legal perspectives on native customary land rights in sarawak

180 Pages·2008·6.69 MB·English

SHM.NCLR/2/08
LEGAL PERSPECTIVES ON
NATIVE CUSTOMARY LAND RIGHTS IN SARAWAK
Dr Ramy Bulan
with
Amy Locklear
SUHAKAM
HAK ASASI UNTUK SEMUA
LEVEL29,MENARATUNRAZAK,JALANRAJALAUT
50350KUALALUMPUR,MALAYSIA
603-26125600(T)
603-26125620(F)
[email protected]
CetakanPertama/ FirstPrinting,2008
HakCiptaSuruhanjayaHakAsasiManusia(SUHAKAM),2008
CopyrightHumanRightsCommissionofMalaysia(SUHAKAM)2008
DiterbitkandiMalaysiaoleh/ PublishedinMalaysiaby
SURUHANJAYAHAKASASIMANUSIA/
HUMANRIGHTSCOMMISSIONOFMALAYSIA
E-mail:[email protected]
URL:http://www.suhakam.org.my
DicetakdiMalaysiaoleh/PrintedinMalaysiaby
ALKAUTHARPRESSSDN.BHD.
No.54,JalanPBS14/10,TamanPerindustrianBukitSerdang,
43300SeriKembangan,Selangor
PerpustakaanNegara Malaysia Data-Pengkatalogan-dalam-Penerbitan
NationalLibraryofMalaysia Cataloguing-inPublication-Data
Hak cipta laporan ini adalah milik SUHAKAM. Walau bagaimanapun, hak cipta kepada penulisan, artikel dan
material adalah milik penulis. SUHAKAM menyangkal sebarang tanggungjawab, waranti dan liabiliti sama ada
secara nyata atau tidak ke atas sebarang salinan penerbitan. Pengguna-pengguna adalah dinasihatkan untuk
merujuk kepada penulis atau mana-mana sumbernya untuk memastikan ketetapan dan keterkinian maklumat yang
terkandung di dalam artikel-artikel tersebut sebelum menerima pakai atau bertindak berdasarkan maklumat
tersebut. Pandangan serta cadangan pembentang dan peserta semasa dialog dimana laporan diterbit di dalam
penerbitan ini adalah kepunyaan mereka masing-masing dan adalah tidak semestinya mewakili dan merupakan
pandangan serta cadangan SUHAKAM. Penerbitan pandangan serta cadangan pembentang dan peserta adalah
sebagai sumbangan terhadap maklumat dan perbincangan umum semata-mata dan tidak boleh diambil kira sebagai
pengesahan atau sokongan SUHAKAM ke atas pandangan dan cadangan tersebut.
The copyright of this report belongs to SUHAKAM. However, the copyright of authorship, articles and materials
remains with the author. SUHAKAM assumes no responsibility, warranty and liability expressed or implied by any
other reproduction of this publication. The contents of these articles should not be published without reference to
the writer. Users of the articles printed here are advised to reconcile the accuracy and currency of the information
provided by the writer or source before acting upon or in consideration of the information. The views and
recommendations expressed by the speakers and participants at the dialogue which report is published in this
publication are entirely the respective speakers’ or participants’ own and do not necessarily represent the views
and recommendations of SUHAKAM. The publication of the views and recommendations of the speakers and
participants is intended to contribute to public information and discussion and is not in any way to be taken to
constitute endorsement or support by SUHAKAM of those views and recommendations.
PerpustakaanNegaraMalaysia Cataloguing-in-PublicationData
Legal perspective on native customary land rights in Sarawak.
Bibliography: p.
ISBN978-983-2523-52-9
1. Indigenous people--Land tenure--Sarawak. 2. Land tenure--
Law and legislation--Sarawak. I. Suruhanjaya Hak Asasi Manusia
Malaysia.
346.595220432
ii
FOREWORD
CetakanPertama/ FirstPrinting,2008
HakCiptaSuruhanjayaHakAsasiManusia(SUHAKAM),2008 Since its establishment of its sub-office in Sarawak in 2000, the Human Rights
CopyrightHumanRightsCommissionofMalaysia(SUHAKAM)2008
Commission of Malaysia (SUHAKAM) has received various complaints and
DiterbitkandiMalaysiaoleh/ PublishedinMalaysiaby
SURUHANJAYAHAKASASIMANUSIA/ memorandums from the communities in Sarawak alleging various forms of
HUMANRIGHTSCOMMISSIONOFMALAYSIA
human rights violations. Out of the total of 287 complaints received, 158
E-mail:[email protected]
URL:http://www.suhakam.org.my
complaints relate to Native Customary Land Rights (NCLR).
