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Shapan Adnan
Ranajit Dastidar
Alienation of the Lands
of Indigenous Peoples
in the Chittagong Hill Tracts of Bangladesh
Price: Bangladesh Taka 300.00, US$ 20.00
This book deals with the forcible takeover of the
lands of the indigenous peoples of the CHT. Based
on fieldwork research among both Pahari and
Bengali groups, the book has four chapters,
concerned with different aspects of the study.
Chapter 1 introduces the research and describes
how it was undertaken.
Chapter 2 deals with the CHT Accord of 1997 and
the failure to implement most of its important
clauses in a substantive manner. It also takes
account of parallel social and demographic
changes in the CHT occurring outside the
framework of the Accord, the results of which may
be very difficult, if not impossible, to reverse. Some
of these trends bypass the provisions of the Accord
and could potentially make it irrelevant.
Chapter 3 provides detailed analysis of the
numerous mechanisms of land alienation in the
CHT. The roles of different government and
private agencies are analysed with empirical
evidence, including sixteen case studies. Various
Bengali interest groups are also found to be
grabbing the lands of poor Bengali settlers,
reflecting intra-ethnic and classed-based
dimensions of land alienation. The growing
significance of commercial land grabbing for
rubber, timber and horticulture plantations, driven
by profit-oriented capitalist production, is
highlighted. These constitute elements of global
land grabbing, indicative of ‘accumulation by
dispossession’ under contemporary globalization
and neoliberal capitalism.
Chapter 4 undertakes policy analysis concerned
with the prevention of further alienation of Pahari
lands as well as the restitution of their already
occupied areas.
Alienation of the Lands
of Indigenous Peoples
in the Chittagong Hill Tracts of Bangladesh
Shapan Adnan
Visiting Research Fellow
Contemporary South Asian Studies Programme
School of Interdisciplinary Area Studies
University of Oxford
and
Ranajit Dastidar
Senior Research Associate and
Project Manager
CHT Land Study
Chittagong Hill Tracts Commission
Dhaka
International Work Group for Indigenous Affairs
Copenhagen
2011
Chittagong Hill Tracts Commission
10/11 Iqbal Road, Mohammadpur, Dhaka-1207, Bangladesh
Phone: +880 2 9146048 Fax: +880 2 8141810
E-mail: chtcomm@gmail.com Web: www.chtcommission.org
International Work Group for Indigenous Affairs
Classensgade 11 E, DK 2100 Copenhagen, Denmark
Phone: +45 35 27 05 00 Fax: +45 35 27 05 07
E-mail: iwgia@iwgia.org Web: www.iwgia.org
and
Price: B. Taka 300.00, US$ 20.00
Alienation of the Lands of Indigenous Peoples
in the Chittagong Hill Tracts of Bangladesh
Study commissioned by the
Chittagong Hill Tracts Commission
First Edition: May 2011
Copyright: © Shapan Adnan, 2011
All Rights Reserved
Editorial Production:
Christina Nilsson and Hana Shams Ahmed
Cover Design: Taj Mohammod
Printing: Vector Graphics & Printing
207 University Market (1st floor)
Kantabon, Dhaka-1205, Bangladesh
ISBN: 978-984-33-3494-7
Geographical area: Asia, Bangladesh
Co-publishers:
CONTENTS
Preface ...........................................................................................................................ix
Acronyms......................................................................................................................xii
Summary......................................................................................................................xiii
Map 1: Districts, Road Networks and the Kaptai Lake in the
Chittagong Hill Tracts................................................................................xxxvii
Map 2: Upazillas (sub-districts) of the Chittagong Hill Tracts............................... xxxix
Map 3: Fieldwork Sites of the Land Study in the Chittagong Hill Tracts ....................xli
CHAPTER 1:
INTRODUCTION TO THE STUDY........................................................................1-13
CHAPTER 2:
IMPLEMENTATION OF THE CHT ACCORD AND PARALLEL
TRENDS DURING 1997-2010 ...............................................................................15-33
CHAPTER 3:
MECHANISMS OF LAND ALIENATION IN THE CHT...................................35-108
CHAPTER 4:
POLICY ANALYSIS AND RECOMMENDATIONS .......................................109-180
BIBLIOGRAPHY................................................................................................181-186
iv Alienation of the Lands of IP in the CHT of Bangladesh
DETAILED CONTENTS
Preface ix
Acronyms xii
