL INNOVATION

Stéphane Palicot1, Loïc Daniel2 GEOFIT1, IGN FI2 [email protected]

Paper prepared for presentation at the “2019 WORLD BANK CONFERENCE ON LAND AND POVERTY” The World Bank - Washington DC, March 25-29, 2019

Copyright 2019 by author(s). All rights reserved. Readers may make verbatim copies of this document for non-commercial purposes by any means, provided that this copyright notice appears on all such copies.

Abstract In a post conflict recovery program context and as part of a development strategy, Colombia has launched a major national multipurpose cadastral modernization program.1 Various pilot projects have been defined. Among these, La Mojana, a vast wetland region affected by economical and post-conflict issues, has been selected as a first case of cadastral operations at regional scale. Two French companies, IGNFI and GEOFIT, acting as a consortium, have been tasked by the AFD and the DNP to elaborate a methodology for the establishment of a multipurpose cadastre on this region, with emphasis on social regularization of rural land rights. For this purpose, a group of experts from the consortium has designed a specific model of operation for massive cadastral establishment and land tenure regularization. It strongly relies on the use of innovative technologies and methods transferred from large scale industrial manufacturing processes. We will assess how the catalyzation of innovative factors into an integrated methodology gives access to a new level of efficiency, quality and user satisfaction at a lower cost of operation than current models.

Key Words Colombia, Innovation, Methodology, Regional, Multipurpose cadastre

1 CONPES 3859 : Política para la adopción e implementación de un catastro multipropósito rural-urbano (policy for the adoption and implementation of a rural-urban multipurpose cadastre)

1. INTRODUCTION

From 2017 till early 2018, the authors have participated, as part of a group of experts from IGN FI and GEOFIT, in the carrying out of a study funded by the AFD in the framework of French cooperation in Colombia, aiming to design a methodology for the implementation of a multipurpose cadastre and land rights formalization and regularization operation in the region of La Mojana, Colombia.

The main features and expected benefits of the methodology will be outlined, along with a description of the process followed during the design phase. It is important to mention that this is a collective endeavor. A strong and fruitful cooperation has been established throughout the conduction of the study, involving representatives from all relevant national agencies and french cooperation. Therefore, we will dedicate a section to introduce each of them and acknowledge their role and contribution to the study.

This paper is also intended to be a relation of our experience in the participative conception of a methodology seeking rationalisation of a regional cadastral operation, immersed in the Colombian context, aiming for simplicity, efficiency, quality, productivity and economy in presence of different constraints and challenges. Their precise nature, origin, and how we recommend to overcome some of them will be explained further on.

It is usually necessary to adapt existing land regulations2 in order to enable higher productivity and lower cost of massive regularization operations. This allows full and effective deployment of innovative methodologies, similar as the one presented here. Whenever regulations are not aligned with these objectives, a limited version of the methodology may be used, reaching only part of the benefits it potentiates. In this study, after reviewing the present state of regulatory texts in Colombia, it has been considered that some strong adverse factors remain in national standards and specifications, thus reducing the impact of an innovative methodology. Amendments have been proposed by the group of experts, but keeping in mind that the typical institutional timescale to get final legal binding adoption on regulatory matters is often much more than the time it takes to perform the whole cadastral operation.

2 The Fit-For-Purpose approach comes to mind as an example of this concept. It is widely accepted as an adequate approach for conciliating swift land tenure regularization and cost-effectiveness.

This is why, to some extent, the points developed in this paper are oriented towards particular methodological aspects where unencumbered space for improvement has been detected. In other words, those that are less affected by particular technical, legal specifications and regulations. Although the methodology encompasses the points of friction between productivity objectives and regulations, the paper is mostly focused on the part about improving techniques, processes and workflows of the cadastral operation, considering as invariants a set of constraints imposed by national standards, regulations as well as other external factors.

2. SCOPE OF THE METHODOLOGY

2.1. Definition

Methodology: "A system of ways of doing, teaching, or studying something."3

"A system of broad principles or rules from which specific methods or procedures may be derived to interpret or solve different problems within the scope of a particular discipline. Unlike an algorithm, a methodology is not a formula but a set of practices."4

"A body of methods, rules, and postulates employed by a discipline : a particular procedure or set of procedures."5

"A methodology is a system of methods and principles for doing something."6

"Set of methods and techniques of a particular domain."7

2.2. Scope

The scope of the methodology was initially based on the definition of the study as stated by the contracting entity (AFD) and requested by the DNP. As such, it already included due requirements from national agencies and from the national multipurpose cadastre program, given that the ToR had been prepared in close cooperation between the AFD and relevant local agencies. Additional scoping considerations have been added by the group of experts and stakeholders during its execution, as progress

3 Cambridge Dictionary 4 Business Dictionary 5 Merriam-Webster 6 Collins Dictionary 7 Larousse dictionary

was made in the review and reflexion process and as valuable issues were identified. The final extended scope is presented below: ● Definition of methods and techniques for the establishment of a regional multipurpose cadastre ● Integral approach. Take into account diversity of disciplines and operations to be carried out and orchestate them into a seamless integral workflow ● Regional approach, geographical scope is the region of La Mojana, Colombia ● Reusable in other regions of Colombia through adaptation to the specific constraints and opportunities of the context ● Emphasis on land tenure regularization and formalization ● Strive for automatization, productivity, quality, flexibility, early information dissemination (visibility), collaboration ● Should constitute a guideline for operators that will be selected through a tender. Profiled as an annex in tender documents ● Comply with existing national and international standards/regulations and be compatible with their evolution (future proof) ● Compatible and integrated with POSPR methodology (Plan de Ordenamiento Social de la Propiedad - Policy for the Social Management of Land tenure) ● Identify "pain points" concerning local standards and propose evolution ● Must include productivity and costs assessment ● Propose alternatives to traditional/standardized methods, in particular with respect to technical field operations and land value estimation ● Take opportunity of innovations and available technical advances in related or relevant fields

2.3. Yet another methodology ?

At first view it may seem that there is no need for yet another methodology, that something close already exists, given that since the last 10 or more years, there have been a significant amount of large scale land management reform programs worldwide, including massive cadastral regularization operations. Therefore it should be expected that the need for a standardized and integral methodology for carrying out these activities has already been addressed. To some extent, this is so8, though the available information tends to be fragmented. Activity and Assessment reports are generally a valuable resource as a body of knowledge, explaining what lessons have been learned, pinpointing known and unexpected causes of

8 Thierry Hoza Ngoga (2018). Rwanda's Land Tenure Reform, Non-existent to Best Practice.

success and failure and exposing ideas for future improvement. Other than this, in our experience, common methodological aspects for cadastral/land tenure regularization operations are rarely addressed through an integral approach and unified in a consistent documentation body, and even less so in view of further reusability. In conclusion, it has been evaluated that there is no ready to use existing methodology for the project at stake. It is therefore justified and necessary to prepare an integral methodology for the regional operation in La Mojana.

