indigenous and tribal peoples’ rights over their ancestral lands and natural resources

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OEA/Ser.L/V/II.

Doc.56/09

30December2009

Original:Spanish

INDIGENOUSANDTRIBALPEOPLESRIGHTSOVERTHEIR

ANCESTRALLANDSANDNATURALRESOURCES

NormsandJurisprudenceoftheInterAmericanHumanRightsSystem

2010

Internet:http://www.cidh.org

Email:[email protected]

INTERAMERICAN COMMISSIONONHUMANRIGHTS
http://www.cidh.org/mailto:[email protected]:[email protected]://www.cidh.org/


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OASCataloginginPublicationData

Derechos de los pueblos indgenas y tribales sobre sus tierras ancestrales y recursos

naturales:Normasyjurisprudenciadelsistemainteramericanodederechoshumanos=

Indigenousand tribalpeoples rightsover theirancestral landsandnatural resources:

Normsandjurisprudenceofthe InterAmericanhumanrightssystem/[InterAmerican

CommissiononHumanRights.]

p.;cm.

(OEA

documentos

oficiales

;OEA/Ser.L)(OAS

official

records

;OEA/Ser.L)

ISBN9780827055803

1.HumanrightsAmerica.2.IndigenouspeoplesCivilrightsAmerica.3.Indigenous

peoplesLandtenureAmerica.

4.IndigenouspeoplesLegalstatus,laws,etc.America.5.NaturalresourcesLawand

legislationAmerica. I.InterAmericanCommissiononHumanRights.IISeries.III.

Series.OASofficialrecords;OEA/Ser.L.

OEA/Ser.L/V/II.Doc.56/09

DocumentpublishedthankstothefinancialsupportofDenmarkandSpain

PositionshereinexpressedarethoseoftheInterAmericanCommissiononHumanRightsanddonot

reflecttheviewsofDenmarkorSpain

ApprovedbytheInterAmericanCommissiononHumanRightsonDecember30,2009


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INTERAMERICANCOMMISSIONONHUMANRIGHTS

MEMBERS

LuzPatriciaMejaGuerrero

VctorE.Abramovich

FelipeGonzlez

SirClareKamauRoberts

PauloSrgioPinheiro

FlorentnMelndez

PaoloG.Carozza

******

ExecutiveSecretary:SantiagoA.Canton

AssistantExecutiveSecretary:ElizabethAbiMershed


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TABLEOFCONTENTS

Page

I. INTRODUCTION...............................................................................................................................................1

II. SOURCESOFLAW ...........................................................................................................................................2

A. InterAmericanHumanRightsInstruments ......................................................................................2

B. ILOConventionNo.169 ....................................................................................................................5

C. OtherInternationalTreatiesandPronouncementsofTreatyBodies...............................................6

D. InternationalCustomaryLaw............................................................................................................7

E. OtherInternationalInstruments.......................................................................................................7

F. DomesticLaw....................................................................................................................................8

III. DEFINITIONS ...................................................................................................................................................9

A.

IndigenousPeoples;

Tribal

Peoples ..................................................................................................9

B. LandsandTerritories ......................................................................................................................13C. NaturalResources...........................................................................................................................13

IV. STATEOBLIGATIONSTOWARDSINDIGENOUSAND

TRIBALPEOPLESANDTHEIRMEMBERS .......................................................................................................14

A. RespectandEnsureRights..............................................................................................................14

B. SpecificObligationsOwedIndigenousandTribalPeoples .............................................................17

V. INDIGENOUSANDTRIBALPROPERTYRIGHTS:GENERALCONSIDERATIONS .............................................20

A. TheSpecialRelationshipbetweenIndigenousandTribalPeoples

andtheirTerritories........................................................................................................................20

B.

TheRight

to

Property

in

Inter

American

Human

Rights

Instruments.............................................22

C. FoundationsoftheRighttoTerritorialProperty ............................................................................26

D. LandManagementandRightsoverNaturalResources..................................................................28

VI. THESPECIFICCONTENTOFINDIGENOUSPROPERTYRIGHTSOVERTERRITORIES .....................................31

A. TheGeographicScopeofIndigenousPropertyRights....................................................................31

B. LegalTitleandRegistration.............................................................................................................33

C. LegalCertaintyofTitletoProperty.................................................................................................36

D. DelimitationandDemarcationofAncestralTerritory ....................................................................40

E. PossessionanduseofTerritory ......................................................................................................45

F. EffectiveSecurityagainstThirdPartyActsandClaims ...................................................................48

G. LegalConflictsoverTerritorialPropertywithThirdParties............................................................50

H. TheRighttoRestitutionofAncestralTerritory...............................................................................53

I.

Rightto

Basic

Services

and

Development.......................................................................................60

J. ExerciseoftheSpiritualRelationtoTerritoryandAccesstoSacredSites......................................61

K. ProtectionfromForcedDisplacement............................................................................................62

v


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Page

VII. HOWFAILURETOSECUREPROPERTYRIGHTSIMPAIRSTHEENJOYMENTOFOTHERHUMANRIGHTS ..........................................................................................................................63

A. TheRighttoLife ..............................................................................................................................64B. TheRighttoHealth ......................................................................................................................... 66

C.

Economicand

Social

Rights.............................................................................................................66

D. TheRighttoCulturalIdentityandReligiousFreedom ....................................................................66

E. LaborRights ....................................................................................................................................68

F. RighttoSelfdetermination ............................................................................................................69

G. RighttoPsychologicalandMoralIntegrity .....................................................................................69

H. CorrespondingStateObligations ....................................................................................................70

VIII. INDIGENOUSANDTRIBALPEOPLESRIGHTSOVERNATURALRESOURCES................................................73

A. GeneralConsiderations...................................................................................................................74

B. TheRighttoEnvironmentalIntegrity..............................................................................................78

C. TheRighttoEffectiveImplementationoftheExistingLegalStandards.........................................80

D. StateObligationsintheContextofDevelopmentandInvestmentProjectsand

ExtractiveConcessionsoverNaturalResources .............................................................................81

1.

Impactof

Development

and

Investment

Plans

or

Projects,

and

ofExtractiveConcessionsthatAffecttheEnvironment....................................................82

2. Statedutytopreventenvironmentaldamage .................................................................85

3. StateDutiesofImmediateAction:Suspension,Reparation,and

PreventionofFurtherDamages ........................................................................................86

4. SpecialRequirementsfortheImplementationofDevelopmentorInvestmentPlansorProjectsandtheGrantingofExtractiveConcessions

bytheStateinAncestralTerritories .................................................................................87

a. ApplytheInternationalLawofExpropriation....................................................90

b. NoApprovalofProjectsthatThreatenthePhysicalor

CulturalSurvivalofthePeople ...........................................................................91

c. Participation,Benefitsharing,andPriorEnvironmentalandSocial

Impact

Assessment ..................................................................................93

E. ControlandPreventionofIllegalExtractiveActivitiesinIndigenousTerritories..........................100

F. PreventionoftheEpidemiologicalandSocioculturalConsequences

ofDevelopmentActivities.............................................................................................................101

IX. RIGHTSOFCONSULTATIONANDPARTICIPATION.....................................................................................103

A. TheGeneralObligation .................................................................................................................103

B. ParticipationinRespecttoDecisionsoverNaturalResources .....................................................108

C. TheLimitedDutytoObtainPriorInformedConsent....................................................................119

X. RIGHTSTOSTATEPROTECTION,OFACCESSTOJUSTICEANDTOREPARATIONS ....................................122

A. AdministrativeProcedures............................................................................................................122

B. AccesstoJustice............................................................................................................................127

C.

Reparationsfor

Violations

of

the

Right

to

Territorial

Property ....................................................135

vi


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I. INTRODUCTION

1. Indigenous and tribal peoples have unique ways of life, and their worldview is based on theircloserelationshipwithland. Thelandstheytraditionallyuseandoccupyarecriticaltotheirphysical,culturaland

spiritualvitality.1 Thisuniquerelationshiptotraditionalterritorymaybeexpressedindifferentways,depending

on the particular indigenous people involved and its specific circumstances; it may include traditional use or

presence, maintenance of sacred or ceremonial sites, settlements or sporadic cultivation, seasonal or nomadic

gathering,huntingandfishing,thecustomaryuseofnaturalresourcesorotherelementscharacterizingindigenous

ortribal culture.2 As the InterAmerican Court of Human Rightshas pointed out, for indigenous communities,

relationstothe landarenotmerelyamatterofpossessionandproductionbutamaterialandspiritualelement

whichtheymustfullyenjoy,eventopreservetheircultural legacyandtransmit ittofuturegenerations.3 [T]o

guaranteetherightofindigenouspeoplestocommunalproperty,itisnecessarytotakeintoaccountthattheland

isclosely linkedtotheiroralexpressionsandtraditions,theircustomsand languages,theirartsandrituals,their

knowledgeandpractices inconnectionwithnature,culinaryart,customary law,dress,philosophy,andvalues.4

TheCommittee

for

the

Elimination

of

Racial

Discrimination

has

also

concluded

that

indigenous

peoples

territorial

rightsareunique,andencompassatraditionandacultural identificationof indigenouspeopleswiththeir lands

whichhasbeengenerallyrecognized.5

2. TherighttopropertypursuanttoArticle21oftheAmericanConventiononHumanRightsthushas singular importance for indigenous and tribal peoples, because the guarantee of the right to territorial

property is a fundamentalbasis for the development of indigenouscommunities culture, spiritual life, integrity

andeconomicsurvival.6 Itisarighttoterritorythatencompassestheuseandenjoymentofitsnaturalresources.

Itisdirectlyrelated,evenaprerequisite,toenjoymentoftherightstoanexistenceunderconditionsofdignity,to

food,water,health,life,7honor,dignity,freedomofconscienceandreligion,freedomofassociation,therightsof

the family, and freedom of movement and residence.8 Throughout the Americas, indigenous and tribal peoples

1IACHR,ReportNo.40/04,Case12.053,MayaIndigenousCommunitiesoftheToledoDistrict(Belize),October12,2004,par.155.

2I/ACourtH.R.,CaseoftheSawhoyamaxaIndigenousCommunityv.Paraguay.Merits,ReparationsandCosts. JudgmentofMarch

29,2006. SeriesCNo.146,par.131.