Summary xiii
Map 1: Districts, Road Networks and the Kaptai Lake in the
Chittagong Hill Tracts............................................................................... xxxvii
Map 2: Upazillas (sub-districts) of the Chittagong Hill Tracts............................... xxxix
Map 3: Fieldwork Sites of the Land Study in the Chittagong Hill Tracts ....................xli
CHAPTER 1 1-13
INTRODUCTION TO THE STUDY 1
THE CHITTAGONG HILL TRACTS OF BANGLADESH...................................... 2
The Indigenous Peoples of the CHT...................................................................... 2
UNDERLYING CONSIDERATIONS AND RATIONALE ..................................... 4
OBJECTIVES............................................................................................................ 6
TIMETABLE, APPROACH AND METHODOLOGY............................................. 7
SCOPE AND LIMITS OF THE STUDY .................................................................12
LAYOUT................................................................................................................. 13
CHAPTER 2 15-33
IMPLEMENTATION OF THE CHT ACCORD AND PARALLEL
TRENDS DURING 1997-2010 15
THE CHT ACCORD OF 1997................................................................................. 15
IMPLEMENTATION STATUS OF THE CHT ACCORD...................................... 19
Implementation Committee for the CHT Accord................................................ 20
Hill District Councils........................................................................................... 21
CHT Regional Council........................................................................................ 21
The Task Force for Rehabilitation of Returnee Refugees and IDP............................. 22
The Land Commission ........................................................................................ 23
Holding of a Cadastral Survey before Settlement of Land Disputes................... 26
Overall Status of the CHT Accord by 2010......................................................... 28
Contents v
PARALLEL PROCESSES AND TRENDS IN THE CHT DURING 1997-2010........ 28
Demographic Growth and Re-composition......................................................... 29
Attitudes of Bengali Interest Groups towards Landed Property in the CHT ....... 30
New Policy Initiatives by the Government.......................................................... 31
OVERALL TRENDS AND FUTURE PROSPECTS............................................... 31
CHAPTER 3 35-108
MECHANISMS OF LAND ALIENATION IN THE CHT 35
EVOLUTION OF PROPERTY SYSTEMS AND LAND RIGHTS IN THE CHT .. 36
Introduction of Private Land Rights in the CHT ................................................. 39
Changes in Laws of Entry, Residence and Eligibility for holding Land in the CHT. 41
Transmigration of Bengali Settlers and Forced Redistribution of Pahari Lands . 42
The Political Context of Land Grabbing after the Peace Accord ........................43
Different Types of Land Laws and Forms of Land Grabbing in the CHT........ 44
ACQUISITION OF CHT LANDS BY AGENCIES OF THE STATE..................... 45
Procedures of State Acquisition of Land in the CHT .......................................... 45
Actual Outcomes of the CHT Accord and HDC Acts on Powers of the DC Office
46
FOREST
DEPARTMENT:
LAND
ACQUISITION
FOR
AFFORESTATION
PROJECTS
... 48
Village Common Forests..................................................................................... 55
INSTALLATIONS OF THE SECURITY FORCES................................................ 57
Taking over Pahari Lands without following due Acquisition Procedures ............. 57
Formal Land Acquisition for Installations and Projects of the Security Forces .. 58
REDISTRIBUTION OF PAHARI LANDS TO BENGALI SETTLERS DURING
THE COUNTER-INSURGENCY........................................................................... 61
Strategy of Demographic Engineering................................................................ 61
Continuation of the Counter-insurgency Strategy during the post-Accord Period
..... 62
MANUFACTURE OF LAND TITLES FOR BENGALI SETTLERS..................... 63
Operation of the Special Settlement Zone........................................................... 63
Partial Withdrawal of the Political Migrants and their Replacement by Local Bengalis
.....64
Parallel Process of Allotting Land to self-propelled Bengali Migrants............... 65
The Long Term Consequences of Land Settlement Documents given to Bengali