In addition to this, there are specific issues to be addressed in the context of this activity, reinforcing the need for a specific fine tuned methodology: ● As a general expectation from the program managing agency, the methodology should encompass all necessary aspects so as the private operators can be firmly guided in the execution of the activities. Only small deviations will be allowed with respect to the instructed modalities of operation defined by the methodology ● Exact alignment on goals and specifications is seeked among stakeholders, including the operators ● The cadastral operation in La Mojana is a pilot project, so a precise definition is required of what should be done and how, in order to rigorously test methods, evaluate results, identify issues, find solutions and assess alternatives ● The regional context is considered as an opportunity for scale effect on productivity and costs ● Multipurpose approach ● Innovation integration and benchmarking ● Control of time of execution, of cost and of final quality of deliverables ● Conciliate generic and specific methodological aspects

3. CONTEXT

3.1. Stakeholders and organization

The methodology for the implementation of a multipurpose cadastre, land rights formalization and regularization operation in the region of La Mojana, Colombia, has been designed by IGN FI – GEOFIT for the DNP (Departamento Nacional de Planeación, Colombia), in the framework of a national cadastral modernization initiative supported by the Colombian Government and with the financing of the AFD (Agence Française de Développement), and with the participation of the Administracion Nacional de

Tierras (ANT), the Fondo Adaptación, the Instituto Geografico Agustin Codazzi (IGAC) and the Superintendencia de Notariado y Registro (SNR).

Various other pilot projects have been initiated in 2017, funded by the World Bank and USAID, to test different methodological approach in a municipal context. Summarized findings from final review of these projects can be found in CONPES 39519.

The Departamento Nacional de Planeación (DNP - National Planning Department) belongs to the Executive Branch of the public power and reports directly to the Presidency of the Republic. It is composed by entities responsible for directing, coordinating a service and granting the Government adequate information for decision-making. They have the same category as the Ministries, but they have no legislative initiative. The DNP is an eminently technical entity that promotes the implementation of a strategic vision of the country in the social, economic and environmental fields, through the design, orientation and evaluation of Colombian public policies, the management and allocation of public investment and their enforcement in plans, programs and projects of the Government.

The Agence Française de Développement (AFD - French Development Agency) is France’s inclusive public development bank. It provides financing and technical assistance to projects that genuinely improve everyday life, both in developing and emerging countries. In keeping with the United Nations Sustainable Development Goals, AFD works in many sectors — energy, healthcare, biodiversity, water, digital technology, professional training, among others — to assist with transitions towards a safer, more equitable, and more sustainable world : a world in common. Through a network of 85 field offices, it assists more than 2,500 development projects in 108 countries

IGN FI is a private company internationally renowned in the field of geographic information. Since it was founded in 1986, IGN FI has established itself as a leader in geomatic projects, working with the predominant policy makers, both public and private. The company has provided indispensable support tools for decision-making, particularly in the fields of land planning, the environment, agriculture, land administration, civil security, risk management, transport, tourism and more. IGN FI is part of the GEOFIT Group and the technical operator for IGN France in implementing its international projects. It also offers services tailored to client needs in its fields of expertise: geodesy, metrology, cartography /

9 To our knowledge, the final reports of these projects are not yet been published.

national spatial data infrastructure, databases, geographic information systems (GIS), themed portals, land management information systems for which it mobilizes highly qualified experts to advise policy makers, help and train end-users throughout the project’s phases, offering innovative solutions adapted to each client’s need.

The Instituto Geográfico Agustín Codazzi, IGAC, is the agency responsible for producing the official map and the basic cartography of Colombia; developing the national property register; creating the soil characteristics inventory; advancing geographic investigations in support of territorial development; training and educating professionals in geographic information technologies, and coordinating the “Colombian Spatial Data Infrastructure” or ICDE.

The Agencia Nacional de Tierras (ANT) has been created in 2015, as an effort to consolidate the new institutionality that will respond to the challenges of the post-conflict regarding the development of the rural areas and the implementation of the agreements signed within the framework of the peace process. It acts as the highest authority on rural land administration, and aims to consolidate and maintain the social ordering of rural land tenure and to improve the living conditions of the population, in accordance with the policy defined by the Ministry of Agriculture and Rural Development. Its functions and duties are defined in the decree 2363 of 2015, Article 4.

According to decree 2723, the Superintendencia de Notariado y Registro (SNR) missions are: orientation, inspection, monitoring and control of public services provided by the Notaries and Public Instrument Registrars, organization, administration, support, monitoring and control of the Registry Offices of Public Instruments, in order to guarantee the conservation and of public faith, legal security and administration of the public real estate registry service, so that these services can be developed according to the law and under the principles of efficiency and effectiveness

Fondo Adaptación is an agency under the Ministry of Finance and Public Credit of the Colombia that was initially created to manage the construction, reconstruction, recovery and economic and social recovery of areas affected by events arising from the phenomenon of La Niña in 2010 and 2011. In 2015, with the enactment of Law 1753 the Fund was credited with the additional power to implement comprehensive project risk management and adaptation climate change with a multisectoral and regional focus, That option will allows implementing projects aimed at generating structural changes in the territorial

development to reduce the risks associated with global environmental changes and strengthen the environmental policies and climate change management.