3 I/ACourtH.R.,CaseoftheMayagna(Sumo)AwasTingniCommunityv.Nicaragua. Merits,ReparationsandCosts. Judgmentof

January31,2001.SeriesCNo.79,par.149. I/ACourtH.R.,CaseoftheYakyeAxaIndigenousCommunityv.Paraguay.Merits,Reparationsand

Costs. Judgment of June 17, 2005. Series C No. 125, pars. 124, 131. I/A Court H.R.,Caseof thePlandeSnchezMassacre v.Guatemala.

ReparationsandCosts. JudgmentofNovember19,2004.SeriesCNo.116,par.85.

4 I/ACourtH.R.,CaseoftheYakyeAxa IndigenousCommunityv.Paraguay. Merits,ReparationsandCosts. JudgmentofJune17,

2005.SeriesCNo.125,par.154.

5CommitteefortheEliminationofRacialDiscrimination,Decision2(54)onAustralia,par.4;citedin:IACHR,ReportNo.75/02,Case

11.140,Mary

and

Carrie

Dann

(United

States),

December

27,

2002,

par.

130,

footnote

No.

97.

6IACHR,ArgumentsbeforetheInterAmericanCourtofHumanRightsinthecaseofSawhoyamaxav.Paraguay.Citedin:I/ACourt

H.R.,CaseoftheSawhoyamaxaIndigenousCommunityv.Paraguay. Merits,ReparationsandCosts. JudgmentofMarch29,2006.SeriesCNo.

146,par.113(a).

7IACHR,DemocracyandHumanRightsinVenezuela.Doc.OEA/Ser.L/V/II.Doc.54,30December2009,pars.10761080.

8 IACHR,Argumentsbeforethe InterAmericanCourtofHumanRights inthecaseofAwasTingniv.Nicaragua.Cited in: I/ACourt

H.R.,CaseoftheMayagna(Sumo)AwasTingniCommunityv.Nicaragua.Merits,ReparationsandCosts. JudgmentofJanuary31,2001. Series

CNo.79,par.140(f).


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2

insistthattheStateeffectivelyguaranteetheirrighttoliveintheirancestralterritoryandthustonotonlycarry

outtheirtraditionalsubsistenceactivities,butalsopreservetheirculturalidentity.9

3. Theorgansofthe InterAmericansystemhave longpaidparticularattentionto indigenousandtribal peoples right to communal property over their lands and natural resources, as a right in itself, and as a

guaranteeoftheeffectiveenjoymentofotherbasicrights. FortheIACHR,protectionoftherightof indigenous

peoplesto

their

ancestral

territory

is

an

especially

important

matter,

as

its

enjoyment

involves

not

only

protection

ofaneconomic[unit]butalsoprotectionofthehumanrightsofacollectivitywhoseeconomic,socialandcultural

developmentisbasedonitsrelationshipwiththeland.10

TheInterAmericanCourt,foritspart,hasunderscored

that indigenous peoples territorial rights concern the collective right to survival as an organized people, with

controlovertheir habitatasanecessarycondition for reproductionoftheirculture, fortheir owndevelopment

andtocarryouttheirlifeaspirations.11

4. Thisreportcompilesanddiscussesthescopeof indigenousandtribalpeoplesrightsovertheirterritories, lands, and natural resources. It is based on the legal instruments of the InterAmerican system, as

interpretedbytheInterAmericanCommissiononHumanRights[IACHR]andtheInterAmericanCourtofHuman

Rights[IACourt] inthe lightofdevelopments ingeneral internationalhumanrights law.Italsoaimstopointout

specific problems, guidelines, and best practices to enhance the enjoyment of human rights by indigenous and

tribalpeoplesacrosstheHemisphere.12

II. SOURCESOFLAW

A. InterAmericanHumanRightsInstruments

5. Inthe InterAmerican humanrightssystem, indigenousandtribalpeoplesterritorial rights areencompassedmainlywithinArticleXXIIIoftheAmericanDeclarationoftheRightsandDutiesofMan

13[American

Declaration] and Article 21 of the American Convention on Human Rights14

[American Convention]. Although

9IACHR,ArgumentsbeforetheInterAmericanCourtofHumanRightsinthecaseofYakyeAxav.Paraguay. Citedin:I/ACourtH.R.,

Caseof theYakyeAxa IndigenousCommunityv.Paraguay. Merits,ReparationsandCosts. Judgment of June 17, 2005. Series C No. 125,

par.157(c).

10IACHR,ArgumentsbeforetheInterAmericanCourtofHumanRightsinthecaseofYakyeAxav.Paraguay.Citedin:I/ACourtH.R.,

Caseof

the

Yakye

Axa

Indigenous

Community

v.

Paraguay.

Merits,

Reparations

and

Costs.

Judgment

of

June

17,

2005.

Series

C

No.

125,

par.120(c).

11 I/ACourtH.R.,CaseoftheYakyeAxa IndigenousCommunityv.Paraguay. Merits,ReparationsandCosts.JudgmentofJune17,

2005. Series C No. 125, par. 146. For the InterAmerican Court, [p]roperty of the land ensures that the members of the indigenous

communitiespreservetheirculturalheritage[I/ACourtH.R.,CaseoftheYakyeAxa IndigenousCommunityv.Paraguay.Merits,Reparations

andCosts. JudgmentofJune17,2005.SeriesCNo.125,par.146]. Indigenousandtribalpeopleshaveacollectiverighttosurvivalasorganized

peoples; when the ancestral rights of indigenous peoples over their territories are affected, other basic rights such as the right to cultural

identity or to survival of indigenous communities and their members can be affected [I/A Court H.R., Case of the YakyeAxa Indigenous

Community v. Paraguay. Merits,Reparations and Costs. Judgment of June 17, 2005. Series C No. 125, pars. 146, 147]. The IACHR has

explained in this line that the ancestral territory claimed by indigenous communities is the only place where they will be completely free

becauseitisthelandthatbelongstothem[IACHR,ArgumentsbeforetheInterAmericanCourtofHumanRightsinthecaseofYakyeAxav.

Paraguay. Citedin:I/ACourtH.R.,CaseoftheYakyeAxaIndigenousCommunityv.Paraguay. Merits,ReparationsandCosts. JudgmentofJune

17,2005.SeriesCNo.125,par.120(g)].

12ThepresentStudyreflectstheworkofthreeRapporteursontheRightsofIndigenousPeoplesoftheInterAmericanCommission

onHuman

Rights.

It

was

approved

by

the

IACHR

on

December

30,

2009,

having

been

conducted

at

the

initiative

of

Rapporteur

Paolo

Carozza,

andunderthedirectionofthenextRapporteur,VctorAbramovich.Duringitsprocessofeditingandupdatingpriortoprinting,itreceivedan

importantcontributionfromthecurrentRapporteur,DinahShelton.

13ArticleXXIII:Everypersonhasarighttoownsuchprivatepropertyasmeetstheessentialneedsofdecentlivingandhelpstomaintain

thedignityoftheindividualandofthehome.

14Article21.RighttoProperty.1.Everyonehastherighttotheuseandenjoymentofhisproperty.Thelawmaysubordinatesuch

useandenjoymenttothe interestofsociety.//2.Nooneshallbedeprivedofhispropertyexceptuponpaymentofjustcompensation,for

reasonsofpublicutilityorsocial interest,and inthecasesandaccordingtotheformsestablishedby law.//3.Usuryandanyotherformof

exploitationofmanbymanshallbeprohibitedbylaw.


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3

neitherofthesearticles expresslyaddresses therightsof indigenousortribalpeoples, the IACHRandthe Inter

AmericanCourthavefoundthatbothtextsprotecttherightsthatsuchpeoplesandtheirmembershaveinrespect

totheirlandandnaturalresources,thatis,overtheirterritories.

6. Inthecourseofrecentyears,thejurisprudenceoftheInterAmericanhumanrightssystemhascontributedto developing theminimum contents of indigenouspeoples right to communal property over their

lands,territories

and

natural

resources,

based

on

the

provisions

of

the

American

Convention

and

the

American

Declaration, interpreted in light of the provisions of the International Labour Organization (ILO) Convention No.

169,15

theUnitedNationsDeclarationoftheRightsofIndigenousPeoples,16

theDraftAmericanDeclarationofthe

RightsofIndigenousPeoplesandotherrelevantsources,allofwhichcomposeacoherentcorpusiuristhatdefines

theobligationsofOASMemberStateswithregardtotheprotectionof indigenouspropertyrights. Thepresent

ChapteranalyzesthelegalsourceswhichhavebeenusedbytheorgansoftheInterAmericansystem,andbyother

internationalhumanrightsorgansandmechanisms, inderivingthebasiccontentsoftherightto indigenousand

tribalpropertyoverlands,territoriesandnaturalresources.

TheAmericanDeclarationoftheRightsandDutiesofMan

7. The American Declaration of the Rights and Duties of Man is a source of legal obligation formemberstatesoftheOAS,

17ensuingfromtheirhumanrightsobligationscontainedintheOASCharter(Art.3).

18

Memberstates

have

agreed

that

the

human

rights

to

which

the

Charter

refers

are

contained

and

defined

in

the

AmericanDeclaration.19

ManyoftheDeclarationscentralprovisionsarealsobindingascustomary international

law.20

8. TheAmericanDeclarationcontainsevolvingstandardsthatmustbe interpretedinthe lightofdevelopmentsinthefieldofinternationalhumanrightslawsincetheDeclarationwasfirstcomposedandwithdue

regardtootherrelevantrulesofinternationallawapplicabletomemberstates.21

TheIACHRthusinterpretsand

Continued

15ConventionNo.169ofthe InternationalLaborOrganizationon IndigenousandTribalPeoples in IndependentCountries (1989),

adoptedJune27,1989,bytheGeneralConferenceoftheInternationalLaborOrganizationatits76th

meeting,enteredintoforceonSeptember

5,1991,inkeepingwithitsArticle38.

16 United Nations Declaration on the Rights of Indigenous Peoples, adopted by the UN General Assembly through Resolution

A/61/295,61stperiodofsessions(September13,2007).