Settlers in the CHT.............................................................................................. 66
Problematic Aspects of the Land Settlement Documents given to Bengali Settlers....... 67
Manipulation of Land Settlement Documents of Bengali Settlers for Land Grabbing.... 70
INCREMENTAL LAND GRABBING BY BENGALI SETTLERS....................... 71
Grabbing of Pahari Lands.................................................................................... 71
Grabbing of Temple Lands.................................................................................. 73
Grabbing of Fringe Lands.................................................................................... 74
LEASING OUT OF ‘KHAS’ LAND FOR COMMERCIAL PLANTATIONS........ 77
Official Review of the Status of Plantation Leases in Bandarban.......................... 80
vi Alienation of the Lands of IP in the CHT of Bangladesh
Incremental Land Grabbing by Plantation Leaseholders..................................... 81
Unintended Consequences of the Directive to Cancel Leases of
Undeveloped Plantations..................................................................................... 84
LAND GRABBING BY COMMERCIAL INTEREST GROUPS........................... 86
Commercial Land Grabbers and Dealers: Individuals, Companies and NGOs... 86
Commercial Dealers Grabbing and Selling Lands............................................... 88
MANIPULATION OF CONNECTIONS WITH POLITICAL PARTIES ............... 91
PRIVATE LAND GAINS BY GOVERNMENT OFFICIALS................................ 94
USE OF VIOLENCE FOR LAND GRABBING...................................................... 96
Violence and Violation of Human Rights ........................................................... 96
Sexual Violence against Pahari Women.............................................................. 97
DISTRESS SALE OF LAND UNDER PRESSURE AND INTIMIDATION.......... 97
Encirclement and Harassment............................................................................. 98
Sale of Land to Resolve Outstanding Debt.......................................................... 98
Pressure of Litigation leading to Distress Sale.................................................... 99
USE OF FRAUD AND FORGERY TO MANIPULATE LAND RECORDS.........100
LIMITATIONS AND CORRUPTION OF HEADMEN AND KARBARIS...........101
CONSTRAINTS
TO
RESTITUTION
OF
FORCIBLY
OCCUPIED
PAHARI
LANDS
.103
ADMINISTRATIVE CONSTRAINTS TO THE RECORDING OF PAHARI LAND
RIGHTS..................................................................................................................105
DIFFERENCES IN LAND GRABBING BEFORE AND AFTER THE CHT
ACCORD................................................................................................................105
OVERVIEW OF LAND GRABBING IN THE CHT..............................................107
CHAPTER 4 109-180
POLICY ANALYSIS AND RECOMMENDATIONS 109
OBJECTIVES OF POLICY ANALYSIS................................................................110
GENERAL CONSIDERATIONS FOR RESOLVING LAND CONFLICTS IN THE
CHT.........................................................................................................................110
Guiding Principles for Decision-making............................................................111
PROCEDURES FOR RESOLUTION OF LAND CONFLICTS IN THE CHT......112
The Broad Approach..........................................................................................112
Reorienting the Land Commission and Enhancing its Capability ......................112
Rectification of the Land Dispute Resolution Commission Act of 2001.............113
Rules of Business of the Land Commission....................................................115
Acceptability of the Land Commission Chairman to All Ethnic Groups.......117
Operationalizing the Land Commission ........................................................118
Assessment of the Performance of the Land Commission..............................118
Alternatives to the Land Commission for Resolving Land Conflicts.................119
Operationalizing the Traditional Land Laws and Customs of the Hill Peoples..120
Contents vii
STATE ACQUISITION OF LAND AND COMPENSATION PROCEDURES....122
ROLE OF THE DC OFFICE AND LAND ADMINISTRATION...........................124
ROLE OF THE FOREST DEPARTMENT.............................................................125
Land Acquisition by the Forest Department for Afforestation Projects .............126
