REVIEW OF NATIONAL LAWS AND POLICIES THAT SUPPORT OR UNDERMINE INDIGENOUS PEOPLES AND LOCAL COMMUNITIES SOUTH AFRICA “Land is the foundation of the lives and cultures of Indigenous peoples all over the world… Without access to and respect for their rights over their lands, territories and natural resources, the survival of Indigenous peoples’ particular distinct cultures is threatened.” Permanent Forum on Indigenous Issues Report on the Sixth Session 25 May 2007 Authored by: Tracy-Lynn Humby, Ademola Oluborode Jegede, Laureen Manuel and Naana Halm. Published by: Natural Justice in South Africa Edited by: Lee Middleton and Stephanie Booker Date: December 2014 Cover Photo: The Karoo. © Stephanie Booker 1 TABLE OF CONTENTS Page LIST OF ACRONYMS................................................................................................ 6 INTRODUCTION..................................................................................................... 8 PART 1: COUNTRY, COMMUNITIES & INDIGENOUS PEOPLES’ AND LOCAL COMMUNITIES’ RIGHTS.............................................................................. 9 1.1 COUNTRY ................................................................................................... 9 1.2 COMMUNITIES & ENVIRONMENTAL CHANGE............................................. 10 1.2.1 INDIGENOUS PEOPLES, LOCAL COMMUNITIES AND LIVELIHOOD STRATEGIES…………………………………………………………………………………………………. 10 1.2.2 DRIVERS OF BIODIVERSITY LOSS AND LAND/RESOURCE APPROPRIATION...... 12 1.2.3 THREATS TO CULTURAL AND LINGUSTIC DIVERSITY…………………………………….. 13 1.2.4 INITIATIVES TO CONSERVE AND SUSTAINABLY USE BIODIVERSITY................. 14 PART 2: HUMAN RIGHTS ........................................................................................... 15 2.1 HUMAN RIGHTS LAWS AND POLICIES.......................................................... 15 2.2 STATE AGENCIES MANDATED TO DEVELOP AND IMPLEMENT LAWS AND POLICIES........................................................................................................... 21 2.3 EXTENT AND EFFECTIVENESS OF IMPLEMENTATION……………………………………. 21 PART 3: LAND, FRESHWATER AND MARINE LAWS & POLICIES……………………………… 21 3.1 LEGISLATION RELEVANT TO COMMUNITY TERRITORIES, TITLE OR TENURE & SUB-SOIL RESOURCE RIGHTS……………………………………………………………………… 22 3.2 STATE AGENCY MANDATED TO DEVELOP AND IMPLEMENT LAND/FRESHWATER/MARINE LAWS AND POLICIES…………… 26 3.3 RECOGNITION OF NATURE OR ABORIGIONAL TITLE…………………………………. 27 3.4 CUSTOMARY LAW &PROCEDURES FOR LOCAL STEWARDSHIP OR GOVERNANCE….…………………………………………………………………………………………. 27 PART 4: PROTECTED AREAS, ICCAS AND SACRED NATURAL SITES………………………… 28 4.1 INDIGENOUS PEOPLES’ AND LOCAL COMMUNITIES’ CONSERVED TERRITORIES AND AREAS (ICCAS)……………………………………………………………… 28 4.1.1 THE RANGE, DIVERSITY, AND EXTENT OF ICCAS…………………….…………………….. 28 4.1.2 COMMUNITY GOVERNANCE AND MANAGEMENT OF ICCAS ………………………. 28 4.1.3 MAIN THREATS TO LOCAL GOVERNANCE…………………………………………………….. 28 4.1.4 MAIN INITIATIVES UNDERTAKEN TO ADDRESS THE THREATS TO ICCAS………. 29 4.2 PROTECTED AREAS ..................................................................................... 