3.2. General characteristics of La Mojana

Located in the north of Colombia, in a strategic area connecting the center of the country with the Carribean coast, La Mojana is not strictly speaking an administrative region of Colombia, but constitutes a coherent geographical unit straddling the 4 departments of Sucre, Bolivar, Córdoba and Antioquia. The region is a vast wetland of 10,869 km², populated by 369,58710 inhabitants, located in the Mompos depression, contributing to flood damping for the Caribbean coast, by regulating the arms of two main rivers of Colombia: Magdalena and Cauca, originated by rains in the highlands of the Andes.

Photo 1: Typical Mojana landscape (taken by the authors, 2017) The region has an economic potential that is conditioned to a large extent by the hydrology, with hydrobiological resources, pastures, land suitable for agricultural, forestry activities, as well as a high water supply and biodiversity.

10 Fondo Adaptación, "Caracterización de la región de la mojana"

Despite this potential, from a social and economical point of vue, the region suffers a high level of poverty, with an incidence rate of multidimensional poverty of 83.8%11, and low efficiency of territorial public institutions. Indeed, the ecoregion of La Mojana has undergone an accelerated process of environmental, economic and cultural affectation generated by the inadequate use and occupation of the territory and by the inappropriate management of the river basins, combined with the pollution generated by the mining industry, use of pesticides, urban waste and inadequate management of basic sanitation systems. All these factors put together generated environmental and economic imbalances and a social discomfort that induced emigration, displacement and increased the vulnerability and exposure of population to natural disasters and food insecurity, with the consequent deterioration or loss of housing, infrastructure, services and limitations for transport and mobility.

These environmental, hydrological and social dynamics, as a whole, are placing in danger the sustainability of the valuable natural ecosystems that characterize it and limiting the socioeconomic development of the population settled there.

La Mojana has been the subject of dispute between different groups outside the law. Due to the presence of these groups, the La Mojana region has been hit hard by armed conflict and violence. For the period between 1999 and 2012 there were an average of 4,000 displaced persons per year. After the demobilization of the paramilitary groups, the emerging criminal gangs, increased the extortions, murders, kidnappings, generating new waves of forced displacement.

For these reasons, the region of La Mojana is part of the priority territorial development projects incorporated in the Plan Nacional de Desarrollo 2010-2014, which seek to advance differentiated policies that recognize the country's regional diversity, prioritizing attention in those more strategic to promote a more balanced development. The main objective is "to promote projects considered strategic to achieve greater convergence and regional development, as well as to contribute to achieving the objectives of greater growth, competitiveness and equal opportunities. Among these priorities is the environmental management and territorial development of La Mojana. In Chapter II of the PND12, it is proposed: "Planning and ordering of the productive use of the soil through the implementation of strategies for

11 Fondo Adaptación, "Caracterización de la región de la mojana" 12 Plan Nacional de Desarrollo 2010-2014

reconversion of land use to increase regional productivity and protect and restore ecosystems, with special attention to the program of integral development for La Mojana and Zoning ".

3.3. Cadastral situation

The inexistence of a multipurpose cadastre in Colombia leads to unnecessary public administrations management cost overruns for the country, resulting from repetitive, inconsistent and untimely actions due to the insufficiency and lack of updating of cartographic and cadastral data. Even in the traditional approach, the current cadastre does not cover the entire territory and its data are not up-to-date or reliable, particularly because of the difficulties involved in obtaining essential cartographic elements and access to the territories.

According to CONPES 3859, the multipurpose cadastre is presented as an opportunity to solve problems related to land management that have afflicted Colombian society for decades. The above, because this powerful tool allows to identify, characterize and accurately measure the properties that make up the territory; and contributes to guarantee the legal security of the property, and to establish the vocation of the soil. It is, to that extent, an irreplaceable tool for planning and information to promote the proper organization and productive use of territory, the restitution and formalization of property rights, and the management or reduction of conflict over land use, among other aspects, and useable for subjects dealing with agriculture, urbanism, mining transport and ecology.

The cadastre is also essential to optimize the financial management of territorial governments. On the income side, it directly improves the collection of property tax, while, on the expenditure side, it allows to improve the formulation and implementation of policies (urban-rural), and allocate investments more efficiently, even though its purpose is not limited to fiscal aspects

Along with the establishment of an exhaustive land tenure registry, correctly linked to the cadastral database, it brings a guarantee of the legal security of the property (in particular for restitution, formalization and titling tasks).

In La Mojana, there is a significant gap between the number of property registrations in the cadastre archives (34,245) and the number of parcels registered at the Notarial and Registry Office (55,482). This represents an obsolescence rate of 51%. According to a diagnosis of land tenure conducted by Fondo Adaptación in 2014, it also turns out that half of the lands is in conflict of ownership (either because their

ownership falls on different people than the owners, or because those who own the property cannot produce all the elements necessary to register the property or they present inconsistencies).

Additionally, as part of our study, an assessment of the current state of cadastre and base mapping information over La Mojana has been conducted. Its most outstanding findings are summarized below. The current cadastral database: ● Does not reflect the detailed shape of the properties. ● Does not cover the entire territory, presents gaps and overlaps. ● I many places, shows a low geometric precision of boundaries location and shape of the parcels ● Is highly inconsistent with the information in the land registry. ● Does not allow the interoperability of information systems. ● Presents a lack of maintenance and update for 20 years over some sectors. In the least outdated sectors, most recent information is at least 5 years old. ● Has outdated reference mapping information. ● There is no usable geographical information to support a cadastral update through massive sweeping techniques

From the facts presented in this chapter, it appears clearly that the current cadastre and land registry in La Mojana need to be considerably worked over, in order to comply with the specifications and goals of the multipurpose cadastre program.

4. DESCRIPTION OF THE METHODOLOGY

4.1. General approach

A key aspect of this methodology is to leverage the regional approach, considering the entire region as a whole, independently of the administrative divisions or rural/urban area, in order to design a massive parallelized regional cadastral production model that can reach the objectives of the program in the shortest time realistically possible and comply with the reglementation in place, as well as being strictly articulated around the POSPR directives (Plan de Ordenamiento Social de la Propriedad Rural).

