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Promoting participatory law-making for recognition of legitimate tenure rights










Knight, R. & Berger, T. 2021. Promoting participatory law-making for recognition of legitimate tenure rights. Legal Brief, 3. Rome, FAO. 


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    Over the past thirty years, an increasing number of states have passed good laws that significantly strengthen the tenure rights of their citizens. However, due to multiple barriers, a high percentage of many nations’ citizens are either unaware of their legal rights or unable to use national laws to protect their rights when threatened. Legal empowerment efforts focus on strengthening citizens’ capacity to exercise their rights in a wide variety of fora, including in government administrative procedures, courts and tribunals, and when advocating for laws and policies. Legal empowerment is a key component of ensuring that the governance of land, fisheries and forests is responsible, equitable and just. Legal empowerment initiatives may include legal education; capacity development; efforts to shape state justice systems; legal support for citizens; and promotion of citizen participation in law-making. This legal brief outlines how state and civil society-led legal empowerment initiatives may contribute to the realization of the Voluntary Guidelines on the Responsible Governance of Tenure of Land, Fisheries and Forests in the Context of National Food Security (VGGT) and support greater tenure security, good governance, improved use of formal legal systems, and increased political participation by all citizens.
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    Misalignments between national laws and local tenure systems can undermine the resource claims of marginalized groups and lead to conflict. To proactively address rights violations that stem from such misalignment, the United Nations Committee on World Food Security endorsed the Voluntary Guidelines on the Responsible Governance of Tenure of Land, Fisheries and Forests in the Context of National Food Security (VGGT), establishing the most comprehensive global soft-law instrument concerning tenure rights. The VGGT call on States to recognize, respect and protect all “legitimate” tenure rights, including those not currently protected by national laws. They also affirm the responsibility of businesses to respect all legitimate tenure rights, linking tenure issues to businesses’ wider human rights responsibilities. However, the concept of legitimate tenure rights has often proved difficult to operationalize. This legal brief discusses the meaning and implications of recognizing legitimate tenure rights, then outlines possible ways forward for States, civil society, the private sector and development agencies.
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    In taking a comprehensive approach to issues of tenure, the Voluntary Guidelines on the Responsible Governance of Tenure of Land, Fisheries and Forests (VGGT) offer an opportunity to promote systemic governance reform and respect for land and resource rights, while clarifying the different roles of States, businesses and social actors. The VGGT do not directly cover mineral resources but they clarify that States may wish to consider the governance of mineral resources in their efforts to implement the VGGT. They also provide guidance on tenure rights to land, fisheries and forests, which are often affected by mining operations. Yet, the VGGT’s relevance to the mining sector has often been overlooked. This legal brief explores how implementing the VGGT could help address recurring challenges affecting the mining sector.

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