17 IACHR, Report No. 75/02, Case 11.140, Mary and Carrie Dann (United States), December 27, 2002, par. 163. I/A Court H.R.,

InterpretationoftheAmericanDeclarationoftheRightsandDutiesofManwithintheFrameworkofArticle64oftheAmericanConventionon

HumanRights.AdvisoryOpinionOC10/89ofJuly14,1989,SeriesANo.10,pars.3445.IACHR,Resolution3/87,Case9647,JamesTerryRoach

andJayPinkerton(UnitedStates),September22,1987,pars.4649.IACHR,Resolution18/89,Case10.116,MacLean(Suriname). IACHR,Report

No. 48/01, Case 12.067, Michael Edwardsetal. (Bahamas). IACHR, Report No. 52/01, Case12.243, Juan Ral Garza (UnitedStates), April4,

2001.

18IACHR,ReportNo.75/02,Case11.140,MaryandCarrieDann(UnitedStates),December27,2002,par.163.

19IACHR,ReportNo.75/02,Case11.140,MaryandCarrieDann(UnitedStates),December27,2002,par.163.OASGeneralAssembly

ResolutionNo.371/78,AG/RES(VIIIO/78),July1st,1978(reaffirmingMemberStatescommitmenttopromotecompliancewiththeAmerican

DeclarationontheRightsandDutiesofMan).GeneralAssemblyResolutionNo.370/78,AG/Res.370 (VIIIO/78), July1st,1978 (referringto

MemberStatesinternationalcommitmenttorespecttherightsrecognizedintheDeclaration).

20 IACHR,ReportNo.75/02,Case11.140,MaryandCarrieDann (UnitedStates),December27,2002,par.163. IACHR,ReportNo.

19/02,Case12.379,LaresReyesetal.(UnitedStates),February27,2002,par.46.

21 IACHR, Report No. 75/02, Case 11.140, Mary and Carrie Dann (United States), December 27, 2002, par. 96. IACHR, Report No.

40/04,Case12.053,MayaIndigenousCommunitiesoftheToledoDistrict(Belize),October12,2004,par.86.I/ACourtH.R., Interpretationof

theAmericanDeclarationoftheRightsandDutiesofManwithintheFrameworkofArticle64oftheAmericanConventiononHumanRights.

AdvisoryOpinionOC10/89of July 14,1989,SeriesANo.10,par.37. I/ACourtH.R.,TheRightto InformationonConsularAssistance inthe

FrameworkoftheGuaranteesoftheDueProcessofLaw.AdvisoryOpinionOC16/99ofOctober1st

,1999.SeriesANo.16,par.114. IACHR,

ReportNo.52/02,Case11.753,RamnMartnezVillarreal(UnitedStates).TheIACHRhasexplainedinthislinethattheAmericanDeclarationof

theRightsandDutiesofMan,whichestablishestheexistingandevolvingobligationsofMemberStatesundertheOASCharter, isnottobe

interpreted or applied with the content of International Law as it existed at the moment of its adoption, but in light of the continuous

developments in the rights protected therein under the corpus of International Human Rights Law in its present state. [IACHR, Report No.

75/02, Case 11.140, Mary and Carrie Dann (United States), December 27, 2002, par. 167. I/A Court H.R., Interpretation of the American


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4

applies the pertinent provisions of the American Declaration in light of current developments in the field of

international human rights law, as evidenced by treaties, custom and other relevant sources of international

law,22

including the American Convention on Human Rights which, in many instances, may be considered to

representanauthoritativeexpressionofthefundamentalprinciplessetforthintheAmericanDeclaration.23

9. Thecorpusof international lawthat isrelevant inexaminingcomplaintsconcerning indigenousterritories

under

the

American

Declaration

includes

the

developing

norms

and

principles

governing

the

human

rightsofindigenouspeoples.24

TheprovisionsoftheAmericanDeclarationthusmustbeinterpretedandapplied

with due regard to the particular principles of international human rights law governing the individual and

collectiveinterestsof indigenouspeoples.25

Suchnormsandprinciplesof international lawincludepreceptson

theprotectionof indigenousandtribalpeoplestraditionalformsofownershipandculturalsurvivalandontheir

right to lands, territories and natural resources.26

As such, they reflect general international legal principles

developingoutofandapplicable insideandoutsideoftheInterAmericansystemandtothisextentareproperly

considered in interpretingandapplyingtheprovisionsoftheAmericanDeclaration inthecontextof indigenous

peoples.27

TheAmericanConventiononHumanRights

10. Various articles of the American Convention on Human Rights, but mainly Article 21 (right toproperty),

protect

the

territorial

rights

of

indigenous

and

tribal

peoples

and

their

members.

In

the

absence

of

express reference to indigenous and tribal peoples in Article 21, the IACHR and the InterAmerican Court have

utilized the general rules of interpretation established in Article 31 of the Vienna Convention on the Law of

Treaties28

andArticle29.boftheAmericanConvention. Article29prohibitsrestrictiveinterpretationsoftherights

enshrined in the American Convention (pro homine principle); as a result, the IACHR and the Court have

interpreted the content of Article 21 of the American Convention in the light of normative developments in

internationalhumanrights lawregardingtherightsof indigenouspeoples, includingILOConventionNo.169and

continuation

DeclarationoftheRightsandDutiesofManwithintheFrameworkofArticle64oftheAmericanConventiononHumanRights.AdvisoryOpinion

OC10/89

of

July

14,

1989,

Series

A

No.

10,

par.

37]

The

IACHR

has

also

held

that

in

cases

were

aviolation

of

the

human

rights

of

indigenous

peoplesortheirmembersbyStateauthoritiestookplaceinthepast,butsuchviolationhashadcontinuouseffectsuntilthepresent,theState

isunderthecurrentobligationofsolvingthesituationinlightofitscontemporaryobligationsunderInternationalHumanRightsLaw,andnotin

lightoftheobligationsthatwereapplicableatthemomentinwhichtheviolationtookplace.[IACHR,ReportNo.75/02,Case11.140,Maryand

CarrieDann(UnitedStates),December27,2002,par.167].

22 IACHR,ReportNo.40/04,Case12.053,Maya IndigenousCommunitiesoftheToledoDistrict(Belize),October12,2004,par.88.

IACHR,ReportNo.75/02,Case11.140,MaryandCarrieDann(UnitedStates),December27,2002,par.96.

23 IACHR,ReportNo.75/02,Case11.140,MaryandCarrieDann(UnitedStates),December27,2002,pars.97,124. IACHR,Report

No.40/04,Case12.053,MayaIndigenousCommunitiesoftheToledoDistrict(Belize),October12,2004,par.87.IACHR,ReportontheSituation

ofHumanRightsofAsylumSeekerswithintheCanadianRefugeeDeterminationSystem.Doc.OEA/Ser.L/V/II.106,Doc.28,February28,2000,

par.38.IACHR,ReportNo.52/01,Case12.243,JuanRalGarza(UnitedStates),April4,2001,pars.8889.



26The rules and principles of International Lawon thehuman rights of indigenous and tribalpeoples and their members include

humanrightsconsiderationsrelatedtotheownership,useandoccupationoftheirtraditional lands.[IACHR,ReportNo.75/02,Case11.140,

MaryandCarrieDann(UnitedStates),December27,2002,par.124].


28ThisevolutionaryinterpretationoftheAmericanConventionisconsistentwiththeinterpretationrulesestablishedinArticle31of

theViennaConventionontheLawofTreatiesbetweenStatesof1969,byvirtueofwhichtheInterAmericanorganshaveappliedamethodof

interpretation that takes the system in which the respective treaties are inscribed into account. [I/A Court H.R., Case of the YakyeAxa

IndigenousCommunityv.Paraguay.Merits,ReparationsandCosts.JudgmentofJune17,2005.SeriesCNo.125,pars.125,126].


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5

theUnitedNationsDeclarationontheRightsof IndigenousPeoples,aswellastherelevantjurisprudenceofthe

UnitedNationstreatybodies.29

11. The IACHRand InterAmericanCourtalsoapplytheprincipleofeffectiveness, establishingthatthedistinctivetraitsthatdifferentiatethemembersofindigenousandtribalpeoplesfromthegeneralpopulation,

and which comprise their cultural identity, must be taken into consideration30

in order to ensure effective

protection

that

takes

into

account

their

specificities,

their

economic

and

social

characteristics,

as

well

as

theirsituationofspecialvulnerability,theircustomarylaw,values,andcustoms.

31

B. ILOConventionNo.169

12. In respect to the indigenous right to property, the organs of the InterAmerican System haveexpresslyusedtheprovisionsofILOConventionNo.169.AsexplainedbytheInterAmericanCourt,inanalyzing

thecontentandscopeofArticle21oftheConvention inrelationtothecommunalpropertyofthemembersof

indigenouscommunities,theCourthastakenintoaccountConventionNo.169oftheILOinthelightofthegeneral

interpretation rules established under Article 29 of the Convention, in order to construe the provisions of the

aforementioned Article 21 in accordance with the evolution of the InterAmerican system considering the

developmentthathastakenplaceregardingthesematters in internationalhumanrights law.32

Forthe IACHR,

ILO Convention No. 169 is the international human rights instrument most relevant to the protection of

indigenousrights,33

for

which

reason

it

is

directly

pertinent

to

the

interpretation

of

the

scope

of

the

rights

of

indigenousandtribalpeoplesandtheirmembers,inparticularundertheAmericanDeclarationoftheRightsand

DutiesofMan.34

13. MostOASmemberstateswith large indigenouspopulationsarenowpartiesto ILOConventionNo. 169

35 and the Convention has been an important normative reference during their and other countries

processes of constitutional, legislative and institutional reform. The Convention has also served indigenous

peoples, helping them to structure their claims and promote legislative changes consistent with States

internationalobligationsinthefieldofindigenousrights.

14. The IACHRconsiderstheprovisionsof ILOConventionNo.169arelevant factor in interpretingInterAmericanhumanrightsnormsinrespecttopetitionsfiledagainstallOASmemberstates. Asexplainedinthe

reporton

the

Maya

Indigenous

Communities

of

the

Toledo

District

v.