Other important drivers are listed below:

● Pilot project approach, but at the same time keeping in mind that the outputs of the operation should comply 100% with the specifications (sort of a dichotomy here). ● Acknowledge specific conditions of the work area: large territory, complex cadastral existing situation, major lack of updating and consistence between registry and cadastre, physical conditions very adverse, post conflict land situations, predominant poverty and adjust methodology accordingly. ● Prioritize simplicity of operation, streamlined workflow. ● Always keep in mind productivity, quality and cost. ● Primary focus on affected population satisfaction. ● First be creative, then be realistic. Design an ideal and efficient model of operation, share with stakeholders and negotiate with all of them to reach a general agreement on acceptable loss of productivity in exchange of compliance with legacy constraints. ● Iterate, iterare, and iterate once again till reaching alignment with stakeholders. ● Share information, draft versions, listen, communicate and meet from beginning to finish. ● Integrate technology and innovation as required for an ideal operation and adjust if necessary in function of context limitation (logistics, connectivity coverage, energy availability, lodging, transportation). ● Review regulatory texts. Acknowledge constraints (legal, reglementary, etc.). Identify points of friction between ideal model of operation and limitations introduced by the constraints. Derive a reasonable model complying with non modifiable constraints and initiate action in direction of managing agencies to motivate reglementations reform in order to flexibilize adverse specifications. ● Thoroughly review existing data (legal, cadastral and cartographic) and precisely assess its quality. Do not transfer existing data organization and correction process to the operator, just let the operation flow and deal with possible historical data issues on demand, as required. ● Use available literature, local/international experts knowledge and experience, as well as other programs results for orientations and ideas. ● The methodology should be tuned for the territory at stake and the diversity of land tenure situations comprised in it. But at the same time should be a specialization of a general one, applicable at national level.

● Include self monitoring process for permanent evaluation of the benefits and costs of the methodology and demonstrate value of deeper accommodation/flexibilization/reform of technical/legal/other specifications. ● Take into account the supervision: define coherent methodology for the supervision process. Do not simplify supervision as a mere QC or monitoring task, it is a piloting, guidance and following activity as much as those. ● Streamline operations, do not wait for extensive historical data preparation and cartographical preparation, obviate heavy tasks as most as possible (terrestrial survey network, etc.). ● (Pick ideas from other sectors of activity: industry, IT, etc.)

4.2. Design process

The conception of the methodology has taken place over a 4 months period ending in september 2017. Frequent face-to- face meetings have been convened between AFD, DNP, other local agencies such as IGAC, ANT, SNR, etc and IGN FI-GEOFIT group of experts throughout the execution of the study. A collaborative documentation management web platform has been put into place to guarantee an open flow of communication and provide access to the documentation for internal and external actors.

A preliminary version of the methodology has been presented at a conference organized by the Externado University in Bogotá, "Multipurpose cadastre to the debate", on september 26th, 2017.

Four iterations of the methodology have been produced. Each of them has been submitted to a review and evaluation process by AFD supervision expert as well as DNP's counterpart. The last version of the methodology, after final review and edition by the local agency has been approved by the DNP on February 5th 2018.

We wish to thank teams from DNP, ANT, AFD and other local agencies for their dedication and the quality of contributions that they have brought to the study. A particular appreciation goes for DNP project managing team for their availability, openness to suggestions and professional approach.

5. BUILDING BLOCKS

5.1. Preamble

Only some fields of activities are addressed in the list of building blocks described in this chapter. These are the ones that have been considered most impactful to some extent and also most receptive to change in the timescale and reach of our work, in the context of the region of interest. As a general principle, the study has tried to follow a no nonsense / pragmatic approach: be reasonable on the grade of change that can be assimilated through a complex array of regulations and organizations, favor a smooth path of evolution, avoid adding stress to the general process.

The list of topics relevant to the methodology is presented below, along with an indication of those that are described in this paper and an explanation for those that are not:

Covered topics Table 1: List of covered topics

Topic Coverage in the paper Observation

Review of existing information Covered in the paper Addressed in a specific data review report

Review of specifications and Covered in the paper Only those specifications related suggestions of improvements to physical cadastral survey have been addressed. In other fields, it has been considered that there is no practical opportunity for evolution in the timeframe for preparation of the operation

Socialization Some relevant points are shortly Most of the socialization process described in the paper in rural areas is driven by a method defined by the ANT as part of the POSPR approach. There is an extensive chapter dedicated to this field in the methodology.

Legal processes Not covered in the paper Addressed in the methodology, heavily constrained by regulations and administrative rules

Land valuation Not covered in the paper Addressed in the methodology but not open to much variation due to the presence of preimposed models in the specifications

Workflows and processes Covered in the paper Addressed in the methodology

Information technology Covered in the paper Addressed in the methodology

Organization Not covered in the paper A suggested scheme of organization is included in the methodology

Project Management Not covered in the paper Addressed in the methodology. mostly based on proven best practices, from standardized project management methodologies

Model of integral operation for Covered in the paper Addressed in the methodology massive production and quality control

Tools and techniques for field Covered in the paper Addressed in the methodology operations

Inspiration and knowledge transfer from other sectors of activity Apart from existing literature in land management matters, combined knowledge and experience of the group of experts, guidance and suggestions by various stakeholders, the study has sought to pick ideas from other fields. The intention was to detect possible analogies in issues across apparently non related fields of expertise and identify possible and original solutions applicable to the methodology. Mainly, two industrial sectors have been retained as valuable in their approach to production of standardized products in large amounts: ● Mass production industries, where the concepts of batch and flow production through logical division of a complex task into multiplication of smaller standardized and manageable ones are highly transferable to the production of deliverables of a massive land regularization project; ● Software development sector, because the concepts of agile management of the development of a product, capable of adapting the process and the result to changing conditions during the execution of the production process consonate with similar challenges in land tenure regularization processes.

5.2. Cadastral massive production and quality control

A model inspired from industrial mass production processes has been designed. It integrates production control and quality control, meaning the performance of the production system and the quality of the products are closely monitored at every step of the process, in order to guarantee compliance with the specifications. To be able to carry out the operation according to this model, a comprehensive set of specifications has to be defined prior to execution, this is a goal of the preparatory phase. Specifications should encompass characteristics of the product, derived and constrained by local regulations and standards.

Expected time of production corresponding to each step of production is specified as well, so as deviations from the standard may be detected early on, and corrective measure can be taken.