Social Forestry Projects......................................................................................127
Village Common Forests....................................................................................127
ROLE OF DEVELOPMENT INTERVENTIONS..................................................129
Land Acquisition Procedures for Development Agencies and Projects .............129
Public Consultations with the IP to Elicit their Genuine Preferences.................130
Road Construction in the CHT...........................................................................131
ROLE OF THE SECURITY FORCES....................................................................132
Land Acquisition by the Security Forces............................................................132
Discontinuation of Operations Aimed at Displacing IP from their Lands..........133
LAND SETTLEMENT PROCEDURES.................................................................133
Manipulation of Special Settlement Zone Titles including R-Holdings...............133
Land Settlements for the IP................................................................................136
LAND LEASING PROCDURES............................................................................136
Land Leases for Rubber and Horticulture Plantations........................................136
Dealing with Cancellation of Leases and their Reinstatement ...........................138
ROLE OF POWERHOLDERS AND COMMERCIAL INTEREST GROUPS......139
TOURISM ENTERPRISES....................................................................................141
ROLE OF BENGALI SETTLERS..........................................................................142
VIOLENCE AND HUMAN RIGHTS VIOLATIONS............................................143
Inter-ethnic Violence and Communal Riots .......................................................143
Sexual Abuse and Violence................................................................................143
ENHANCING THE CAPABILITIES OF HEADMEN AND KARBARIS............144
THE PEACE ACCORD AND LAND RIGHTS OF THE IP...................................146
The Regional Council and the Hill District Councils.........................................146
Role of the Task Force for Rehabilitation of Returnee Refugees and IDP .............148
Sequencing of the Land Survey and Settlement of Land Disputes.......................149
Revision of the CHT Accord?............................................................................150
IN-MIGRATION
AND
VOLUNTRARY
WITHDRAWAL
OF
BENGALI
SETTLERS
...151
Limiting In-migration of Bengali Settlers ..........................................................151
Voluntary Withdrawal of Bengali Settlers from the CHT..................................151
ROLE
OF
POLITICAL
NEGOTIATIONS
BETWEEN
THE
IP
AND
BENGALIS
.....153
CHANGING THE MINDSET OF GOVERNMENT OFFICIALS.........................155
ROLE OF THE GOVERNMENT OF BANGLADESH..........................................156
General Policy Orientation towards the CHT and Land Rights of the IP...........156
The CHT Accord and the Government’s Electoral Manifesto ...........................157
Constitutional Recognition of the IP and the Peace Accord...............................157
Implementation of International Conventions on Indigenous Peoples ...............158
ROLE OF DONOR AGENCIES.............................................................................160
viii Alienation of the Lands of IP in the CHT of Bangladesh
MOBILIZATION AND RESISTANCE BY THE IP..............................................161
Possible Issues and Forms of Resistance by the IP ............................................163
LEGAL ACTIVITIES IN SUPPORT OF PAHARI LAND RIGHTS .....................164
Appealing to the Higher Courts of the Formal Judiciary....................................165
Legal Measures for Strengthening Land Rights of the IP...................................165
Legal Assistance for the IP.................................................................................166
Coping with Reactions of Land Grabbers Dislodged from Occupied Pahari Lands
....167
MOBILIZING SUPPORT FROM MAINSTREAM PUBLIC OPINION.................168
Informing and Sensitizing Mainstream Public Opinion .....................................169
Voices from Mainstream Bengali Society in Support of Pahari Needs..............170
Broad-based Demands for Constitutional Recognition of the IP........................171
Dealing with Bengali Interest Groups in the CHT..............................................171
