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470
УДК 528.44(63)
Хаген Греф
Главный представитель Союза немецких геодезистов (DVW)
Германия
О РАЗВИТИИ НОВОГО ЭФИОПСКОГО КАДАСТРА И ЗЕМЕЛЬНОГО РЕГИСТРА
Dipl.- Ing. Hagen Graeff
Chief Representative of DVW GmbH
Germany
DEVELOPING A NEW ETHIOPIAN CADASTRE AND LAND REGISTER Introduction
Addis Ababa, the capital of Ethiopia, has set up a project to renew their cadastre and land register system. This may be as example for developing and implementing cadastre based land information system in whole Ethiopia.
Land is the major resource that the development of the city of Addis Ababa has been leaning on. Thus, enhancing the optimal utilization and administration of this resource is recognized as the fundamental factor for development and good governance. As a result, The Addis Ababa City Administration is committed to secure and clarify land and property rights and promoting the land transaction processes through registration, primarily, by updating the cadastral map and building a geodatabase (reliable data repository and information system).
The City Government of Addis Ababa (AACG) sees that the land and land related problems can be alleviated through step-by-step development and implementation of information communication technology (ICT) based integrated land information system, which primarily introduces real property registrations and land cadastre system that can support land and land related municipal functions (land administration and building permit, land development and valuation, taxation and planning and land use) and land registration processes
Existing System
Addis Ababa, the capital of Ethiopia, has a total area of 540 Km2 and a population size of 2.8 million. The city is administered by a city council and is organized in ten sub city municipalities where most land administration services are provided.
Although a step forward was achieved and some experiences were gained in the 1996 cadastral project implementation and cadastral system development, it had
faced critical problems that have hampered its implementation and functionality. Among others, the following are some of the problems identified:
- The system lacks detailed system requirement analysis.
- The system lacks clear and updated legal base.
- No proper tools are set for the upgrading of the system and updating the information.
- No system is set to facilitate proper data flow between different work units.
- The system does not have secured access for potential users and the data can easily be manipulated.
- The training programs carried out do not meet the operational, middle and top-level manpower requirement for the system.
- The system does not have proper link between spatial and non-spatial (e.g. between the parcel, its owner and the rights) data that allow easy query, viewing and report generation.
- Decentralization of the data and its operation to local service centres (Sub Cities) was made without the proper control mechanisms to ensure data integrity at enterprise level.
- Most of the existing cadastral data sources are in digital form but data storage formats, acquisition time, accuracy, resolution/scale, standards, etc vary significantly. Some are scanned images and will need to be Ortho-rectified; some are not acquired in same time period.
- The quality of the existing cadastral map is not good enough as it was extracted from the 1994 digital line map produced for water supply study and design purpose.
- From the 1994 digital line map, 196,000 parcels were extracted. The projection of the map is UTM, the spheroid is Clarke 1880 and the plan datum is addenda. Each created parcel has unique identifier within a unique block.
- Recently acquired base map owned by the city is the year 2005/6 base map and rectified orthophoto, which covers 540Km area of the city. The maps are in 1:2000 scales and there are 293 sheets.
- The city has 150 established ground control points.
- The data acquisition methods used in years 1994 and 2005/6 are different resulting in inconsistency among the cadastral data of different times.
- Anticipated data gaps are from last acquisition of maps is due to expansion of the city and construction of new roads from 2007 to date. In this regard, 100,000 parcels are estimated not included in maps. Also, the 2005/6 map is found as digital line map (parcels are not created).
- Although the maps and the data are in a very poor condition, they are still valid for use. Hence, all existing maps and cadastral data need to be incorporated in the process of data updating and production.
- Although there were some efforts made, the city does not have well-structured and functional addressing system.
- The parcel identification and house numbering systems are not consistent and standardized among the various administrative levels/divisions (Sub cities and Woreda). Moreover, they are not linked with the street naming and addressing.
Beside the cadastral map there are several data sets related or based on the cadastral map, e.g. the city master plan or the land use map.
Beside the digital spatial data there exists a digital data set in the CIS (Cadastral information System). This is a Microsoft SQL Server based application operated on the sub city level. The CIS contains partly describing data of the cadastre as well as planning and valuation related data. The CIS was created in 2003 during the hand over from municipality to the sub cities.
The current system can be described as a combination of the cadastral line map with additional data in the CIS and an analogue real property system. This system does not fulfill the requirements of a modern and sustainable system.
On the technical level the entire system consists of 4 components:
- Cadastral map in a CAD/GIS System
- The CIS Software for the describing part of the cadastre
- Six books for registering real property information
- Paper based archive.
Organizational structure of the administration
The main actors in the land related administration sector shown in the following figure.
Land & Land
Related
Administration
Sector
Land Administration & Building Permit Authority
Land delivering
Building Permit
Tenure Administration & Documentation
The units are working with different tasks at the three levels of the administration:
- City level, subcity and woreda level.
The responsibilities are not very clear defined and there is no responsibility for a common registration of all land related base data.