Note: Of particular importance is the definition of the products themselves, their parts and content. In our case a detailed description of the products is found in the methodology. Formats and composition are defined in accordance with expectations of the program and of the regulating agencies. Mostly, external entities in charge of validating and processing the information are not digital ready yet. Nevertheless, the core of the production process in our methodology is based on the concept of digital records from end to end, providing for exportation to analog supports for sake of exchange of information with entities not capable of digital processing. For those that have this capability, exchange of information with the operator is based on existing standards in land administration matters, as LADM for example.

Conceptual diagrams13 of mass production modelization and general workflow of operations are presented below, showing how the usual stages of massive cadastral production take place in the model:

13 Most of the diagrams presented in this paper are extracted from the methodology document. Their texts are in spanish, which was the primary language of the study.

Figure 1: Massive production model

Figure 2: General workflow of operations As can be seen in the diagrams, monitoring and quality control is conceived as an integral part of the production process. Whenever feasible, productivity should be prioritized, meaning that reasonable, fit- for-purpose quality standards are sufficient. Quality control processes should be applied according to existing standards for control of batches of similar products, using sampling techniques as specified in ISO-2859.

It is not necessary to aim for higher levels of quality than a reasonable baseline complying with strategic and social objectives of the program, otherwise productivity and cost-effectiveness would be affected. This often means that some relaxation of the traditional cadastral standards is necessary, although not easily obtained, particularly in technical matters, like tolerances for topographical survey accuracy. In our approach, early compliance with quality standards leads to low rate of return to field work. This gives way to a streamlined process and a single flow of operation with constant progress from start to end.

5.3. Workflow design

Each part of the production chain mobilizing a coherent set of processes (called "production unit" in this document) is detailed as a workflow, including a diagram and a description of the procedure, guiding the operator in the realization of the operation. There are really two main production models: one for rural areas an another one for urban areas. They are mostly similar, the rural model is considered as the main one, only specific parts and variations of the urban one are specified in the urban model.

The production units are: ● Preparation ● Socialization ● Cadastral sweeping ● Data Integration ● Data processing ● Legal analisis ● Land valuation ● Products preparation and dissemination ● Monitoring ● Quality Control

Note: production units are a conceptual grouping of activities, often corresponding to a particular stage in the global production chain but they may not necessarily match an organizational unit.

Examples of workflows defined in the methodology:

Figure 3: Preparation

Figure 4: Legal analysis of land tenure information

5.4. Simplification and Productivity Optimization

Simplification Various axis of simplification have been proposed in the methodology, enabling productivity optimization. Their identification results from an analysis of points of friction and bottlenecks14 in the deployment of the operation, as specified by current regulations. These are:

- Rationalization of the production process: this point has already been explained in section 5.2. "Cadastral massive production and quality control".

- Simplification of technical specifications: it has already been discussed earlier that current specifications are not entirely favorable to massive cadastral operations. In particular, the range of precision for topographical survey required by the standards tend to increase time, costs and rate of failure of field tasks. The methodology includes a side study on parcel distribution characterization with regards to parameters participating in the definition of the applicable precision according to standards. As a conclusion of this study we propose a simplified matrix of tolerances that is mainly compatible with the standards as well as easier to put in practice in field tasks and compatible with highly productive innovative survey techniques (i.e. UAV based photo- identification, satellite based differential GNSS positioning in real time, direct integration into the distributed information system of multipurpose data collected in the field by means of digital devices). Below are some illustrations of the aforementioned characterization study:

14 It is somewhat comforting to observe that the recommendations made in the methodology, though issued before availability of final reviews of the pilot projects, based on our own experience and analysis, are aligned on project pilots final assessment findings (see CONPES 3951 "Lessons learned")

Figure 5: Parcels distribution

Table 2: Parcels characterization

Figure 6: Zones under special regularization regimes (land restitution)

Table 3: Proposed relaxed precision specifications

Horizontal accuracy Survey method (2DRMS)

Photo-identification of well defined boundaries 2 m

Photo-identification of not well defined boundaries 4 m

Photo-identification of boundaries in protected, 10 m ecological and non productive areas

Parcels in micro-focalization areas of land tenure Submetric formalization

Parcels under restitution process Submetric

Real time GNSS differential survey Submetric

- Sectorization of field operations: this is done through a preliminary study of the territory that estimates the field workload by uniform areas (hexagonal cells or any regular geometric form) over the whole territory, followed by a formation of sectors for batches and sequences of field campaigns by grouping cells in such a way that total workload is equivalent by sector. The sweeping process is carried out by occupying successive adjacent sectors, leading to a predictable and controllable rate of progress. One of the key aspect of this method is that a given time there is only one line of operation, bringing an economy of scale on efforts and cost of common resources. Administrative limits should be obviated as much as possible. Major topographical features and logistics issues have to be taken in account to modulate the model, so as derived difficulties are smoothed out instead of staying in a collision path with respect to the deployment of activities in the field. Example of application of the sectorization technique:

Figure 7: Hexagonal partition of the territory and total workload estimation

Table 4: Sequencing of field campaigns

1 2 3 4

5 6 7 8

Pragmatic approach to existing data preparation: through the study of existing information in land register and cadastre, it has been determined that there is a major quality issue with respect to cadastral and register databases. Main deficiencies are: absence or obsolescence of information, discrepancies in parcels position and area, missing link between cadastre and register, unavailability of digital information, outdated reference mapping information, inconsistency of parcels delineation (ex: overlaps), leading to a very low level of confidence on land tenure information. In traditional approaches of regularization operations, it is customary to proceed to a thorough collection, preparation and organization of the data previous to engagement of the field operations. The goal of such preparation is to establish a preliminary mapping of the parcels and constitute a preliminary assessment of cadastral and land tenure situation of each known parcel, in the view that field operations would use and complement this information. In our analysis, this preparation phase should be arbitrarily time limited to a reasonable amount of time, typically one month. The main goal should be limited to collect the information and make an inventory of the data. There is nothing to be gained in engaging in a time consuming effort to try to organize the information and establish cadastre/register relations if its quality is not adequate for that task.

Furthermore, counting on this information to constitute a first version of the cadastral and land tenure file of parcels to be visited on the field is only adding confusion to the job, given that in many cases, the reality in the field is a distant evolution from it or even something totally different. Therefore, the methodology recommends to dedicate a measured effort to that task, with a simple goal: to establish an inventory of the existing information. It is then optimal to defer the conciliation between existing records and field information to post processing tasks, where automatization can be applied, leaving the field operations flowing normally on their own pace.

