Information within this issue may be outdated. Click here to = link to the=20 most recent issue.

Making Land Release in Mozambique Operational

by Antonio Belchior [ Instituto Nacional de = Desminagem ]=20 and Charles Downs [ Downs Consulting ]

Mozambique=E2=80=99s national program for land release has = cleared many Suspected=20 Hazardous Areas in the past eight years, but the Instituto Nacional = de=20 Desminagem (National Demining Institute) aims to make the program = even more=20 effective. In March 2009, IND collaborated with the Survey Action Center = to host=20 a workshop at which land release terminology and concepts were = discussed, hoping=20 that improved survey methodologies would lead to a more efficient = land-release=20 process. The workshop resulted in the creation of national land-release = draft=20 elements and criteria that will help to develop practical land-release = standards=20 in the near future.

Mozambique=E2=80=99s Instituto Nacional de Desminagem is = interested in the=20 land-release approach as a practical method to increase the efficient = use of=20 demining resources and to more rapidly eliminate the threats to life and = obstacles to development caused by landmines and other explosive = remnants of war=20 found in Suspected Hazardous Areas. Land release emphasizes the = continuous=20 collection of information to determine where mine clearance is necessary = to=20 eliminate community suspicion and support full use of land.

In Mozambique, land release builds on existing good practices of the = national=20 program. The 2000=E2=80=9302 Landmine Impact Survey estimated there were = 558 square=20 kilometers (215 square miles) of suspected areas, with 1,374 SHAs = affecting 791=20 communities. While approximately 60 square kilometers (23 square miles) = have=20 been cleared over the past eight years, the current best estimate is = that 12=20 square kilometers (five square miles) of SHAs remain. The difference is=20 primarily the result of cancellation through continuing survey and = improving=20 information. In addition, demining operators regularly clear only a = portion of a=20 demining task area, with the remainder reduced through = =E2=80=9Clighter=E2=80=9D methods.=20 Nonetheless, a majority of tasks completed in 2008 detected no mines or=20 explosive remnants of war. There is still room for improvement, and a = deliberate=20 application of the land-release approach is expected to improve the = efficiency=20 and progress of the national program as a whole.

A visit to Handicap International task site=E2=80=94the = landowner=20 confirmed that the Suspected Hazardous Area on the right (identified a = decade=20 earlier) was actually overgrown by choice and not because of mine=20 threat.
Photo courtesy of IND/Mozambique

The Workshop Discussion regarding land release in Mozambique began in = 2008=20 when IND management, with the support of the Geneva International Centre = for=20 Humanitarian Demining, introduced the subject within IND and with other=20 stakeholders. As a second step, IND invited the Survey Action Center to = help=20 develop a policy approach and facilitate a workshop for its=20 operations/quality-assurance staff. The purpose of the workshop was to = develop=20 operational procedures related to land release, particularly through=20 Non-technical and Technical Survey, for quality assurance of the = process, and=20 for the documentation of results. These issues are particularly relevant = in=20 Mozambique, since land-release activities will most often be carried out = by=20 demining operators, with the IND providing quality assurance and = acceptance of=20 the results. Thus, IND staff would need to understand the typical = operator steps=20 to conduct land release through survey and the appropriate measures for = quality=20 assurance of that process.=20

The workshop effectively combined conceptual discussions, working = groups and=20 site visits. The training centered on a few key topics: quality = management and=20 quality assurance for mine action, concepts and methods for land = release, land=20 release through Non-technical and Technical Survey methods, specific = criteria=20 for land release relevant for Mozambique, and practical use of the = criteria.=20 This resulted in agreement on draft elements for two important = documents:=20 =E2=80=9CElements of National Standards for Land Release=E2=80=9D and = =E2=80=9CCriteria for Release of=20 Suspect Areas Through Survey.=E2=80=9D Additionally, the workshop = resulted in the=20 revision of the terms of reference, procedures and forms for quality = assurance=20 of demining.

IND-SAC workshop participants discuss principles of land = release.=20

The participants evaluated the workshop in very positive terms. They = believed=20 that the combination of theory and practice provided a level of = understanding=20 and technical capacity that will enable them to participate in the field = with=20 operators and communities to objectively and responsibly evaluate and = validate=20 suspect areas proposed to be cancelled, confirmed or cleared. = Participants=20 emphasized the need for quality-assurance teams to be directly involved = with the=20 reclassification of SHAs, that this should be done in permanent dialogue = with=20 the local communities and operators on the ground, and that this will = result in=20 greater confidence in the data eventually contained in the official=20 information-management system.

Implementation

The next steps for starting to use the land-release approach in = Mozambique=20 include:

Finish the current internal IND discussion regarding the draft = norms and=20 criteria
Expand the discussion to include humanitarian and commercial = operators=20 active in the country
Refine the draft norms and criteria
Determine how the operators will apply the norms

This will lead to a pilot application of the interim standard, = criteria and=20 procedures for land release, which will be evaluated after a period of = six=20 months.