MOBILIZING INTERNATIONAL PUBLIC OPINION........................................172
ROLE OF THE MEDIA: SUPPORT AND PUBLICITY........................................172
ADVOCACY ACTIVITIES AT HOME AND ABROAD......................................174
Coordination between National and International Advocacy Activities.............175
International Networking for Regional Stability and Economic Growth ...........176
POLICY RESEARCH INITIATIVES BY THE IP .................................................177
COMPUTERIZED DATA-BASES ........................................................................178
INDEPENDENT RESEARCH AND MONITORING OF CRITICAL
TRENDS IN THE CHT...........................................................................................179
BIBLIOGRAPHY 181-186
Authors
Shapan Adnan graduated from
the University of Sussex and
obtained his PhD from the
University of Cambridge. He has
previously taught at the National
University of Singapore and the
Universities of Dhaka and
Chittagong. He completed this research while
holding a visiting research fellowship at the
Contemporary South Asian Studies Programme
of the University of Oxford. Shapan Adnan’s
research interests are broadly in the fields of
political economy and political sociology. He has
worked on topics including agrarian structure
and capitalist development, power and resistance
among the peasantry, indigenous peoples and
ethnic conflict, critiques of flood control and
water management, as well as determinants of
fertility and migration. He has published in
academic journals and edited volumes, and has
written several books including Migration, Land
Alienation and Ethnic Conflict: Causes of Poverty in
the Chittagong Hill Tracts of Bangladesh. He
is a member of the Chittagong Hill
Tracts Commission. Contact email address:
amsa127@gmail.com
Ranajit Dastidar has studied
economics at the University of
Chittagong and obtained a PhD in
political economy from the
National University of Singapore
(NUS). Besides experience in
commercial banking and NGO
programmes, he has been involved in many
socio-economic research projects and evaluation
studies. His research interests include: impacts of
technological innovation and the nature and
extent of capitalist development among
traditional fishing communities; forms of
marginalization of indigenous peoples; and
changes in the social organization of production
of rural communities. His email contact:
rana.dastidar@gmail.com
Cover Design: Taj Mohammod
The Chittagong Hill Tracts (CHT) of Bangladesh had been historically
inhabited by indigenous peoples (IP), locally known as the Paharis.
From the 1970s, however, counter-insurgency operations resulted in the
forced eviction of the IP. Massive numbers of Bengali settlers were
brought in from outside and placed on Pahari lands, forcibly changing
the demographic composition and land distribution of the CHT. The
conflict was brought to a formal end in December 1997 by the CHT
Accord between the government and the PCJSS, the party leading Pahari
resistance.
However, many of the critical clauses of this peace agreement have yet
to be implemented by the government, while the influx of Bengalis from
outside and the grabbing of Pahari lands have been allowed to continue.
Lands are being forcibly acquired by not only government agencies but
also private commercial interests led by Bengali powerholders with
connections to major political parties and agencies of the state. The
failure of various governments in power since the Accord to take
effective measures against continuing in-migration and eviction of
Paharis from their lands threatens to undermine the social and political
stability of the CHT and raises the prospects of renewed ethnic and
political conflict.
This book documents the bewildering variety of mechanisms used to
grab Pahari lands in the CHT, inclusive of illegal violence and
intimidation. It also puts forward a wide range of policy measures to
reduce land grabbing and ethnic tension. These policies are addressed
to Pahari organizations as well as progressive sections of the
government, mainstream Bengali society, donor agencies, the media,
public interest organizations, the NGO sector, advocacy groups and
others at home and abroad.
The research for this book was conducted under the auspices of the
international CHT Commission, which seeks to contribute to the just
resolution of the conflicts in the CHT in order to ensure the safety of the
indigenous peoples and their lands.
Chittagong Hill Tracts Commission
Dhaka International Work Group for Indigenous Affairs
Copenhagen