5.5. Socialization

As already mentioned earlier, in the context of this operation, socialization tasks are expected to be carried out following the approach defined by the local agencies, in the framework of POSPR methodology. In our view, the approach is sound. It is inspired by proven practices in this field. A particular care has to be put on correct execution of the socialization activities in accordance to defined guidelines. As a improvement of this approach, our methodology proposes to add a micro socialization component, whose objective is the constant maintenance of the social contact and communication channel with beneficiaries at the scale of a particular sector of operation (no more than a few tens of cadastral sweeping teams) and during the whole duration of field operations.

5.7. Information Technology

Figure 8: General conceptual architecture of the information system

Information technology is a key component of a multipurpose cadastre approach. The implementation of a multipurpose cadastre information system is based on a few fundamental principles, described below.

Interoperability Interoperability can be facilitated by the implementation of an ETL (several options are available, from commercial vendors like FME or open source solutions like Talend Open Studio) which allow to manage the data transformations in models established within the framework of the project.

Figure 9: Data workflow

The choice of software is important and must be guided by its ability to support industry and community standards, development libraries of major programming languages, integration with the most used data analysis and management tools on the market. As such, several software like QGIS (Open Source), or Arcgis (Commercial) are excellent candidates. In terms of web visualizations, Open Layers, MapServer Geoserver or ArcGIS Server can be considered as excellent, proven and viable options

Finally, the maturity of the technologies means that this interoperability, particularly in multi-stakeholder systems, is driven by the availability of web services, geographic or not, widely standardized for many years.

Data preparation and integration The in-depth analysis of the data made available for the study revealed a disparity of information held by administrative bodies at national or local level such as the FDA (Foundation for Adaptation Fund), the IGAC (Instituto Geográfico Agustin Codazzi) or the IDEAM (Institute of Hydrology, Meteorology and Environmental Studies), but also by associations or private groups. The information system must be capable of integrating these informations and to associate to each of them the category to which it pertains.

Tools and services One important added value offered by a multipurpose cadastre information system lies not only in the rational structuring and organization of the data but also in the provision of common tools (API or services) that allow to visualize, create and modify the data, complying with the data model rules as well as the various constraints which apply on each layer (topology, procedure of update, additional information to join). In this way, a cadastre with such tools allows the establishment of a almost totally distributed production chain, which can be monitored and automated, mitigating the risk of loss of online information in case of failure of a component or a network link.

AI techniques may enrich the available set of tools, by providing domain specific offering intelligent digital assistants, automatic error correction and pattern detection procedures that can improve the productivity and reliability of the production chain.

Moreover, the current web technologies have reached their full maturity since they allow the interconnection of systems, geographic or not, through widely standardized web services (OGC) and very frequently used, including Colombia where the IGAC by example provides WMS or WFS services to broadcast the map data.

Distribution and deep interconnection

A distributed architecture based on the interconnection of components has many advantages:

• The data is managed by its producer or by the organization that is responsible for it. This makes it possible to be certain that the data is as up to date as possible, and has not undergone any alterations. • The data is accessible by any person or system authorized to do so. This allows you to control access to data while providing the widest service. • The data is not disseminated in an anarchic way and it is extremely easy to access because it is located on identified and known access points.

The counterpart of such a system is that users must have a stable, high-quality Internet connection, which is not necessarily the case everywhere, even though it may be assumed that a sufficient connection. From then on, a hybrid system can be set up, with the creation of local servers connected to the central server

and serving as relays. This allows synchronization between servers at any time, when the connection allows, or even manual transfers. Thus, the data is not up-to-date in real time, but standardized data exchange procedures ensure the reliability of the information. Once again, the user knows what data he is using, how reliable he is and how much he is updating.

A similar system has been set up for example by GEOFIT-IGN-FI in Ecuador, where the rural land registry was managed by municipalities connected to a central server and using web services as much as needed. In the same way, architectures operating in deferred synchronization mode were set up in the framework of various land management projects in Senegal

Classification and Data modelization The analysis of the data available within the framework of the project made it possible to draw up a first classification conceptualized by the diagram below, which, if validated and accepted by all, could serve as a guide for the implementation of a multi-purpose cadastre.

Figure 10: Thematic classification of the data

The LADMCOL model should be applied wherever deemed fit, particularly in the context of the data exchange processes between the information system of the operator and those of the supervision and relevant stakeholders. Nevertheless, some production processes may require a specific productivity

oriented modelisation of the information, different from LADM. The system will be capable of receiving various conceptual models, in order to be more flexible and driven by production and operational considerations. Precise procedures will be established to implement translation from one model to another.

Provision of tools The study that is the subject of this document was not intended to implement tools to exploit the multipurpose cadastre. However, we wish to present here some principles based on concrete achievements (projects in Tanzania and Uganda) that have enabled the establishment of effective and useful tools, so that they serve as inspiration for a future development, especially in the framework for the implementation of the Bases Plan Nacional de Desarrollo 2018-2019. This plan provides in particular for its orientation objectives, namely “Create the conditions so that land tenure and productive planning enable agricultural and livestock development Productive inclusion and legal security” “Modernize, technify and consolidate sectoral institutions and inter-institutional coordination and articulation to promote the productive agricultural and rural transformation at territorial scale” “Enhance public management platforms :The IGAC will develop an interoperable, integrated and open standards information system and public domain with the rest of the related institutions, aimed at strengthening the formalization processes and multipurpose cadastre registry”

Figure 11: Web cadastral map developed by Geofit for the ILMIS project in Tanzania

● The spatial representation of parcel data is essential for a modern land administration system. Spatial data are managed through the cadastre module tool. It is a GIS web map tool embedded into the project. The map is displayed in transactions to display spatial data in read only or in edition mode, depending of the user’s rights. ● Attributes and geometries of Spatial units, representing farm or plot, are registered in the digital Cadastral Map stored in the unified LADM database. ● All the spatial data are stored in the National Coordinates Reference System ● On map, the Cadastral map is displayed in 3 GIS layers: polygons, lines and points of parcels. ● In GIS, controls made on map by the system are topological: overlap (different as encroachment), hole, undershoot, intersection… The cadastre module does some controls (validations/verifications) during the import of surveyed parcels to help the SMD on verification, negligence, deliberate intention or lack of adherence to good practices (some warning and error messages are displayed, topology errors are also displayed on map) ● The life of Spatial units are managed through a status (active, archived, pending, previous) and the linkage between parent and childs are made through the transaction. ● The allocation of parcel is also managed through a status: for untitled parcels, when approved, the allocation status is vacant