DicetakdiMalaysiaoleh/PrintedinMalaysiaby
ALKAUTHARPRESSSDN.BHD.
No.54,JalanPBS14/10,TamanPerindustrianBukitSerdang, SUHAKAM conducted investigations into specific cases, carried out field
43300SeriKembangan,Selangor
studies, held dialogues with the relevant communities, roundtable discussions
with the State Government and the relevant agencies as well as the private
PerpustakaanNegara Malaysia Data-Pengkatalogan-dalam-Penerbitan
enterprises indicated in these complaints. Special Reports such as the reports on
NationalLibraryofMalaysia Cataloguing-inPublication-Data
Hak Masyarakat Asli Sarawak (which looked into the resulting issues of the
Hak cipta laporan ini adalah milik SUHAKAM. Walau bagaimanapun, hak cipta kepada penulisan, artikel dan Bakun Dam); The Penan Benalih Blockade Issue; and Penan in Ulu Belaga:
material adalah milik penulis. SUHAKAM menyangkal sebarang tanggungjawab, waranti dan liabiliti sama ada
Right to Land and Socio-Economic Development, were published and
secara nyata atau tidak ke atas sebarang salinan penerbitan. Pengguna-pengguna adalah dinasihatkan untuk
merujuk kepada penulis atau mana-mana sumbernya untuk memastikan ketetapan dan keterkinian maklumat yang
submitted to the relevant parties. NCLR has been highlighted in each of
terkandung di dalam artikel-artikel tersebut sebelum menerima pakai atau bertindak berdasarkan maklumat
tersebut. Pandangan serta cadangan pembentang dan peserta semasa dialog dimana laporan diterbit di dalam SUHAKAM’s Annual Reports.
penerbitan ini adalah kepunyaan mereka masing-masing dan adalah tidak semestinya mewakili dan merupakan
pandangan serta cadangan SUHAKAM. Penerbitan pandangan serta cadangan pembentang dan peserta adalah
sebagai sumbangan terhadap maklumat dan perbincangan umum semata-mata dan tidak boleh diambil kira sebagai
SUHAKAM has identified core issues in these complaints. They include a
pengesahan atau sokongan SUHAKAM ke atas pandangan dan cadangan tersebut.
perception gap of the native communities’ perception of Customary Land
The copyright of this report belongs to SUHAKAM. However, the copyright of authorship, articles and materials
legislations (such as the concepts of pemakai menoa and pulau galauamongst
remains with the author. SUHAKAM assumes no responsibility, warranty and liability expressed or implied by any
other reproduction of this publication. The contents of these articles should not be published without reference to
the Iban and molong and Tana’ mengurip amongst the Penan) against what is
the writer. Users of the articles printed here are advised to reconcile the accuracy and currency of the information
provided by the writer or source before acting upon or in consideration of the information. The views and defined in the Sarawak Land Code 1958 and the other supportive ordinances
recommendations expressed by the speakers and participants at the dialogue which report is published in this
like the National Park and Forest Ordinances. The lack of legal documentation
publication are entirely the respective speakers’ or participants’ own and do not necessarily represent the views
and recommendations of SUHAKAM. The publication of the views and recommendations of the speakers and
of NCLR adds further problems, for example compensation of extinguished
participants is intended to contribute to public information and discussion and is not in any way to be taken to
constitute endorsement or support by SUHAKAM of those views and recommendations. NCLR, boundary conflicts between licensee holders and the native
communities. Recent amendments within the Land Code add further burden to
PerpustakaanNegaraMalaysia Cataloguing-in-PublicationData the native communities in establishing their NCLR.
Legal perspective on native customary land rights in Sarawak.
SUHAKAM Act 1999 stipulates that human rights issues must be addressed
Bibliography: p.
ISBN978-983-2523-52-9 within the scope of existing relevant laws. In view of this, the Commission
1. Indigenous people--Land tenure--Sarawak. 2. Land tenure--
Law and legislation--Sarawak. I. Suruhanjaya Hak Asasi Manusia engaged Prof. Dr. Ramy Bulan, the Deputy Dean of the Faculty of Law in
Malaysia.
University Malaya, with expertise in the issues of NCR to land in Sarawak to
346.595220432
iii
look into the legal issues relating to the promotion and protection of the right of
the natives of Sarawak to land based on their customs and traditions.
