7/27/2019 INDIGENOUSANDTRIBALPEOPLESRIGHTSOVERTHEIRANCESTRAL LANDS AND NATURAL RESOURCES
1/145
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/7/27/2019 INDIGENOUSANDTRIBALPEOPLESRIGHTSOVERTHEIRANCESTRAL LANDS AND NATURAL RESOURCES
2/145
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
7/27/2019 INDIGENOUSANDTRIBALPEOPLESRIGHTSOVERTHEIRANCESTRAL LANDS AND NATURAL RESOURCES
3/145
INTERAMERICANCOMMISSIONONHUMANRIGHTS
MEMBERS
LuzPatriciaMejaGuerrero
VctorE.Abramovich
FelipeGonzlez
SirClareKamauRoberts
PauloSrgioPinheiro
FlorentnMelndez
PaoloG.Carozza
******
ExecutiveSecretary:SantiagoA.Canton
AssistantExecutiveSecretary:ElizabethAbiMershed
7/27/2019 INDIGENOUSANDTRIBALPEOPLESRIGHTSOVERTHEIRANCESTRAL LANDS AND NATURAL RESOURCES
4/145
INDIGENOUSANDTRIBALPEOPLESRIGHTSOVERTHEIR
ANCESTRALLANDSANDNATURALRESOURCES
NormsandJurisprudenceoftheInterAmericanHumanRightsSystem
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
7/27/2019 INDIGENOUSANDTRIBALPEOPLESRIGHTSOVERTHEIRANCESTRAL LANDS AND NATURAL RESOURCES
5/145
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
7/27/2019 INDIGENOUSANDTRIBALPEOPLESRIGHTSOVERTHEIRANCESTRAL LANDS AND NATURAL RESOURCES
6/145
INDIGENOUSANDTRIBALPEOPLESRIGHTSOVERTHEIR
ANCESTRALLANDSANDNATURALRESOURCES
NormsandJurisprudenceoftheInterAmericanHumanRightsSystem
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).
7/27/2019 INDIGENOUSANDTRIBALPEOPLESRIGHTSOVERTHEIRANCESTRAL LANDS AND NATURAL RESOURCES
7/145
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.
7/27/2019 INDIGENOUSANDTRIBALPEOPLESRIGHTSOVERTHEIRANCESTRAL LANDS AND NATURAL RESOURCES
8/145
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
7/27/2019 INDIGENOUSANDTRIBALPEOPLESRIGHTSOVERTHEIRANCESTRAL LANDS AND NATURAL RESOURCES
9/145
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.
24IACHR,ReportNo.75/02,Case11.140,MaryandCarrieDann(UnitedStates),December27,2002,par.124.
25IACHR,ReportNo.75/02,Case11.140,MaryandCarrieDann(UnitedStates),December27,2002,par.131.
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].
27IACHR,ReportNo.75/02,Case11.140,MaryandCarrieDann(UnitedStates),December27,2002,par.129.
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].
7/27/2019 INDIGENOUSANDTRIBALPEOPLESRIGHTSOVERTHEIRANCESTRAL LANDS AND NATURAL RESOURCES
10/145
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.
31 I/ACourtH.R.,CaseoftheYakyeAxa IndigenousCommunityv.Paraguay.Merits,ReparationsandCosts. Judgmentof June17,
2005.SeriesCNo.125,par.63.
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.
34IACHR,ReportNo.75/02,Case11.140,MaryandCarrieDann(UnitedStates),December27,2002,par.127.
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).
7/27/2019 INDIGENOUSANDTRIBALPEOPLESRIGHTSOVERTHEIRANCESTRAL LANDS AND NATURAL RESOURCES
11/145
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.
37IACHR,ReportNo.40/04,Case12.053,MayaIndigenousCommunitiesoftheToledoDistrict(Belize),October12,2004,par.87.
38 I/ACourtH.R.,CaseoftheYakyeAxa IndigenousCommunityv.Paraguay.Merits,ReparationsandCosts. Judgmentof June17,
2005.SeriesCNo.125,par.127.
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.
7/27/2019 INDIGENOUSANDTRIBALPEOPLESRIGHTSOVERTHEIRANCESTRAL LANDS AND NATURAL RESOURCES
12/145
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).
7/27/2019 INDIGENOUSANDTRIBALPEOPLESRIGHTSOVERTHEIRANCESTRAL LANDS AND NATURAL RESOURCES
13/145
8
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.htm7/27/2019 INDIGENOUSANDTRIBALPEOPLESRIGHTSOVERTHEIRANCESTRAL LANDS AND NATURAL RESOURCES
14/145
9
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.
59 I/ACourtH.R.,CaseoftheSaramakaPeoplev.Suriname. PreliminaryObjections,Merits,ReparationsandCosts. Judgment of
November28,2007. SeriesCNo.172,par.92.
60 I/ACourtH.R.,CaseoftheSaramakaPeoplev.Suriname. PreliminaryObjections,Merits,ReparationsandCosts. Judgment of
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
November28,2007. SeriesCNo.172,par.96.
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.pdf7/27/2019 INDIGENOUSANDTRIBALPEOPLESRIGHTSOVERTHEIRANCESTRAL LANDS AND NATURAL RESOURCES
15/145
10
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.
71I/ACourtH.R.,CaseoftheXkmokKsekIndigenousCommunityv.Paraguay.Merits,ReparationsandCosts. JudgmentofAugust
24,2010. SeriesCNo.214,par.37.
7/27/2019 INDIGENOUSANDTRIBALPEOPLESRIGHTSOVERTHEIRANCESTRAL LANDS AND NATURAL RESOURCES
16/145
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
November28,2007. SeriesCNo.172,par.79.
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
7/27/2019 INDIGENOUSANDTRIBALPEOPLESRIGHTSOVERTHEIRANCESTRAL LANDS AND NATURAL RESOURCES
17/145
12
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,
2010. SeriesCNo.214,par.35.
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
November28,2007. SeriesCNo.172,par.164.
82I/ACourtH.R.,CaseoftheXkmokKsekIndigenousCommunityv.Paraguay.Merits,ReparationsandCosts. JudgmentofAugust
24,2010. SeriesCNo.214,pars.3943. Inthiscase,thepetitionercommunitywascomposedmostlyofmembersoftwodistinctethnicgroups,
theEnxetSurandtheSanapana.
7/27/2019 INDIGENOUSANDTRIBALPEOPLESRIGHTSOVERTHEIRANCESTRAL LANDS AND NATURAL RESOURCES
18/145
13
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.
84 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.160.
85 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.160.
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).
87IACHR,ReportNo.40/04,Case12.053,MayaIndigenousCommunitiesoftheToledoDistrict(Belize),October12,2004,par.129.
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].
7/27/2019 INDIGENOUSANDTRIBALPEOPLESRIGHTSOVERTHEIRANCESTRAL LANDS AND NATURAL RESOURCES
19/145
14
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,
2005. SeriesCNo.123,par.93.
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
7/27/2019 INDIGENOUSANDTRIBALPEOPLESRIGHTSOVERTHEIRANCESTRAL LANDS AND NATURAL RESOURCES
20/145
15
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
Top Related