5.8. Innovative techniques, tools and devices

Regarding technology in general, the production model is centered around a concept of digital information collection, processing and integration from end to end. In order to fulfill this objective, digital technologies are deployed everywhere in the production chain: - Tablets and applications for data collection on the field - Connected peripherals for specialized tasks, such as topographical survey and documents capture - Within the information system, various processing tasks may be assisted by big data and IA techniques (i.e. pattern recognition, automated quality control, conciliation, legal analysis) - A massively distributed information system, including interconnection of field devices and data synchronization over the whole information system - Survey techniques mainly based on photo interpretation, in some areas relying on UAV flights, or real time satellite based differential GNSS positioning (realtime)

It should be mentioned that most of these technologies are recent but already well known, mature and industrialized enough to be considered ready for production. As a matter of fact, we consider that the innovative aspect of the methodology is probably more related to innovation integration in a seamless and efficient chain of production than to one particular innovation as such. Once more, the pragmatic approach is key: whatever works and brings productivity gain and cost reduction is an opportunity to be seized.

5.9. Productivity and cost

At the end of the study, a preliminary modelization of unitary cost of regularization per parcel and rate of production, attainable by deployment of our methodology, has been established. It was mostly based on heuristics and average values of same parameters as found in similar operations. Then, a second and more refined model has been designed, based on estimated market values applied on a precise model of production as specified by the methodology. The second model incorporates a total of close to 150 variables.

It can be said that final estimation of costs and productivity, as computed by this model, are in line with commonly accepted values for similar operations, albeit on the lower part of the price interval. This has to be taken with a grain of salt, because in our experience, there are hardly no two directly comparable land tenure regularization operations due the diversity of contexts and local conditions. Nevertheless, the cost and productivity model is provided as a baseline and a tool for relative costs variation estimation in case of changes in market values or methodological approach. Additionally, it can assist in costs recalculation and fair compensation evaluation for the operator, during the execution of the regularization operation, when significative differences in key cost generation drivers appears, such as parcel density.

7. WRAPPING IT UP

The main characteristics of the methodology are summarized in the illustration presented below:

Figure 12: Methodology infographic

8. PERSPECTIVES

8.1. Alignment between the methodology and findings (lessons learned) of the first pilot projects

The document CONPES 3951 (2018/12/26) issued by the DNP, titled "Concepto favorable a la nación para contratar operaciones de crédito externo con la banca multilateral hasta por usd 150 millones, o su equivalente en otras monedas, destinados a financiar parcialmente el programa para la adopción e implementación de un catastro multipropósito rural-urbano" (Concept favorable to the nation to contract external credit operations with the multilateral bank up to usd 150 million, or its equivalent in other currencies, intended to partially finance the program for the adoption and implementation of a rural-urban multipurpose cadastre) includes a few key points similar to those of the methodology described in this paper.

We believe that there is a general alignment between the premises and orientations of our methodology and the conclusions of first pilot projects completed in the framework of the multipurpose cadastre program in colombia. This gives a solid baseline for the adoption of the methodology for the next projects to be launched under this initiative, in a regional context. Some of these points of convergence are presented below:

See CONPES 3951, p. 61:

Spanish original version: La importancia de definir y resolver, mediante una reflexión interinstitucional y la toma de decisiones, la situación evidenciada en el piloto entre dos aproximaciones del catastro: por una parte, el énfasis del enfoque instrumental centrado en las precisiones del levantamiento planimétrico predial y procesos exigentes de revisión de la condición jurídica; y, por la otra, la visión de un catastro construido en función de las necesidades del ciudadano y los usuarios.

English traduction: The importance of defining and resolving, through interinstitutional reflection and decision-making, the situation evidenced in the pilot between two approaches to the cadastre: on the one hand, the emphasis of the instrumental approach focused on the precisions of the planimetric survey and the demanding processes of review of the legal status; and, on the other, the vision of a cadastre built according to the needs of the citizen and users.

See CONPES 3951, p. 61:

Spanish original version: Si bien las metodologías presentadas y probadas (de operación e interventoría) son una buena base para desarrollar una metodología general, es necesario especificar variantes metodológicas que sean aplicables a territorios diferenciados (p.ej. territorios étnicos, territorios localizados en áreas protegidas, catastro de bienes públicos), dada la heterogeneidad del territorio nacional y teniendo como base las salvaguardas definidas y avaladas por el Gobierno nacional para la intervención en el territorio. Esto implica contar con una metodología, o variantes de una principal, que tenga un carácter diferencial por las características municipales y los actores presentes en su territorio.

English traduction: Although the presented and tested methodologies (of operation and supervision) are a good base to develop a general methodology, it is necessary to specify methodological variants that are applicable to differentiated territories (eg ethnic territories, territories located in protected areas, land registry). public goods), given the heterogeneity of the national territory and based on the safeguards defined and guaranteed by the national government for intervention in the territory. This implies having a methodology, or variants of a principal, that has a differential character due to the municipal characteristics and the actors present in its territory.

See CONPES 3951, same page:

Spanish original version:El asunto de las precisiones ha demandado, a lo largo del piloto, inmensas energías que parecen haber conducido a la dificultad derivada de la primacía del técnico y lo que podría constituirse en subordinación de los problemas de la sociedad que la política pública de catastro multipropósito intenta resolver o contribuir a resolver. Esta lección es también útil para promover en la expansión la selección de conjuntos de municipios y regiones en la que se implemente una metodología y un modelo de operación regional que lleve a la reducción de costos y tiempos operativos y luna logística distinta a la de la aproximación municipal.

English traduction: The matter of the precisions has demanded, throughout the pilot, immense energies that seem to have led to the difficulty derived from the primacy of the technician and what could be constituted in subordination of the problems of the society that the public policy of multipurpose cadastre tries resolve or contribute to solve.