Belize:

While

the

Commission

acknowledges

that Belize is not a state party to ILO Convention (N 169), it considers that the terms of that treaty provide

evidenceofcontemporaryinternationalopinionconcerningmattersrelatingtoindigenouspeoples,andtherefore

29 In this regard, the InterAmerican Court of Human Rights has stated that human rights treaties are live instruments whose

interpretationmustadapt tothe evolution of thetimes and, specifically, to current living conditions [I/A Court H.R.,Caseof theMayagna

(Sumo)AwasTingniCommunityv.Nicaragua.Merits,ReparationsandCosts.JudgmentofJanuary31,2001.SeriesCNo.79,par.146.I/ACourt

H.R.,TheRightto InformationonConsularAssistance intheFrameworkof theGuaranteesof theDueProcessofLaw.Advisory OpinionOC

16/99ofOctober1st

,1999.SeriesANo.16,par.114].

30 I/ACourtH.R.,CaseoftheYakyeAxa IndigenousCommunityv.Paraguay.Merits,ReparationsandCosts. Judgmentof June17,

2005. SeriesCNo.125,par.51.



32I/A

Court

H.R.,

Case

of

the

Sawhoyamaxa

Indigenous

Community

v.

Paraguay.

Merits,

Reparations

and

Costs.

Judgment

of

March

29,2006.SeriesCNo.146,par.117.

33IACHR,ThirdReportontheSituationofHumanRightsinParaguay.Doc.OEA/Ser./L/VII.110,Doc.52,March9,2001,Chapter IX,

par.12.IACHR,SecondReportontheSituationofHumanRightsinPeru.Doc.OEA/Ser.L/V/II.106,Doc.59rev.,June2,2000,ChapterX,par.7.


35 The following OAS member states are parties to ILO Convention No. 169: Argentina (2000); Bolivia (1991); Brazil (2002); Chile

(2008);Colombia(1991);CostaRica(1993);Dominica(2002);Ecuador(1998);Guatemala(1996);Honduras (1995);Mxico(1990);Nicaragua

(2010);Paraguay(1993);Peru(1994)andVenezuela(2002).


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6

that certain provisions are properly considered in interpreting and applying the articles of the American

Declarationinthecontextofindigenouscommunities.36

C. OtherInternationalTreatiesandPronouncementsofTreatyBodies

15. TheIACHRandtheInterAmericanCourtmaylooktotheprovisionsofotherinternationalhumanrights

treaties

in

interpreting

the

American

Declaration

and

the

American

Convention

in

cases

that

concern

indigenousandtribalpeoples. The IACHRhasclarifiedthattheprovisionsofothermultilateraltreatiesadopted

within and outside of the framework of the InterAmerican system are relevant to interpreting the American

DeclarationoftheRightsandDutiesofMan.37

TheInterAmericanCourt,whileanalyzingtheextentofArticle21

oftheAmericanConvention,hasexplainedthatitdeemsitusefulandappropriatetoresorttootherinternational

treaties,asidefromtheAmericanConvention()tointerpretitsprovisionsinaccordancewiththeevolutionofthe

InterAmericansystem,takingintoaccountrelateddevelopmentsininternationalhumanrightslaw.38

16. The IACHR and the Court have also had recourse to the interpretations of the United Nationshumanrightsorgansandmechanisms,inrespecttotherightsenshrinedintheinternationaltreatiesmonitoredby

theseorgansandmechanisms.39

OfparticularrelevancehasbeenthejurisprudencecraftedbytheHumanRights

Committeeinrelationtoarticles27(rightsofminorities)and1(selfdetermination)oftheInternationalCovenant

onCivilandPoliticalRights(ICCPR);40

theCommitteefortheEliminationofRacialDiscrimination(CEDR)inrelation

to

article

5

and

other

relevant

provisions

of

the

Convention

for

the

Elimination

of

All

Forms

of

Racial

Discrimination;41

the Committee on Economic, Social and Cultural Rights in its general comments on several

provisionsoftheICESCR,42

andtheCommitteeontheRightsoftheChildontheConventionontheRightsofthe

Child.43

36IACHR,ReportNo.40/04,Case12.053,MayaIndigenousCommunitiesoftheToledoDistrict(Belize),October12,2004,footnote

No.123.




39InthecaseoftheSaramakapeople,theInterAmericanCourtheldthatSurinamedidnotrecognizeinitsinternallegislationthe

righttocommunalpropertyofthemembersofitstribalpeoples,andthatithadnotratifiedILOConvention169.However,ithadratifiedboth

theInternationalCovenantonCivilandPoliticalRightsandtheInternationalCovenantonEconomic,SocialandCulturalRights;consequently,

theCourtresortedtothetextoftheseinstruments,asithadbeeninterpretedrespectivelybytheHumanRightsCommitteeandtheCommittee

on Economic, Social and Cultural Rights, for purposes of establishing the content of Article 21 of the American Convention as it applied to

Suriname inthatcase,reiteratingthatpursuanttoArticle29(b)oftheAmericanConvention,thisCourtmaynot interprettheprovisionsof

Article21oftheAmericanConventioninamannerthatrestrictsitsenjoymentandexercisetoalesserdegreethanwhatisrecognizedinsaid

covenants. [I/A Court H.R.,Caseof the SaramakaPeople v. Suriname.PreliminaryObjections,Merits,ReparationsandCosts. Judgment of

November28,2007.SeriesCNo.172,par.93] See,ingeneral:UNHumanRightsCouncil,ReportoftheSpecialRapporteuronthesituationof

humanrightsandfundamentalfreedomsofindigenouspeople(Mr.JamesAnaya),UNDoc.A/HRC/9/9(August11,2008),pars.2030.

40 In its General Comment on Article 27 of the ICCPR, the Human Rights Committee expressly linked States duty to guarantee

indigenous peoples right to enjoy their culture to the protection of their ways of life, closely linked to territory and resource use. General

CommentNo.23(1994):Article27(rightsofminorities),CCPR/C/21/rev.1/Add.5(1994),par.7.

41In1997theCommitteeontheEliminationofRacialDiscriminationadopteditsGeneralRecommendationonindigenouspeoples,

inwhichitsetforth,interalia,theobligationsofStatesPartiesinrelationtotheprotectionofindigenouslandsandterritories,andunderscored

the right of indigenous peoples to to own, develop, control and use their communal lands, territories and resources. General

RecommendationXXIII:IndigenousPeoples,CERD/C/51/Misc.23/rev.1(1997),para.5.

42SeveralofthegeneralcommentsbytheCommitteeonEconomic,SocialandCulturalRightsareofspecialrelevancefortherights

of indigenous peoples to their lands, territories, and natural resources. See, e.g., General Comment No. 7 (1997): The right to adequate

housing:forcedevictions(Article11(1)),E/1998/22,annex IV,para.10;GeneralCommentNo.12(1999):Therighttoadequatefood(Article

11), E/C.12/1999/5, para. 13; General Comment No. 14 (2000), The right to the highest attainable standard of health (Article 12),

E/C.12/2000/4,paras.12(b)and27;GeneralCommentNo.15(2002):Therighttowater(Articles11and12)E/C.12/2002/11,paras.7,16.

43 The Committee has linked the rights of indigenous children to the protection of the property rights of their communities and

peoples:theright[ofthechild],incommunitywithothermembersofhisorhergroup,toenjoyhisorherownculture,toprofessandpractice

hisorherownreligionortousehisorherown languagemaybecloselyassociatedwiththeuseoftraditionalterritoryandtheuseof its

resources.GeneralCommentNo.11(2009): IndigenouschildrenandtheirrightsundertheConvention,CRC/C/GC/11(2009),par.16.


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7

17. Althoughnotspecificallyfocusedontheissue,otherinternationaltreatiesincorporateprovisionsthat are relevant for indigenous peoples rights over their lands, territories and natural resources. Of particular

pertinence isArticle8(j)oftheBiologicalDiversityConvention (1992),whichcallsonStatestorespect,preserve

andmaintainknowledge, innovationsandpracticesof indigenousand localcommunitiesembodyingtraditional

lifestyles relevant for the conservation and sustainable use of biological diversity and promote their wider

application

with

the

participation

of

these

communities

and

for

their

benefit.

The

Biodiversity

Conventionsimplementationprocessisequallyrelevantfortheprotectionofrightsassociatedtoindigenouspeoplesproperty

overtheirlands,territoriesandresources. In2004,theConferenceofthePartiestotheConventionadoptedthe

Akw:KonVoluntaryGuidelinesfortheconductionofcultural,environmentalandsocial impactassessments in

casesofprojectstobedevelopedinindigenousterritories,includingsacredsites.44

D. InternationalCustomaryLaw

18. TheInterAmericanorganshavealsoidentifiedinternationalcustomarylawasalegalgroundforindigenous and tribal peoples right to territorial property. In the IACHRs opinion, there is a customary

internationallawnormwhichaffirmstherightsofindigenouspeoplestotheirtraditionallands.45

E. OtherInternationalInstruments

19. TheIACHRandtheInterAmericanCourt,intheirelaborationoftherighttoindigenousproperty,viewasrelevantand importanttheUnitedNationsDeclaration on theRightsof IndigenousPeoples.

46 Since its

adoptionbytheUNGeneralAssembly in2007,theDeclarationoftheRightsofIndigenousPeopleshasbegunto

playarolesimilartothatofConventionNo.169asaguide fortheadoptionand implementationofnormsand

public policies in the countries of the InterAmerican system. Its provisions, together with the Systems

jurisprudence,constituteacorpusiuriswhichisapplicableinrelationtoindigenouspeoplesrights,andspecifically

inrelationtotherecognitionandprotectionoftherighttocommunalproperty. TheIACHRhasappreciated,asa

legislativeadvance,thelegalincorporationoftheUNDeclarationoftheRightsofIndigenousPeoplesintodomestic

law, and has called upon States to provide information on its implementation.47

The InterAmerican Court has

resortedtoitsprovisionsinordertoconstruespecificrights.48

20. InterAmericanorganshavealsomadereferencetothefindingsoftheUNSpecialRapporteuronthe situation of human rights and fundamental liberties of indigenous people. The Rapporteurs mandate,established in2001,

49 infusednewsupportfortherightto indigenouscollectiveproperty intotheframeworkof

the United Nations special procedures.50

The Special Rapporteur has actively promoted indigenous territorial

rightsthroughcommunicationswithStates,reportsoncountryvisits,andthematicreports.