The researcher has looked extensively into the customs and traditions that govern
the establishment and inheritance of land both at personal, family, communal and
inter-communal levels. Local legal instruments like the Federal Constitution
and more specifically the Sarawak Land Code 1958 were researched into.
International Common Law applications in judicial decisions governing
Indigenous community’s right to land were also looked at. These provided the
basis of human rights based recommendations made at the end of the report.
SUHAKAM after deliberating on the report through its Economic, Social
and Cultural Rights Working Group (ECOSOC) and subsequently the full
Commission, has endorsed the contents of the report.
In light of the above and based on the findings of the report, SUHAKAM makes
the following recommendations:
(i) The Sarawak State Government should take the relevant steps to review the
current Sarawak Land Code 1958 to ensure that it serves to promote and
continually protect the rights of the indigenous groups to their customary
land;
(ii) Such review should include the following:
a. The recognition of Customary Rights to land as part of law and the right
of the natives to land by virtue of Customary Law is consistent with those
rights;
b. The recognition of the methods of native occupation that arise out of
native customs and traditions is proof of ownership to land and therefore
not to be dictated by the Sarawak Land Code 1958 which imposes burden
to establish ownership of lands via documentary evidence;
iv
c. The Constitutional protection on the native title rights cannot be taken away
except in accordance to the law and upon payment of just compensation;
d. It is a fiduciary obligation of the government officials to consult and obtain
consent from the native communities prior to taking action that may infringe
their native title rights.
SUHAKAM expresses its appreciation to all parties including representatives
from Government agencies, NGOs, local communities, experts and other groups
and individuals that have contributed to SUHAKAM’s previous work relating to
NCR to land in Sarawak which has led to the preparation and publication of
this report.
Special thanks to Prof. Dr. Ramy Bulan who had shared her time from her busy
schedule to carry out the research and prepare this report.
Finally, deepest appreciation to the SUHAKAM Commissioners and Secretariat
who have relentlessly carried out their tasks towards not only the advocacy of
customary rights but also their persistent efforts to uphold civil, political, as well
as economic, social and cultural rights in Malaysia.
……………………………………………….
DATUKDR.DENISONJAYASOORIA
SUHAKAMCommissioner/
ChairpersonoftheEconomic,Social
andCulturalRightsWorkingGroup
(ECOSOC)
v
LEGAL PERSPECTIVES ON NATIVE CUSTOMARY LAND RIGHTS IN SARAWAK
CONTENTS
I. INTRODUCTION ...........................................................................................................................................2
A. PURPOSE OF REPORT .............................................................................................................................2
B. SUMMARY OF REPORT AND NOTE ON TERMINOLOGY ................................................................2
1. Overview of Report ...............................................................................................................................2
2. Terminology ..........................................................................................................................................3
II. EXECUTIVE SUMMARY..............................................................................................................................6
A. OVERVIEW ................................................................................................................................................6
B. SARAWAK’S HISTORY OF RECOGNISING NATIVE TITLE AND THE BROADER LEGAL
AND THEORETICAL FRAMEWORK .....................................................................................................6
C. NATIVE LAND TENURE IN SARAWAK ................................................................................................7
D. THE LAND CODE 1958 ............................................................................................................................8
E. MALAYSIAN COMMON LAW ON NATIVE TITLE .............................................................................8
F. NATIVE TITLE LAW IN OTHER COMMON LAW JURISDICTIONS .................................................9
G. INTERNATIONAL HUMAN RIGHTS LAW ...........................................................................................9
III. BACKGROUND OF APPLICABLE LAWS ...............................................................................................14
A. INTRODUCTION ....................................................................................................................................14
B. SARAWAK’S RECEPTION OF ENGLISH PRINCIPLES OF COMMON LAW AND EQUITY ........14
1. Background .........................................................................................................................................14
2. Native title, generally .........................................................................................................................16
C. CUSTOMS AS A SOURCE OF LAW UNDER THE CONSTITUTION AND AN INTEGRAL
PART OF THE LEGAL SYSTEM ...........................................................................................................17
D. EQUALITY ..............................................................................................................................................19
E. CONCLUSION .........................................................................................................................................20
IV. THE THEORETICAL AND LEGAL BASIS FOR RECOGNITION OF NATIVE
CUSTOMARY RIGHTS UNDER COMMON LAW .................................................................................22
A. INTRODUCTION ....................................................................................................................................22
B. RECOGNITION OF NATIVE TITLE OR CUSTOMARY LAND RIGHTS IN SARAWAK ................22
C. BASIS FOR RECOGNITION OF INDIGENOUS LAND RIGHTS .......................................................24
1. Introduction ........................................................................................................................................24
2. Distinction between acquisition of territorial sovereignty and acquisition of beneficial
ownership of land ...............................................................................................................................25
3. Doctrine of tenures .............................................................................................................................27
General rule ........................................................................................................................................27
Indicia of occupation for purposes of establishing possession ...........................................................28
D. CONCLUSION .........................................................................................................................................30
V. CUSTOMARY RIGHTS BASED ON NATIVE LAWS AND CUSTOMS: PROOF OF
OCCUPATION AND PROOF OF CUSTOMS AND TRADITIONAL PRACTICES ............................32
A. INTRODUCTION ....................................................................................................................................32
B. KELABIT CUSTOMS ..............................................................................................................................34