Workshop participants visit HI task site.

The implementation of the methodological principles of land release = through=20 survey is expected to provide greater rigor and objectivity both in the = process=20 of reduction/cancellation of suspect mined areas and in the treatment of = information regarding newly identified SHAs. The IND leadership looks = forward to=20 the improvements this may bring to the national program as well as to = the=20 communities, institutions and individuals whose lives and work are still = affected by the remaining landmine problem in Mozambique. This = experience should=20 also bring useful lessons for other programs.

The IND staff in the workshop concluded that the IND should take the = lead in=20 developing national land-release standards and procedures in full = discussion=20 with operators and other stakeholders, and that the national database = should be=20 promptly updated to reflect land-release decisions.

Draft Elements and Criteria

Draft elements for national land release standards include the = following:=20

Each specific SHA should be identified and investigated; that is, = the=20 process is not simply completed by general actions or adjustments to=20 consolidated totals in the database.
Objective criteria should be established to decide whether a given = area=20 will be reclassified or kept as previously defined. The criteria = should not be=20 applied mechanically; they may be applied to entire SHAs or to = portions=20 thereof.
Local communities must be involved in the land-release process, = both as=20 sources of information and in the acceptance of any decision regarding = released land.
The decision to cancel a SHA should be made in agreement between = the IND,=20 the operator and the community. Cancellation should not be forced on = any party=20 and should be reflected in the signature of representative parties on = the=20 corresponding documentation.
Areas should be handed over by IND to the community promptly after = conclusion of work.

Draft criteria for release of specific parcels of land through survey = developed in the workshop for further discussion included:=20

Any specific area that has been used regularly for at least five = years=20 without evidence of mines
Agricultural land that has been plowed for planting by animal or=20 mechanical means for two years without any evidence of mines
Areas where the local population has freely moved for two years = without=20 evidence of mines
Areas where surface vegetation has been removed by hoe for = planting of=20 cereal or other crops, where seeds
are planted about 30 = centimeters (12=20 inches) apart, for five years without evidence of mines
Areas used intensively as pasture (e.g., cattle grazing) for two = years=20 without evidence of mines
Forested areas cleared by powered logging equipment without = evidence of=20 mines should be cleared
immediately
Forested areas used for gathering wood for fuel, roots, etc., = without=20 evidence of mines should be investigated further
Areas subject to other types of intensive use without evidence of = mines=20 for two or more years
Areas sufficiently checked by Technical Survey without finding any = evidence of mines
When the local population and a technical team agree that there is = no=20 evidence of mines

The IND will finalize the standards and detailed criteria in = discussion with=20 the demining operators active in Mozambique. This will provide the = framework to=20 implement land release and increase the efficiency of mine action in = Mozambique.=20 These changes will improve the national program and may provide an = interesting=20 paradigm for other national programs and organizations. =

Biography

3D"Belchior Antonio Belchior joined the = Instituto=20 Nacional de Desminagem (Mozambique National Demining Institute) in = 2001,=20 and is now Chief of the Operations Department. He manages the IND staff=20 responsible for quality assurance of demining conducted by independent = operators=20 in Mozambique and for the coordination of education activities to = prevent=20 accidents with mines and other ERW. He has a university degree in = education and=20 has worked in both teaching and training. In 2005, Belchior participated = in the=20 United Nations Development Programme=E2=80=99s Senior Managers=E2=80=99 = Course delivered by the=20 Mine Action Information Center at James Madison University.

3D"Downs Charles Downs = has worked=20 in mine action since 1999, when he became the Chief of the Mine Action = Unit of=20 the United Nations Office for Project Services, a position he held until = 2004.=20 Downs is a consultant who has worked with the Survey Action Centre, the = Geneva=20 International Center for Humanitarian Demining and the United Nations=20 Development Programme on various projects. He is a Professor of = International=20 Project Management at New York University=E2=80=99s Wagner = School.

Contact Information

Antonio Belchior
Chief Operations Department
Instituto = Nacional de=20 Desminagem
Rua da Resist=C3=AAncia 1746, Bloco B, 7 = andar
Maputo /=20 Mozambique
Tel: +258 21 410400
Fax. +258 21 418577
E-mail:=20 amartins@tvcabo.co.mz
Web site: http://www.ind.gov.mz/

Charles= =20 Downs
Principal, Downs Consulting
Adjunct Professor
Wagner = Graduate=20 School of Public Service
New York University
Brooklyn, NY / = USA
E-mail:=20 charles.downs@gmail.com

(c) 2009 Journal of ERW and Mine Action, Mine Action = Information=20 Center, Center for International Stabilization and Recovery. All rights=20 reserved.
If cited properly, short sections (a sentence or two) can = be used=20 without permission. Written Journal of ERW and Mine Action = approval is=20 required, however, before longer sections of content published in = The=20 Journal may be used by another source or publication.

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