44Voluntaryguidelinesfortheconductofcultural,environmentalandsocialimpactassessmentsregardingdevelopmentsproposed

totakeplaceonorwhicharelikelytoimpacton,sacredsitesandonlandsandwaterstraditionallyoccupiedorusedbyindigenousandlocal

communities,COP7(KualaLumpur,February920,2004),DecisionVII/16,Annex[Akw:KonGuidelines].

45IACHR,ArgumentsbeforetheInterAmericanCourtofHumanRightsinthecaseoftheAwasTingnicommunityv.Nicaragua.Cited

in:I/ACourtH.R.,CaseoftheMayagna(Sumo)AwasTingnicommunityv.Nicaragua.Merits,ReparationsandCosts. JudgmentofAugust31,

2001. SeriesCNo.79,par.140(d).

46UnitedNationsDeclarationontheRightsof IndigenousPeoples,adoptedbytheUNGeneralAssemblybyResolutionA/61/295,

61stperiodofsessions(September13,2007).

47 IACHR, Followup Report Access toJustice and Social Inclusion: The Road towards StrengtheningDemocracy in Bolivia. Doc.

OEA/Ser/L/V/II.135,Doc.40,August7,2009,par.134.

48 I/ACourtH.R.,CaseoftheSaramakaPeoplev.Suriname. PreliminaryObjections,Merits,ReparationsandCosts. Judgment of

November28,2007.SeriesCNo.172,par.131.

49Resolution2001/57oftheCommissiononHumanRights:Humanrightsandindigenousissues(April24,2001).

50Resolution6/12oftheHumanRightsCouncil:Humanrightsandindigenouspeoples: mandateoftheSpecialRapporteuronthe

situationofhumanrightsandfundamentalfreedomsofindigenouspeople(September28,2007).


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21. OtherUnitedNationsmechanismswithspecificmandatesrelatedto indigenouspeoplesrightshave also contributed to international discussions surrounding indigenous peoples property rights over lands,

territoriesandnaturalresources.It isnoteworthytomentionthethematicreportsoftheformerWorkingGroup

on IndigenousPopulations51

andthediversereportssubmittedannuallybythe members andtheSecretariatof

theUNPermanentForumonIndigenousIssues.52

22. Finally, indigenouspropertyrightsarepartofthearrayofrights included inthedraftAmericanDeclarationontheRightsofIndigenousPeoples. Atits95

thsessioninFebruary1997,theIACHRapprovedaDraft

American Declaration on the Rights of Indigenous Peoples.53

A meeting of governmental experts held a

consultationwithstakeholdersattheOASinFebruary1999. Theexpertsdecidedtoopenanegotiationprocessto

seekconsensus, invitingthebroadparticipationof indigenouspeoples.54

In2006,theWorkingGroup initiateda

final phase for review of the text of the draft Declaration,55

and negotiations on its content are currently

unfolding within this phase. While the provisions of the draft American Declaration related to the rights of

indigenous peoples to lands, territories and natural resources are pending final approval,56

the IACHR and

individualmembersoftheInterAmericanCourthavedrawnontheseprovisionsasanexpressionofanemerging

normativeconsensusaroundthecontentofthoserightsinthecontextoftheInterAmericansystem.57

F. DomesticLaw

23. The IACHR and the Court have looked to the constitutional and legislative developments ofspecificcountries,becausetherighttopropertyembodiedintheAmericanConventioncannotbeinterpretedin

isolation,butrathertakingintoaccounttheoveralllegalsysteminwhichitexists,bearinginmindbothdomestic

and international law, in light of Article 29 of the Convention.58

The InterAmerican Court of Human Rights

considersthatArticle29(b)oftheConventionprohibitsaninterpretationofanyprovisionoftheConventionin

amannerthatrestrictsitsenjoymenttoalesserdegreethanwhatisrecognizedinthedomesticlawsoftheState

51Seee.g. Indigenouspeoplesandtheirrelationshipto land: FinalworkingpaperpreparedbytheSpecialRapporteurMrs.Erica

Irene Daes, E/CN.4/Sub.2/2001/21 (June 11, 2001); Indigenous peoples' permanent sovereignty over natural resources: Final report of the

SpecialRapporteur,Mrs.EricaIreneDaes,E/CN.4/Sub.2/2004/30(July13,2004).Legalcommentaryontheconceptoffree,priorandinformed

consent:Expanded

working

paper

submitted

by

Ms.

Antoanella

Julia

Motoc

and

the

Tebtebba

Foundation

offering

guidelines

to

govern

the

practiceofimplementationoftheprincipleoffree,priorandinformedconsentofindigenouspeoplesinrelationtodevelopmentaffectingtheir

landsandnaturalresources,E/CN.4/Sub.2/AC.4/2005/WP.1(July14,2005).

52 See, e.g. Report of the International Workshop on Methodologies regarding Free, Prior and Informed Consent and Indigenous

Peoples,E/C.19/2005/3(February17,2005).

53 Proposed American Declaration on the Rights of Indigenous Peoples, adopted by the InterAmerican Commission on Human

Rights,February26,1997,atits133rd

session,95th

regularsession,CP/doc.2878/97corr.1.

54 Resolution of the General Assembly of the OAS AG/RES. 1610 (XXIXO/99): Proposed American Declaration on the Rights of

IndigenousPeoples(June7,1999).

55Procedureforpromptlyconcludingnegotiations inthequestforpointsofconsensusoftheWorkingGrouptopreparethedraft

AmericanDeclarationontheRightsofIndigenousPeoples,OEA/Ser.K/XVI,GT/DADIN/doc.246/06rev.7(November27,2006).

56As of the writing of this report, the articles of the draft American Declaration on the rights of indigenous peoples tothe land,

territories,

and

natural

resources

are

still

pending

approval.

See

more

information

at:http://www.oas.org/dil/indigenous_peoples_preparing_draft_american_declaration.htm.

57SeparateopinionofJudgeSergioGarcaRamrezinCaseoftheMayagna(Sumo)AwasTingniCommunity,August31,2001,para.8.

Danncase,para.129;CaseofMayaCommunities,para.118.

58IACHR,ArgumentsbeforetheInterAmericanCourtofHumanRightsinthecaseoftheYakyeAxacommunityv.Paraguay.Citedin:

I/ACourtH.R.,CaseoftheYakyeAxaIndigenousCommunityv.Paraguay. Merits,ReparationsandCosts. JudgmentofJune17,2005. SeriesC

No.125,par.120(a).
http://www.oas.org/dil/indigenous_peoples_preparing_draft_american_declaration.htmhttp://www.oas.org/dil/indigenous_peoples_preparing_draft_american_declaration.htm


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inquestionorinanothertreatytowhichtheStateisaparty.59

Accordingly,theCourthasinterpretedArticle21

oftheConventioninlightofthedomesticlawpertainingtoindigenouspeoples rights.60

III. DEFINITIONS

A. IndigenousPeoples;TribalPeoples

24. In addition to the full panoply of national and international rights accorded all individuals,61internationalhumanrights lawestablishesasetofspecific individualandcollectiverightsfor indigenouspeoples

andtheirmembers.62

Inmostdomesticlegalsystems,aswell,thecategoryindigenouspeoplesisdistinguished

from others such as peasant communities,63

or minorities. For this reason, it is necessary to identify the

criteriaunderwhichagivengroupcanbesodesignated.

Indigenouspeoples

25. There is no precise definition of indigenous peoples in international law, and the prevailingposition is that such a definition is not necessary for purposes of protecting their human rights.

64 Given the

immense diversity of the indigenous peoples of the Americas and the rest of the world, a strict and closed

definition will always risk being over or underinclusive. International law does provide some useful criteria to

determinewhen

agiven

human

group

can

be

considered

as

an

indigenous

people.

Such

adetermination

has

criticalimportanceininternationallaw.

26. WhileneithertheInterAmericanhumanrights instruments,northejurisprudenceoftheInterAmericanprotectionorgans,havedeterminedexactlythecriteriaforconstitutinganindigenouspeople,relevant

criteria have been established in other international instruments, such as ILO Convention No. 169, the United

NationsDeclarationontheRightsofIndigenousPeoples,andothers.65

27. Article1.1(b)ofILOConventionNo.169statesthatthetreatyshallapplytopeoples in independentcountrieswhoareregardedas indigenousonaccountoftheirdescent from the

populationswhichinhabitedthecountry,orageographicalregiontowhichthecountrybelongs,atthetime

ofconquestorcolonizationortheestablishmentofpresentstateboundariesandwho,irrespectiveoftheir

legalstatus,retainsomeoralloftheirownsocial,economic,culturalandpoliticalinstitutions.


November28,2007. SeriesCNo.172,par.92.



61 In this sense, Article 1 of the United Nations Declaration on the Rights of Indigenous Peoples establishes that [i]ndigenous

peopleshavetherighttothefullenjoyment,asacollectiveoras individuals,ofallhumanrightsandfundamentalfreedomsasrecognizedin

theCharteroftheUnitedNations,theUniversalDeclarationofHumanRightsandinternationalhumanrightslaw. Likewise,Article3.1ofILO

Convention No. 169 providesthat [i]ndigenousand tribal peoples shall enjoy the full measure of human rights and fundamental freedoms

withouthindranceordiscrimination.

62I/A

Court

H.R.,

Case

of

the

Saramaka

People

v.

Suriname.

Preliminary

Objections,

Merits,

Reparations

and

Costs.

Judgment

of


63IACHR,AccesstoJusticeandSocialInclusion:TheRoadtowardsStrengtheningDemocracyinBolivia.Doc.OEA/Ser.L/V/II,Doc.34,

June28,2007,par.216.

64ILO,Indigenous&TribalpeoplesrightsinpracticeAguidetoILOConventionNo.169.ProgrammetoPromoteILOConvention

No.169(PRO169),InternationalLabourStandardsDepartment,2009,p.9.

65 United Nations Development Group Guidelines on Indigenous Peoples Issues. February 2008, p. 8. Available at:

http://www2.ohchr.org/english/issues/indigenous/docs/guidelines.pdf
http://www2.ohchr.org/english/issues/indigenous/docs/guidelines.pdfhttp://www2.ohchr.org/english/issues/indigenous/docs/guidelines.pdfhttp://www2.ohchr.org/english/issues/indigenous/docs/guidelines.pdf


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28. Article1.2ofthesameCovenantestablishesthatselfidentificationasindigenousortribalshallbe regarded as a fundamental criterion for determining the groups to which the provisions of this Convention

apply.