1. The longhouse community and their territorial sphere ......................................................................34
2. Rights to land and resources ..............................................................................................................35
Communal ownership and communal lands and activities ................................................................35
Individual rights to land and resources ...............................................................................................36
3. Customary practices marking Kelabit occupation of their land: cultural landmarks .......................37
C. IBAN CUSTOMS .....................................................................................................................................38
1. Features of the longhouse community ................................................................................................38
2. Communal and individual rights to land ............................................................................................39
3. Management of the land .....................................................................................................................40
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LEGAL PERSPECTIVES ON NATIVE CUSTOMARY LAND RIGHTS IN SARAWAK
D. PENAN CUSTOMS .................................................................................................................................41
1. Centrality of forest ..............................................................................................................................42
2. Community boundaries .......................................................................................................................42
3. Management of and claims to resources ............................................................................................42
4. Places on the landscape .....................................................................................................................43
E. CONCLUSION .........................................................................................................................................44
VI. STATUTORY RECOGNITION OF NATIVE CUSTOMARY RIGHTS TO LAND ..............................48
A. INTRODUCTION ....................................................................................................................................48
B. SARAWAK LAND CODE 1958 (CAP 81) ..............................................................................................48
1. Land Classification .............................................................................................................................48
2. Creation of NCR after 1957 ................................................................................................................49
3. Pre-existing NCR ................................................................................................................................50
4. Amendments ........................................................................................................................................51
5. Termination of rights ..........................................................................................................................51
6. Registration of native rights over untitled land ..................................................................................52
7. Tension between customary law and Land Code 1958 .......................................................................52
8. Challenges ..........................................................................................................................................53
Failure to recognize traditional forms of occupation..........................................................................53
Documenting and protecting NCR .....................................................................................................54
Definition of state lands ......................................................................................................................56
Extinguishment of NCR .....................................................................................................................56
C. CONCLUSION .........................................................................................................................................57
VII. COMMON LAW RECOGNITION OF NATIVE TITLE: THE MALAYSIAN CASES ........................60
A. REVIEW OF LEADING CASES .............................................................................................................60
1. Adong bin Kuwau & Ors v Kerajaan Negeri Johor & Anor ..............................................................60
2. Sagong Bin Tasi & Ors v Kerajaan Negeri Selangor & Ors ..............................................................62
3. Nor Anak Nyawai & Ors v Borneo Pulp Plantation Sdn Bhd & Ors .................................................63
4. Madeli bin Salleh (Suing as Administrator of the Estate of the deceased, Salleh bin Kilong) v
Superintendent of Land & Surveys Miri Division and Government of Sarawak ...............................67
Court of Appeal ..................................................................................................................................67
Federal Court ......................................................................................................................................69
B. SUMMARY: EMERGING FEATURES OF NATIVE TITLE .................................................................72
1. Pre-existing right ................................................................................................................................72
2. Native title based in native laws and customs ....................................................................................73
3. The inalienability of native title ..........................................................................................................73
4. Limitation on rights over lands used for foraging ..............................................................................74
C. CONCLUSION .........................................................................................................................................74
VIII. BEST PRACTICES FROM OTHER JURISDICTIONS ..........................................................................76
A. INTRODUCTION ....................................................................................................................................76
B. BASIS FOR AND SCOPE OF NATIVE TITLE ......................................................................................77
1. Decisions of the Supreme Court of the U.S. .......................................................................................77
Johnson v. M’Intosh ...........................................................................................................................77
Cherokee Nation v. Georgia; Worcester v. Georgia ............................................................................79
Mitchel v. U.S. ....................................................................................................................................80
Summary .............................................................................................................................................82
2. Decisions of the High Court of Australia ...........................................................................................83
Mabo and Another v the State of Queensland and Another ...............................................................83
Mabo and Others v State of Queensland ............................................................................................87