Proposal of a New System
Cadastre is a methodically arranged public inventory of data concerning properties within a certain country, district or city. It is often based on a survey of their boundaries. Properties and parcels are systematically identified by a defined identification system. This is normally shown on large scale maps together with registers of describing dates. That contains for each separate parcel the nature, size, rights, buildings and value.
The existing cadastral map will update and transferred to a newly created IT System, which fulfill the requirements above.
Therefore the updating of cadastral map will be done in three steps and tasks:
- Identification of cadastral map quality and data gaps and production of updated map
- Verify the sufficiency of existing ground control points
- Application of unique identification system.
Central element of the cadastre will be the parcel; identified by a unique systematically defined number .The cadastre should be covering the whole area of Addis Ababa to guarantee all possibilities of a multipurpose cadastre for the needs of city government in whole. This means that the entire area of Addis Ababa will be covered by parcels.
The describing part of the cadastre is defined by feature classes of objects and attributes. Generally the cadastre will consist of following information:
- Parcel with number
- Administrative unit
- Border points
- Existing land use
- Land grade
- Parcel size
- Address
- Owner with address
- Code number of the property
- Building with cadastral data
- Remarks.
A real property registration system is a process of official recording of rights on land, or more general on properties.
The current system is based on title deeds which are registered in several books. That means that there is an official record (land register) of rights on land concerning changes in the legal situation of defined units of land.
Many of the data are captured twice or three times. This handwritten form of registrations will be prone to error. A systematically cross check is currently not established.
The principle of this system of registration by title deed should not be changed but it will be modernized and digitized.
It will be proposed to digitize the analog books, to combine them in one new registration system and to create a new form and organization. It should be divided in five parts. Every part of the system can be updated in every detail without changing in the whole. The content of this new database will contain five parts:
- Part 1: A title with administrative affinity, title deed No. and archive (Folder)
No.
- Part 2: An Inventory containing all necessary data of the cadastral system, particularly administrative unit, parcel number, building number, size of area and land use, land grade and address.
- Part 3: Shows the owner with all data of booking.
- Part 4: Contains all restrictions and encumbrances of ownership are registered.
- Part 5 is reserved for all financial matters like mortgages, leases etc.
Part two of the renewed and digitized land registrations system gives the necessary connection to the cadastre system and will enable a systematically identification of the properties in the map and on site as well.
At this time the question how to handle the analog archive is not deeply discussed. Both possibilities changing the system in a digital one or to stay with the existing analog form are given.
Surveying will play the role of locating all legal land objects like parcels and buildings, their boundaries and related topographic aspects. The results will be stored in the register and in the cadastre map. The map is as important as the register and will be used by all involved in the processes of planning, constructing, housing and any actions in infrastructure. To keep the map actual field surveying will be stringent. Boundaries of parcels can be defined by physical demarcation on the ground in a mathematical description by coordinates. The necessity is not only given by the costs but also by reducing risk and cost of land disputes and the security of information needs of users of the cadastre.
Modern technologies, such as GPS, modern instruments and a useful network can offer new possibilities to increase the speed and lower the costs for cadastral surveying. Requesters should be involved in refinancing the costs so far as possible. An important role is the development of private participation in this field. A system of licensing can ensure that adequate educated and experienced surveyors will be partners in local surveying.
Surveying will increase the security of the whole integrated land information system and will help to manage it with all physical and legal aspects and to provide the cadastre information for citizens, enterprises, authorities and political decision-makers.
Parity of the proposed Cadastre and Real Property Registration System
Both systems are independent. At the same time they are building a common vital system for all basic activities in land management activities of Addis Ababa.
To ensure at any time the parity of both systems it is necessary to implement a special system of continuation.
Every change made in the real property registration system concerning the parts one to four must be send formally to the cadastre system for maintaining the system as far it is necessary. A protocol should be registered.
Changes in the cadastre system relating to part two of the real property registration system must be given to the system for maintaining their data. A protocol should be registered.
These updating processes of both systems will be supported by special procedures of the new software. Nevertheless the controlling and maintaining acts must be done the officers regarding to the different systems.
The necessary regulation will ensure the parity of both systems and keep all information in the state of one common system.
The new system will be the kernel of a new understanding of all land related issues and will give all stakeholders as users a new view at the system and their own tasks as well. The figure below will give a first impression of the new possibilities.
Stakeholder, partner and user
Creating an explicit cadastral law should take into consideration including regulations for private surveyors.
The advantages are:
- Clear regulations and defined responsibilities for using the cadastre data and for delivering information to the cadastre are necessary.
- Due to the use of private surveyors, the cadastre could be updated quickly after changes.
An explicated cadastral law should be established. Updating and use processes of the cadastre will become more clear and sophisticated.
In combination with a cadastral law a new scale of fees and charges should be created, which is stringent and easy. This can be related to the valuation of land and buildings.
Conclusions
The new system - AA CADIS - will be a major step in all land related issues and successful if some requirement be stringent fulfilled:
- The administration of the new system must be independent and neutral
- Priority of maintaining the system
- Reacting the legal situation
- Regulations in the field of cooperation of all land related institutions
- Developing the private surveying sector
- Human resource development and education at all levels.
These are only some requirements necessary. During use of the system and improve more activities new possibilities and challenges will come up.
© H. Graeff, 2011