29. IntheConventionNo.169ApplicationGuide,theILOexplainsthattheelementsthatdefineanindigenouspeoplearebothobjectiveandsubjective;objectiveelementsinclude:(i)historicalcontinuity, i.e.they

aresocieties

that

descend

from

groups

that

preceded

conquest

or

colonization;

(ii)

territorial

connection,

in

the

sense that their ancestors inhabited that country or region; and (iii) distinctive and specific social, economic,

culturalandpoliticalinstitutions,whicharetheirownandaretotallyorpartiallyretained. Thesubjectiveelement

correspondstocollectiveselfidentificationasanindigenouspeople.66

30. Otherinternationalbodiesapplysimilarcriteria. AstudyoftheUNWorkingGrouponIndigenousPopulations concluded that the factors relevant to understand the notion of indigenous include: (i) priority in

time,withregardtotheoccupationanduseofaspecificterritory;(ii)voluntaryperpetuationofculturalspecificity,

whichcanincludeaspectsoftheirlanguage,socialorganization,religionandspiritualvalues,modesofproduction,

legalformsandinstitutions;(iii)selfidentification,aswellasrecognitionbyothergroups,orbyStateauthorities,

as differentiated collectives; and (iv) an experience of subjugation, marginalization, dispossession, exclusion or

discrimination,whethertheseconditionspersistornot. Thesefactors,warnsthestudy,donotconstitute,norcan

they constitute, an inclusive or comprehensive definition; they are, rather, factors which can be present to a

greater

or

lesser

degree

in

different

regions

and

national

or

local

contexts,

for

which

reason

they

can

provide

generalguidelinesfortheadoptionofreasonabledecisions inpractice.67

TheUnitedNationsDeclarationonthe

RightsofIndigenousPeoples,inturn,optsfornotdefiningtheindigenouspeopleswhoarethebeneficiariesofits

provisions;nonetheless,Article33.1establishesthatindigenouspeopleshavetherighttodeterminetheirown

identityormembershipinaccordancewiththeircustomsandtraditions.

31. TakingILOConventionNo.169intoaccount,theIACHRhasalsounderscoredthatthecriterionofselfidentificationistheprincipalonefordeterminingtheconditionofindigenouspeople,bothindividuallyand

collectively.68

Inthisrespect,regardingindividualselfidentification,theIACHRhighlightedasapositiveadvance

thefactthatthe2001Bolivianpopulationcensusutilizedthecriterionofselfidentificationinordertoestablishthe

countrys percentage of indigenous inhabitants who were above the age of 15.69

As for collective self

identification,theInterAmericanCourtconsidersthattheidentificationofeachindigenouscommunityisasocial

historical

fact

that

forms

part

of

its

autonomy,70

for

which

reason

it

is

up

to

the

corresponding

community

to

identifyitsownname,compositionandethnicaffiliation,withouthavingtheStateorotherexternalentitiesdoit

orcontestittheInterAmericanbodiesandtheStatemustrespectthedeterminationspresentedinthissenseby

eachcommunity,thatistosay,itsownselfidentification.71

66Accordingto article1.2of ILO ConventionNo. 169,thesubjective element is a fundamentalcriterion for theclassificationof a

groupasindigenous. TheConventioncombinesbothsetsofelementsinordertoarriveatadeterminationinconcretecases.ILO,Indigenous

& Tribal peoples rights in practice A guide to ILO Convention No. 169. Programme to Promote ILO Convention No. 169 (PRO 169),

InternationalLabourStandardsDepartment,2009,p.9.

67 UN Economic and Social Council Commission on Human Rights Subcommission on Prevention of Discrimination and

ProtectionofMinoritiesWorkingGrouponIndigenousPopulations:WorkingPaperbytheChairpersonRapporteur,Mrs.EricaIreneA.Daes,

ontheconceptofindigenouspeople.UNDocumentE/CN.4/Sub.2/AC.4/1996/2,June10,1996,pars.6970.

68IACHR,

Access

to

Justice

and

Social

Inclusion:

The

Road

towards

Strengthening

Democracy

in

Bolivia.

Doc.

OEA/Ser.L/V/II,

Doc.

34,

June28,2007,par.216.

69IACHR,AccesstoJusticeandSocialInclusion: TheRoadtowardsStrengtheningDemocracyinBolivia. Doc.OEA/Ser.L/V/II,Doc.34,

June28,2007,par.217.

70I/ACourtH.R.,CaseoftheXkmokKsekIndigenousCommunityv.Paraguay.Merits,ReparationsandCosts. JudgmentofAugust

24,2010. SeriesCNo.214,par.37.


24,2010. SeriesCNo.214,par.37.


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11

Tribalpeoples

32. Tribalpeoplesarepeopleswhoarenot indigenoustotheregion[they inhabit],butthatsharesimilar characteristics with indigenous peoples, such as having social, cultural and economic traditions different

from other sections of the national community, identifying themselves with their ancestral territories, and

regulating themselves, at least partially, by their own norms, customs, and traditions.72

This definition is in

accordancewith

the

provisions

of

Article

1.1.(a)

of

ILO

Convention

No.

169.

33. Ashappenswithindigenouspeoples,thedeterminationofwhetherornotagivengroupcanbeconsidered as tribal depends on a combination of objective and subjective factors. According to the ILO, the

objectiveelementsoftribalpeoplesinclude(i)aculture,socialorganization,economicconditionsandwayof life

thataredifferentfromthoseofothersegmentsofthenationalpopulation,forexampletheirlivelihoods,language,

etc.;and(ii)distinctivetraditionsandcustoms,and/orspeciallegalrecognition. Thesubjectiveelementconsistsof

the selfidentification of these groups and their members as tribal. Thus, a fundamental element for the

determinationofatribalpeople iscollectiveand individualselfidentificationassuch. Thefundamentalcriterion

ofselfidentification,accordingtoArticle1.2ofILOConventionNo.169,isequallyapplicabletotribalpeoples.73

34. Tribal peoples and their members have the same rights as indigenous peoples and theirmembers. For the IACHR, international human rights law imposes an obligation on the State to adopt special

measuresto

guarantee

the

recognition

of

tribal

peoples

rights,

including

the

right

to

collectively

own

property.74

Thejurisprudence of the InterAmerican Court of Human Rights in relation to the right to collective property

appliesnotonlytoindigenouspeoples,butalsototribalpeopleswhopreservetheirtraditionalwaysoflifebased

onaspecial linktotheir landsandterritories. Thus, intheAleoboetoe,75

MoiwanaCommunity76

andSaramaka

cases, the victims belonged to different communities or peoples who form part of the Maroon population of

Suriname,descending fromselfemancipatedslavesthatsettled intheirterritoriessincethecolonialperiodand

arethereforenotregarded,strictosenso,asindigenous.TheCourtconsiderstheMaroontobetribalpeoples

andcommunities.77

TherelevanceofHistorytoidentifyingindigenousandtribalpeoples

35. A key element in the determination of when a given group can be regarded as indigenous ortribal

is

the

historical

continuity

of

its

presence

in

a

given

territory,

and,

for

indigenous

peoples,

an

ancestralrelationshipwiththesocietiesthatpreexistedaperiodofcolonizationorconquest. Thisdoesnotimply,however,

thatindigenousortribalpeoplesarestaticsocietiesthatremainidenticaltotheirpredecessors. Onthecontrary,

as humangroups, indigenous and tribal peoples havetheir own socialtrajectory that adapts to changingtimes,

maintaininginwholeorinparttheculturallegacyoftheirancestors.Indigenousculturesevolveovertime.78

The

Continued

72 I/A Court H.R.,Caseof theSaramakaPeoplev.Suriname.PreliminaryObjections,Merits,ReparationsandCosts. Judgment of


73ILO,Indigenous&TribalpeoplesrightsinpracticeAguidetoILOConventionNo.169. ProgrammetoPromoteILOConvention

No.169(PRO169),InternationalLabourStandardsDepartment,2009,p.9.

74IACHR,ArgumentsbeforetheInterAmericanCourtofHumanRightsinthecaseoftheSaramakapeoplev.Suriname.Citedin:I/A

CourtH.R.,CaseoftheSaramakaPeoplev.Suriname.PreliminaryObjections,Merits,ReparationsandCosts. JudgmentofNovember28,2007.

SeriesCNo.172,par.78.

75I/ACourtH.R.,CaseofAloeboetoeetal.v.Suriname.ReparationsandCosts. JudgmentofSeptember10,1993. SeriesCNo.15.

76I/ACourtH.R.,CaseoftheMoiwanaCommunityv.Suriname.PreliminaryObjections,Merits,ReparationsandCosts. Judgmentof

June15,2005. SeriesCNo.124.

77 Likewise, the IACHR has considered the situation of the Garifuna people of Central America and the Caribbean from the

perspectiveofthestandardsapplicabletoindigenouspeoples.

78 Just like any human society, indigenous peoplesand the communities that compose them have their own history. They are

dynamichumangroups,whoreconfigurethemselvesoverthecourseoftimeonthegroundsoftheculturaltraitsthatdistinguishthem.Indeed,

indigenousandtribalpeoplescultureiscontinuallyadaptingtohistoricalchanges;indigenousandtribalpeoplesdeveloptheirculturalidentity


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indigenouscommunitiesofthepresentarethedescendantsof inhabitantsofthepreColumbianAmericas;over

the centuries they have experienced specific events which have shaped their distinctive social structures,

spirituality and ritual practices, language, art, folklore, memory and identity in sum, their culture. It is on the

basisofthat individualanddynamichistorythattherelationshipofeach indigenouspeopleandcommunitywith

its territory is built, a relationship from which their physical and cultural subsistence emerges, and to which

internationallawhasgivenaprivilegedlevelofprotection.79

36. The history of indigenous peoples and their cultural adaptations over time, as constitutiveelements of their contemporary structural configuration, are consistent with the preservation of a fundamental

relationshiptotheirterritory.InthecaseofYakyeAxav.Paraguay,theInterAmericanCourtdescribedthehistory

oftheaffectedcommunityasfollows:

itisnecessarytoconsiderthatthevictimsoftheinstantcasehavetodateanawarenessofanexclusive

common history; they are the sedentary expression of one of the bands of the Chanawatsan indigenous

peoples (). Possession of their traditional territory is indelibly recorded in their historical memory, and

theirrelationshipwiththelandissuchthatseveringthattieentailsthecertainriskofanirreparableethnic

and cultural loss, with the ensuing loss of diversity. In the process of sedentarization, the Yakye Axa

Community took on an identity of its own that is connected to a physically and culturally determined

geographicspace,whichisaspecificpartofwhatwasthevastChanawatsanterritory80

.