3. Decisions of the Supreme Court of Canada .......................................................................................98
Case law prior to Delgamuukw v British Columbia ..........................................................................98
Delgamuukw v British Columbia .....................................................................................................100
C. CUSTOMS ..............................................................................................................................................106
1. Alexkor Ltd and Another v Richtersveld Community and Others ....................................................106
2. Privy Council decisions ....................................................................................................................108
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LEGAL PERSPECTIVES ON NATIVE CUSTOMARY LAND RIGHTS IN SARAWAK
Amodu Tijani v The Secretary, Southern Nigeria ............................................................................108
Oyekan and Others v Adele ..............................................................................................................110
3. Conclusion: equality of treatment based on customs ........................................................................111
D. EXTINGUISHMENT OF NATIVE TITLE: THE FIDUCIARY OBLIGATION AS A
RESTRAINT ON EXTINGUISHMENT OF NATIVE TITLE ..............................................................113
1. Power to extinguish ...........................................................................................................................113
Mabo and Others v State of Queensland ..........................................................................................113
Alexkor Ltd and Another v Richtersveld Community and Others ...................................................117
Delgamuukw v British Columbia .....................................................................................................119
Conclusion ........................................................................................................................................120
2. Fiduciary obligation .........................................................................................................................120
Delgamuukw v British Columbia .....................................................................................................120
Mabo and Others v State of Queensland ..........................................................................................122
3. Conclusion ........................................................................................................................................125
IX. INTERNATIONAL HUMAN RIGHTS LAW AND INDIGENOUS RIGHTS ......................................128
A. INTERNATIONAL HUMAN RIGHTS LAW AS UNIVERSAL VALUES CONSTITUTING
PART OF THE COMMON LAW ...........................................................................................................128
B. INTERNATIONAL CUSTOMARY LAW .............................................................................................130
1. Introduction ......................................................................................................................................130
2. The formation of international customary law .................................................................................131
Introduction ......................................................................................................................................131
State practice ....................................................................................................................................131
Opinio juris .......................................................................................................................................133
Persistent objector ............................................................................................................................133
C. INTERNATIONAL CUSTOMARY LAW ON INDIGENOUS RIGHTS .............................................133
1. Information gathering and norm building ........................................................................................134
2. State reports on domestic initiatives .................................................................................................136
3. Content of international customary law protecting indigenous land rights .....................................137
UN Declaration on the Rights of Indigenous Peoples ......................................................................138
International Covenant on Civil and Political Rights .......................................................................142
ILO Convention No. 169 ..................................................................................................................144
D. CONCLUSION .......................................................................................................................................145
X. CONSTITUTIONAL PROTECTION OF NCR .......................................................................................148
A. INTRODUCTION ..................................................................................................................................148
B. CONSTITUTIONAL PROTECTION OF CUSTOMS ..........................................................................148
1. Customs and native title rights .........................................................................................................149
2. Equality and non-discrimination ......................................................................................................150
C. NATIVE TITLE AS CONSTITUTIONALLY-PROTECTED PROPERTY INTEREST .......................152
1. Adequate compensation under Adong I ............................................................................................152
2. Case and statutory law in Sarawak on compensation ......................................................................153
D. NATIVE TITLE AS A CONSTITUTIONALLY-PROTECTED RIGHT TO LIFE ...............................154
E. FIDUCIARY OBLIGATIONS OF PUBLIC OFFICIALS .....................................................................155
1. Sagong II ..........................................................................................................................................155
2. Fiduciary obligations of Sarawak ....................................................................................................156
Introduction ......................................................................................................................................156
Federal Constitution .........................................................................................................................156
Background to Constitutional provisions .........................................................................................157
Brooke’s legacy of trust over native lands and interests ..................................................................157
Land Code 1958 ...............................................................................................................................158
Requirements of the fiduciary obligation .........................................................................................159
F. QUASI-CONSTITUTIONAL STATUS OF STATUTES PROTECTING INTERESTS OF
ABORIGINAL PEOPLES AND NATIVES ...........................................................................................160
G. CONCLUSION .......................................................................................................................................160
viii
I
INTRODUCTION