This lesson is also useful to promote in the expansion the selection of sets of municipalities and regions in which a methodology and a regional operation model that leads to the reduction of costs and operating times and logistics moon other than the approximation is implemented. municipal.

See CONPES 3951, p. 63: Spanish original version:Resulta necesario que las instituciones realicen el trabajo previo de compilación y organización de la información prexistente de áreas a intervenir con la política, evitando trasladar estos procesos a operadores privados. La aproximación al territorio hace necesario un trabajo previo sobre la información jurídica al interior de las entidades competentes, que permita organizarla, complementarla y depurarla previamente. A la vez, toda la información que se entregue a un operador debe estar acompañada de un diccionario de datos y, de ser posible, de guías y complementaciones para su lectura e interpretación. La ausencia de información o la entrega en diferentes momentos o desintegrada afecta la operación. Frente a esto, es indispensable que las entidades no solo trabajen previamente en su información, sino que procuren integrarla antes de ser entregada a los operadores.

English traduction: It is necessary that the institutions carry out the previous work of compiling and organizing the pre-existing information of areas to intervene with the policy, avoiding to transfer these processes to private operators. The approach to the territory makes necessary a previous work on the legal information inside the competent entities, that allows to organize it, complement it and purify it previously. At the same time, all the information that is delivered to an operator must be accompanied by a data dictionary and, if possible, guides and complements for its reading and interpretation. The absence of information or delivery at different times or disintegrated affects the operation. Faced with this, it is essential that entities not only work previously on their information, but also try to integrate it before being delivered to the operators.

8.2. Perspectives

This study hopes to propose rational methodological options on how to improve massive cadastral operations at regional and national level through the adoption of well-known principles of mass production processes and available technological innovation, reasonable lowering of constraints (technical, institutional, ...), giving way to execution time and operating costs reduction, without jeopardizing quality.

Expected benefits from the methodology will be tested through the realization of the first multipurpose regional cadastre establishment project, expected to be initiated around mid 2019 in parts of La Mojana region.

8.3. Generalization

This methodology will have the opportunity to be applied, refined and generalized in the national context in Colombia in the framework of the extension of the multipurpose cadastre program over a major part of the national territory: 52 municipalities, 288 000 rural parcels, timeframe 2020-2024 (CONPES 3951).

As already said, a proof of concept will start mid 2019 with the first operation covering part of the region of interest (Regional methodology on two municipalities of La Mojana).

8.4. Standardization

Other than the application of the methodology in the Colombian context, a standardization of all or parts of it, after having been tested in real conditions, improved and its benefits proven, may be considered in the future. One appropriate vehicle for this could be a working group of experts inside an international entity like FIG, worldwide academic associations, World Bank, UNO, etc.

9. GLOSSARY

AI: Artificial Intelligence AFD: Agence Française de Développement (French Agency for Development) ANT: Agencia Nacional de Tierras DNP: Departamento Nacional de Planeación (Colombian National Department of Planning) GEOFIT: French company in charge of the study in association with IGN FI IGAC: Instituto Geográfico Agustín Codazzi IGN FI: French company in charge of the study in association with GEOFIT. Leader of the consortium. POSPR: Plan de Ordenamiento Social de la Propiedad SNR: Superintendencia de Notariado y Registro IGN FI

10. REFERENCES

ANT (2017). "Intercambio de experiencias en barrido predial México-Colombia".

Congreso de la república de colombia (Ley 1753 de 2015). Plan Nacional de Desarrollo 2014-2018 "Todos por un nuevo país".

DNP (2009). CONPES 3585 "Consolidación de la política nacional de información geográfica y la infraestructura colombiana de datos espaciales - ICDE".

DNP (2010). CONPES 3641 "Política nacional para consolidar la interrelación del catastro y el registro".

DNP (2016). CONPES 3859 "Política para la adopción e implementación de un catastro multipropósito rural-urbano"

DNP (2017). Propuesta financiación catastro multipropósito.

DNP (2018). CONPES 3951 "Concepto favorable a la nación para contratar operaciones de crédito externo con la banca multilateral hasta por usd 150 millones, o su equivalente en otras monedas, destinados a financiar parcialmente el programa para la adopción e implementación de un catastro multipropósito rural-urbano".

DNP (2018). "Bases del Plan nacional de Desarrollo 2018-2022, pacto por Colombia, pacto por la equidad".

Thierry Hoza Ngoga (2018). Rwanda's Land Tenure Reform, Non-existent to Best Practice.

Mathilde Molendijk. Land and Peace in Colombia: FFP Methodology for Field Data Collection and Data Handling. Presented at 2018 World Bank conference on land and poverty.

Luis Molina López (2017). Cadastre and territorial planning: challenges to implement the agreements of Havana. Sandra Rodriguez (2017). Analysis of the implementation of multipurpose cadastre in colombia based on international experiences. Presented at 2017 World Bank conference on land and poverty.

Dimo Todorovski (2018). Land administration in ecuador; current situation and opportunities with adoption of fit-for-purpose land administration approach. Presented at 2018 World Bank conference on land and poverty.

Ian P. Williamson (2000). Best practices for land administration systems in developing countries.

Ian P. Williamson (2010). Land administration for sustainable development.

11. LIST OF FIGURES

Figure 1: Massive production model (p. 18) Figure 2: General workflow of operations (p. 19) Figure 3: Preparation (p. 21) Figure 4: Legal analysis of land tenure information (p. 21) Figure 5: Parcels distribution (p. 23) Figure 6: Zones under special regularization regimes (land restitution) (p. 24) Figure 7: Hexagonal partition of the territory and total workload estimation (p. 25) Figure 8: General conceptual architecture of the information system (p. 28) Figure 9: Data workflow (p. 29) Figure 10: Thematic classification of the data (p. 31) Figure 11: Web cadastral map developed by Geofit for the ILMIS project in Tanzania (p. 33) Figure 12: Methodology infographic (p. 35)

12. LIST OF TABLES Table 1: List of covered topics (p. 15) Table 2: Parcels characterization (p. 23) Table 3: Proposed relaxed precision specifications (p. 24) Table 4: Sequencing of field campaigns (p. 26)