37. It is also important to understand that the cultural identity of indigenous and tribal peoples issharedbytheirmembers,but it is inevitablethatsomemembersofeachgroupwill livewith lessattachmentto

the corresponding cultural traditions than others. This fact does not lead to the conclusion that indigenous or

tribalpeoples losetheir identity ortherightsconferredupon them by international law. Asthe InterAmerican

Court of Human Rights said in the case of the Saramakapeople v. Suriname: The fact that some individual

members of the Saramaka people may live outside of the traditional Saramaka territory and in a way that may

differ from other Saramakas who live within the traditional territory and in accordance withSaramaka customs

doesnotaffectthedistinctivenessofthistribalgroupnor itscommunaluseandenjoymentoftheirproperty.81

Insofarastheycontinuepreservingandlivingtheirownculturaltraditions,indigenousandtribalpeoplesandtheir

memberscontinuetohavetheindividualandcollectiverightsrecognizedbytheInterAmericansystem.

38. Likewise,indigenouscommunitiesmaybecomposedofpersonsandfamiliesthatbelongtomorethan

one

ethnic

group,

but

regard

and

identify

themselves

as

asingle

community.

This

multiethnic

composition

of

some indigenous communities, which responds to their position as historical subjects, is consistent with the

protectionandexerciseoftheirfullrangeofentitlementsunderinternationalhumanrightslaw.82

continuation

overtime.Inthissense,theIACHRhasrecognized,forexample,thattheGuatemalanindigenouspeoples,inspiteoftheethnicdiscrimination

towhichtheyhavehistoricallybeensubjected,whethertheyliveinruralorurbanareas,theymaintainanintenselevelofactivityandsocial

organization,arichculture,andarecontinuouslyadaptingtosituations imposedbytheexigenciesofhistoricalchange,whileprotectingand

developingtheirculturalidentity[IACHR,FifthReportontheSituationofHumanRightsinGuatemala.Doc.OEA/Ser.L/V/II.111,Doc.21rev.,

April6,2001,ChapterXI,par.4].

79 IACHR, Arguments before the InterAmerican Court of Human Rights in the case of the XkmokKsekcommunity v. Paraguay.

Citedin:I/ACourtH.R.,CaseoftheXkmokKsekIndigenousCommunityv.Paraguay.Merits,ReparationsandCosts. JudgmentofAugust24,


80 I/ACourtH.R.,CaseoftheYakyeAxa IndigenousCommunityv.Paraguay.Merits,ReparationsandCosts. JudgmentofJune17,

2005. SeriesCNo.125,par.216. Inthesamesense,see:I/ACourtH.R.,CaseoftheXkmokKsekIndigenousCommunityv.Paraguay. Merits,

ReparationsandCosts. JudgmentofAugust24,2010. SeriesCNo.214,pars.3743.

81 I/A Court H.R.,Caseof theSaramakaPeoplev.Suriname.PreliminaryObjections,Merits,ReparationsandCosts. Judgment of



24,2010. SeriesCNo.214,pars.3943. Inthiscase,thepetitionercommunitywascomposedmostlyofmembersoftwodistinctethnicgroups,

theEnxetSurandtheSanapana.


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B. LandsandTerritories

39. TheterritorialrightsofindigenousandtribalpeoplesandtheirmembersextendovertheEarthssurface,andoverthenaturalresourcesthatarelocatedonthesurfaceandinthesubsoilwithdueregardforthe

specificities of water and subsoil resources, as explained in Chapter VIII. Holistically, the lands and the natural

resourcesthey

contain

comprise

the

legal

notion

of

territory,

as

confirmed

by

the

Inter

American

Court.

83

ILO

Convention No. 169 in its Article 13.2, similarly provides that the use of the term lands () shall include the

concept of territories, which covers thetotal environment oftheareas which the peoples concerned occupy or

otherwiseuse.

40. The IACHR has acknowledged the value of the legislative incorporation of a broad concept ofindigenouslandandterritories,whereinthelattercategoryincludesnotonlyphysicallyoccup[ied]spacesbutalso

those used for their cultural or subsistence activities, such as routes of access,84

finding this approach to be

compatiblewiththeculturalrealityofindigenouspeoplesandtheirspecialrelationshipwiththelandandterritory,

as well as with natural resources and the environment in general.85

The occupation of a territory by an

indigenouspeopleorcommunity isthusnotrestrictedtothenucleusofhouseswhereitsmembers live;rather,

theterritoryincludesaphysicalareaconstitutedbyacoreareaofdwellings,naturalresources,crops,plantations

and their milieu, linked insofar as possible to their cultural tradition.86

In this same sense, the relationship

betweenindigenous

peoples

and

their

territories

is

not

limited

to

specific

villages

or

settlements;

territorial

use

and occupation by indigenous and tribal peoples extend beyond the settlement of specific villages to include

lands that are used for agriculture, hunting, fishing, gathering, transportation, cultural and other purposes;87

thereforeindigenousandtribalpeoplesrightsencompasstheterritoryasawhole.88

C. NaturalResources

41. NaturalresourcesaresubstancesthatexistnaturallyintheEarth.Naturalresourcesarevaluablein manufacturing products, supplying human necessities or comforts, and providing ecosystem services that

maintainthehealthofthebiosphere. Naturalresourcesincludeair,land,water,naturalgas,coal,oil,petroleum,

minerals,wood,topsoil,fauna,flora,forestsandwildlife.Renewablenaturalresourcesarethosethatreproduceor

renew and include animal life, plants, trees, water, and wind. Nonrenewable resources are irreplaceable once

extractedfrom

water

or

soil

and

include

gold,

silver,

fossil

fuels,

diamonds,

natural

gas,

copper

and

ore.

83Forthe InterAmericanCourt,thetermterritoryreferstothetotalityofthe landsandnaturalresourcesthat indigenousand

tribalpeopleshavetraditionallyused.I/ACourtH.R.,CaseoftheSaramakaPeoplev.Suriname.PreliminaryObjections,Merits,Reparationsand

Costs. JudgmentofNovember28,2007. SeriesCNo.172,footnoteNo.63.





86

IACHR,

Arguments

before

the

Inter

American

Court

of

Human

Rights

in

the

case

of

the

Yakye

Axa

community

v.

Paraguay.

Cited

in:

I/ACourtH.R.,CaseoftheYakyeAxaIndigenousCommunityv.Paraguay.Merits,ReparationsandCosts. JudgmentofJune17,2005. SeriesC

No.125,par.120(h).


88TheInterAmericanCourthasexplainedinthisregardthatthescopeofrespectaffordedtothemembersof[anindigenousor

tribalpeoples]territory[isnotlimited]solelytovillages,settlementsandagriculturalplots.Suchlimitationfailstotakeintoaccounttheall

encompassing relationship that members of indigenous and tribal peoples have with their territory as a whole, notjust with their villages,

settlements,andagriculturalplots.[I/ACourtH.R.,CaseoftheSaramakaPeoplev.Suriname. PreliminaryObjections,Merits,Reparationsand

Costs. JudgmentofNovember28,2007. SeriesCNo.172,par.114].


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IV. STATEOBLIGATIONSTOWARDSINDIGENOUSANDTRIBALPEOPLESANDTHEIRMEMBERS

A. RespectandEnsureRights

42. The dutyofOAS member Statesto promote and protect human rights stems from the humanrights obligations established in the OAS Charter. In addition, the American Convention and the American

Declarationestablish

aseries

of

State

obligations

to

promote

and

secure

the

effective

enjoyment

of

human

rights.

Articles1.1and2oftheConventionexpresslydemandthatStatesPartiesrespectandensurethefreeandfull

exerciseoftherightsrecognizedtherein,includingthroughtheadoptionofsuchlegislativeorothermeasuresas

maybenecessarytogiveeffecttothoserightsorfreedoms.

43. Article2oftheAmericanConventionplacesStatespartiesunderthegeneralobligationtoadjusttheir domestic legislation to the standards of the Convention so as to ensure the enjoyment of the rights it

embodies. The obligation ofadapting internal legislationto theAmerican Convention under Article2is, by its

very nature, one that must be reflected in actual results.89

States must, therefore, review their legislation,

procedures and practices so as to ensure that indigenous and tribal peoples and persons territorial rights are

definedanddetermined inaccordancewiththerightsestablished inInterAmericanhumanrights instruments.90

Asacorollary,Statesareundertheobligationtoabstainfromadoptinglegislativeoradministrativemeasuresofa

regressivenature,whichcanhindertheenjoymentofindigenouspeoplesterritorialrights.91

44. The IACHR has deemed it a good practice for states to adopt and promulgate rules in theirdomestic legal systems that recognize and protect the rights of indigenous peoples and their members,

92 but

juridicallybeneficial lawscannotbythemselvesguaranteetherightsofsuchpeoples.93

Statesmusteffectively

implementandenforcetheconstitutional,legislativeandregulatoryprovisionsoftheirinternallawthatenshrine

therightsofindigenousandtribalpeoplesandtheirmembers,soastoensuretherealandeffectiveenjoymentof

suchrights.94

Domesticlegalprovisionsforthispurposemustbeeffective(principleofeffetutile).95

Afavorable

legalframework isinsufficientfordueprotectionoftheirrights if itdoesnotgohand inhandwithpoliciesand

actions by the State to ensure application of and effective compliance with the provisions which the sovereign

89 I/ACourtH.R.,CaseoftheYakyeAxa IndigenousCommunityv.Paraguay.Merits,ReparationsandCosts. JudgmentofJune17,

2005. SeriesCNo.125,par.100. I/ACourtH.R.,CaseofCaesarv.TrinidadandTobago. Merits,ReparationsandCosts. JudgmentofMarch11,


90 IACHR,ReportNo.75/02,Case11.140,MaryandCarrieDann (UnitedStates),December27,2002,par.173,Recommendations

1and2.