29 4.2.1 LAWS AND POLICIES THAT CONSTITUTE THE PROTECTED AREA FRAMEWORK………………………………………………………………………………………………. 29 4.2.2 DEFINITION OF PROTECTED AREA.................................................................... 29 4.2.3 STATE AGENCIES MANDATED TO DEVELOP AND IMPLEMENT LAWS AND POLICIES………………………………………………………………………………………………………. 30 4.2.4 IMPLEMENTATION OF ELEMENT 2 OF THE PROGRAMME OF WORK ON PROTECTED AREAS........................................................................................... 31 4.2.5 PROTECTED AREA FRAMEWORK & RECOGNITION OF INDIGENOUS PEOPLE AND LOCAL COMMUNITIES’ RIGHTS …………………………………………………………… 34 4.3 SACRED NATURAL SITES............................................................................. 35 4.4 OTHER PROTECTED AREA-RELATED DESIGNATIONS.................................... 35 4.5 TRENDS AND RECOMMENDATIONS............................................................ 36 2 4.5.1 DIRECTION OF PROTECTED AREAS LAWS AND POLICIES....................................................................................................................... 36 PART 5: NATURAL RESOURCES, ENVIRONMENTAL AND CULTURAL LAWS AND POLICIES..................................................................................................... 36 5.1 NATURAL RESOURCES & ENVIRONMENT …………………………………………………. 36 5.1.1 LAWS AND POLICIES SUPPORTING INDIGENOUS PEOPLE AND LOCAL COMMUNITIES’ OWNERSHIP OF NATURAL RESOURCES….…………………………… 36 5.1.2 STATE AGENCIES MANDATED TO DEVELOP AND IMPLEMENT LAWS AND POLICIES………………………………………………………………………………………………………. 38 5.1.3 LOCAL COMMUNITY STEWARDSHIP OF TERRITORIES, AREAS OR NATURAL RESOURCES ………………………………………………………………………………………………... 38 5.2 TRADITIONAL KNOWLEDGE, INTANGIBLE HERITAGE AND CULTURE............ 38 5.2.1 LAWS AND POLICIES RELATING TO TRADITIONAL KNOWLEDGE OR COMMUNITIES’ INTANGIBLE HERITAGE OR CULTURE………………………………….. 38 5.3 ACCESS AND BENEFIT SHARING …………………………………………………………….... 41 5.3.1 LAWS AND POLICIES WITH RESPECT TO ACCESS AND BENEFIT SHARING…….. 41 5.3.2 FREE, PRIOR AND INFORMED CONSENT, CONSULTATIONS AND CUSTOMARY DECISION-MAKING…………………………………………………………………. 41 5.3.3 FAIR AND EQUITABLE SHARING OF BENEFITS ARISING FROM ACCESS TO GENETIC RESOURCES AND RELATED TRADITIONAL KNOWLEDGE………………… 41 5.3.4 STATE-IMPLEMENTED LAWS, POLICIES AND FRAMEWORKS GOVERNING PROCESSES…………………………………………………………………………………………………… 42 5.3.5 STATE AGENCIES MANDATED TO DEVELOP, IMPLEMENT LAWS AND MONITOR LAWS AND POLICIES……………………………………………………………………. 43 PART 6: NATURAL RESOURCE EXPLORATION AND EXTRACTION, LARGE-SCALE INFRASTRUCTURE/ DEVELOPMENT PROJECTS AND AGRICULTURE………………………. 43 6.1 NATURAL RESOURCE EXPLORATION AND EXTRACTION……………………………. 43 6.1.1 NATURAL RESOURCES BEING EXPLORED AND EXTRACTED………………………….. 43 6.1.2 LAWS AND POLICIES WITH RESPECT TO NATURAL RESOURCES EXPLORATION AND EXTRACTION ………………………………………………………………... 44 6.1.3 INTERACTION BETWEEN NATURAL RESOURCE EXTRACTION LAWS ENVIRONMENTAL AND HUMAN RIGHTS LEGISLATION ………………..……………. 44 6.1.4 NATURAL RESOURCES EXTRACTION LAWS AND OTHER LEGISLATION………….. 45 6.1.5 THE IMPACT OF NATURAL RESOURCE EXTRACTION ON OTHER NATURAL RESOURCES…………………………………………………………………………………………………. 46 6.1.6 NATURAL RESOURCE EXTRACTION LAWS: RELATIONSHIP TO THE RIGHTS OF INDIGENOUS PEOPLES AND LOCAL COMMUNITIES’…………………………………….. 