91 Incaseofadoptingsuchregressiveprovisions,Statesare inthe obligationofvoidingthemorrefraining fromtheirapplication.

IACHR,ThirdReportontheSituationofHumanRightsinParaguay.Doc.OEA/Ser./L/VII.110,Doc.52,March9,2001,ChapterIX,par.49,50

Recommendation4.

92The IACHRhaspositivelyvaluedtheadoptionof legalprovisionsonthecollectiverightsof indigenouspeoples,butatthesame

timeithasforcefullycalleduponStatestosubmitinformationabouttheirimplementation.See,interalia:IACHR,DemocracyandHumanRights

inVenezuela.Doc.OEA/Ser.L/V/II.Doc.54,30December2009,pars.10521061.IACHR,AccesstoJusticeandSocialInclusion:TheRoadtowards

StrengtheningDemocracyinBolivia.Doc.OEA/Ser.L/V/II,Doc.34,June28,2007,pars.218,219.IACHR,FollowupReportAccesstoJusticeand

Social Inclusion: The Road towards Strengthening Democracy in Bolivia. Doc. OEA/Ser/L/V/II.135, Doc. 40, August 7, 2009, par. 134, and

footnoteNo.147.

93IACHR,ArgumentsbeforetheInterAmericanCourtofHumanRightsinthecaseofSawhoyamaxav.Paraguay.Citedin:I/ACourt

H.R.,CaseoftheSawhoyamaxaIndigenousCommunityv.Paraguay.Merits,ReparationsandCosts. JudgmentofMarch29,2006. SeriesCNo.

146,par.

113(b).

94IACHR,DemocracyandHumanRightsinVenezuela.Doc.OEA/Ser.L/V/II.Doc.54,30December2009,par.1062.Seealso:IACHR,

AccesstoJusticeandSocialInclusion:TheRoadtowardsStrengtheningDemocracyinBolivia.Doc.OEA/Ser.L/V/II,Doc.34,June28,2007,pars.

220,297Recommendation4.IACHR,FollowupReport AccesstoJusticeandSocialInclusion:TheRoadtowardsStrengtheningDemocracyin

Bolivia.Doc.OEA/Ser/L/V/II.135,Doc.40,August7,2009,pars.134,149.

95Effectivenessofthedomestic legalprovisionsmeansthattheStatemusttakesuchmeasuresasmaybenecessarytoactually

complywiththeprovisionsoftheConvention. I/ACourtH.R.,CaseoftheYakyeAxaIndigenousCommunityv.Paraguay.Merits,Reparations

and Costs. Judgment of June 17, 2005. Series C No. 125, par. 101. I/A Court H.R., Case of the Sawhoyamaxa Indigenous Community v.

Paraguay.Merits,ReparationsandCosts. JudgmentofMarch29,2006. SeriesCNo.146,par.110


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State has undertaken to apply.96

The InterAmerican Court of Human Rights has similarly insisted that the

governments ensure the actual existence of an efficient guarantee of the free and full exercise of human

rights.97

Indigenous and tribal peoples have a right to see the law implemented and applied in practice,98

specificallyinrelationtotheirterritorialrights.99

96IACHR,ArgumentsbeforetheInterAmericanCourtofHumanRightsinthecaseofYakyeAxav.Paraguay.Citedin:I/ACourtH.R.,

CaseoftheYakyeAxaIndigenousCommunityv.Paraguay.Merits,ReparationsandCosts. JudgmentofJune17,2005. SeriesCNo.125,par.

120(b).

See

also:IACHR,

Fifth

Report

on

the

Situation

of

Human

Rights

in

Guatemala.

Doc.

OEA/Ser.L/V/II.111,

Doc.

21

rev.,

April

6,

2001,

Chapter XI, par. 36. IACHR, Third Reporton the Situation ofHumanRights inParaguay. Doc. OEA/Ser./L/VII.110, Doc. 52, March 9, 2001,

ChapterIX,par.28.

97I/ACourtH.R.,CaseoftheSawhoyamaxaIndigenousCommunityv.Paraguay.Merits,ReparationsandCosts. JudgmentofMarch

29th

,2006.SeriesCNo.146,par.167.I/ACourtH.R.,CaseofthePuebloBelloMassacrev.Colombia.Merits,ReparationsandCosts. Judgment

ofJanuary31,2006. SeriesCNo.140,par.142.

98IACHR,DemocracyandHumanRightsinVenezuela.Doc.OEA/Ser.L/V/II.Doc.54,30December2009,par. 1062.Onlyasustained

implementationofconstitutionalandlegaladvancesthatarepertinentforthelegalforceofindigenousandtribalpeoplesrightscanmarkand

advance intheirrealsituation;referringtotheGuatemalan legalsystem,the IACHRhasheldthatthesevery importantprovisionsenshrine

principlesthat can be developed in the legislative sphere, and which, if implemented on a sustained basis,can lead to improvement in the

situationofindigenouspopulations[IACHR,FifthReportontheSituationofHumanRightsinGuatemala.Doc.OEA/Ser.L/V/II.111,Doc.21rev.,

April 6, 2001, Chapter XI, par. 35]. In the same line, the InterAmerican Court of Human Rights has explained that legislation alone is not

enoughtoguaranteethefulleffectivenessoftherightsprotectedbytheConvention,butrather,suchguaranteeimpliescertaingovernmental

conductstoensurethe actualexistenceof an efficientguarantee ofthe free and fullexercise ofhuman rights [I/A Court H.R., Case ofthe

SawhoyamaxaIndigenous

Community

v.

Paraguay.

Merits,

Reparations

and

Costs.

Judgment

of

March

29,

2006.

Series

CNo.

146,

par.

167.

I/A

CourtH.R.,CaseofthePuebloBelloMassacrev.Colombia.Merits,ReparationsandCosts.JudgmentofJanuary31,2006.SeriesCNo.140,par.

142]. The UN Special Rapporteur has also signaled the lack of application of the legal provisions that enshrine indigenous peoples rights,

describingitasagapinimplementationbetween,ontheonehand,theadvancesmadebymanycountriesintheirdomesticlegislation,which

recognizes indigenouspeoplesandtheirrights, and,on theother, thedailyreality in whichmanyobstacles tothe effective enforcementof

thoselegislativemeasuresareencountered.UNCommissiononHumanRightsReportoftheSpecialRapporteuronthesituationofhuman

rightsandfundamentalfreedomsofindigenouspeople,Mr.RodolfoStavenhagen,UNDoc.E/CN.4/2006/78,Summary.TheSpecialRapporteur

has explained that obstacles to implementation include: (i) inconsistencies between international standards and principles and domestic

legislation,the lackof incorporationofsuchstandards intodomestic law,ortheirdisregardbyjudgesandpublicofficials; (ii) inconsistencies

between sectoral legislations, or the lack of application of the existing sectoral legislation; (iii) the bureaucratic or rigid structure of public

administration,andthelackofmechanismstofollowupimplementationofthelaw;(iv)differentinterpretationsoflegalstandardsbydifferent

stateauthorities;or(v)theblockingofprotectiveconstitutionalprovisionsthroughregressivelegalandregulatorystandards.UNCommission

onHumanRightsReportoftheSpecialRapporteuronthesituationofhumanrightsand fundamental freedomsof indigenouspeople,Mr.

RodolfoStavenhagen,UNDoc.E/CN.4/2006/78,pars.18,19,26,33.Seealso:UNHumanRightsCouncilReportoftheSpecialRapporteur

onthe situationof humanrightsand fundamental freedomsof indigenous people, RodolfoStavenhagen, UNDoc. A/HRC/4/32,27 February

2007,pars.513.

99Withregardtotherighttoproperty,formalrecognitionofindigenousandtribalpeoplesrighttocommunalpropertyindomestic

lawmustbeaccompaniedbyconcretemeasurestomaketherighteffective. [I/ACourtH.R.,CaseoftheYakyeAxaIndigenousCommunityv.

Paraguay.Merits,ReparationsandCosts. JudgmentofJune17,2005. SeriesCNo.125,par.141]Merelyabstractorjuridicalrecognitionof

indigenouslands,territories,orresources,ispracticallymeaninglessifthepropertyisnotphysicallydelimitedandestablished.[I/ACourtH.R.,

CaseoftheYakyeAxa IndigenousCommunityv.Paraguay.Merits,ReparationsandCosts.Judgmentof June17,2005.SeriesCNo.125,par.

143].FortheIACHRandtheInterAmericanCourt,itisnecessarythatthelegallyguaranteedterritorialrightsofindigenouspeoplesarecoupled

with the adoption of the legislative and administrative measures and mechanisms to ensure the enjoyment of said rights in reality. Under

Article 21, it is necessary for the legal and constitutional provisions that enshrine the right of members of indigenous communities to the

propertyoftheirancestralterritorytobetranslatedintotheeffectiverestitutionandprotectionofsuchterritories.[IACHR,Argumentsbefore

the InterAmerican Court of Human Rights in the case of Sawhoyamaxa v. Paraguay. Cited in: I/A Court H.R., Case of the Sawhoyamaxa

IndigenousCommunityv.Paraguay.Merits,ReparationsandCosts. JudgmentofMarch29,2006. SeriesCNo.146,par.113(b). IACHR,Third

ReportontheSituationofHumanRightsinParaguay.Doc.OEA/Ser./L/VII.110,Doc.52,March9,2001,ChapterIX,par.50,Recommendation1]

Even ifthere isaformalaffirmationoftheterritorialandotherrightsof indigenousandtribalpeoples,Statesfailuretoadoptthemeasures

requiredtorecognizeandguaranteesaidrightsgeneratessituationsofuncertaintyamongthemembersofthecommunities. [IACHR,Report

No.40/04,Case12.053,MayaIndigenousCommunitiesoftheToledoDistrict(Belize),October12,2004,par.170]TheUNSpecialRapporteur

hasdenounced

the

lack

of

implementation

of

the

legislation

that

protects

indigenous

peoples

territorial

rights

as

part

of

the

current

trend

towardsterritorialdispossession,asfollows: Thetrendtowardsthedepletionofthenaturalresourcesoftheindigenouspeopleiscontinuing,

mainly through expropriation of their lands. Although in recent years many countries have adopted laws re

indigenous and tribal peoples’ rights over their ancestral lands and natural resources

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