47 6.1.7 NATURAL RESOURCE EXPLORATION AND EXTRACTION IMPACTS ON INDIGENOUS PEOPLES AND LOCAL COMMUNITIES …………………………………….. 49 6.1.8 CONFLICTS WITH DOMESTIC PROPERTY LAWS GOVERNING LAND FORMALLY OWNED …………………………………………………………………………………… 51 6.1.9 FREE, PRIOR AND INFORMED CONSENT, CONSULTATIONS, CUSTOMARY DECISION-MAKING, AND THE FAIR AND EQUITABLE SHARING OF COSTS 52 AND BENEFITS ARISING FROM RESOURCE EXTRACTION………………………………. 6.1.10 STATE AGENCIES MANDATED TO DEVELOP, IMPLEMENT AND MONITOR LAWS AND POLICIES…………………………………………………………………………………….. 53 6.2 LARGE-SCALE INFRASTRUCTURE/DEVELOPMENT PROJECTS ……………………. 53 3 6.2.1 LARGE-SCALE INFRASTRUCTURE AND DEVELOPMENT PROJECTS AND IMPACT ON COMMUNITIES’………………………………………………………………………… 53 6.2.2 STATE AGENCIES MANDATED TO DEVELOP, IMPLEMENT AND MONITOR LAWS AND POLICIES ……………………………………………………………………………………. 55 6.2.3 LAWS AND POLICIES WITH RESPECT TO THE GENERATION OF INFRASTRUCTURE AND / OR DEVELOPMENT PROJECTS ……………….………........ 56 6.2.4 INFRASTRUCTURE LAWS AND THE EXTENT TO WHICH THEY TAKE INTO ACCOUNT ENVIRONMENT AND/OR HUMAN RIGHTS AND THE RIGHTS OF INDIGENOUS PEOPLES AND LOCAL COMMUNITIES……………………………………… 56 6.3 LARGE-SCALE AGRICULTURE ……………………………………………………………………. 57 6.3.1 LARGE-SCALE AGRICULTURE IN SOUTH AFRICA …………………………………………… 57 6.3.2 IMPACT OF LARGE-SCALE AGRICULTURE ON OTHER NATURAL RESOURCES... 58 6.3.3 LAWS AND POLICIES WITH RESPECT TO LARGE-SCALE AGRICULTURE………….. 58 6.3.4 LARGE-SCALE AGRICULTURE LAWS AND POLICIES, THE ENVIRONMENT AND HUMAN RIGHTS…………..………………………………………………………………………………. 59 6.3.5 INTERACTION OF LAWS AND POLICIES WITH OTHER LEGISLATION SUCH AS ENVIRONMENTAL & HUMAN RIGHTS LAWS…………..……………………………………. 60 6.3.6 EFFECTS OF LARGE-SCALE AGRICULTURE ON INDIGENOUS PEOPLES AND LOCAL COMMUNITIES ………………………………………………………………………………… 62 PART 7: NON-LEGAL RECOGNITION AND SUPPORT................................................ 63 7.1 NON-LEGAL GOVERNMENT SUPPORT.............................................................. 63 7.2 NON-LEGAL NON-GOVERNMENTAL SUPPORT ................................................ 66 7.3 KEY ISSUES........................................................................................................ 67 PART 8: JUDGMENTS.............................................................................................. 68 8.1 CASE LAW AND JUDGEMENTS THAT SUPPORT OR HINDER INDIGENOUS PEOPLE AND LOCAL COMMUNITIES’ RIGHTS ………………………………………………. 68 PART 9: IMPLEMENTATION.................................................................................... 71 PART 10: RESISTANCE AND ENGAGEMENT…………………………………………………………... 75 10.1 INDIGENOUS PEOPLES AND LOCAL COMMUNITIES’ ENGAGEMENT WITH OR RESISTANCE OF LAWS AND POLICIES……………………......................................... 73 10.2 TYPES OF DISPUTES THAT HAVE EMERGED..………………………………………………… 73 10.3 BROAD SOCIAL MOVEMENTS AND TRENDS…………………………………………………. 74 10.4 RESPONSE OF INDIGENOUS PEOPLES AND LOCAL COMMUNITIES’ TO LAWS AND POLICIES THAT AFFECT THEM.................................................................. 75 PART 11: LEGAL AND POLICY REFORM..................................................................