Report: Regional Consultative Meetings on Land - Land Commission

<strong>Report</strong>: <strong>Regional</strong> 

<strong>Consultative</strong> 

<strong>Meetings</strong> 

on Land 

Governance Commission 

The Republic of Liberia 

May 2008 

Governance Commission - Liberia 1

2 Governance Commisssion - Liberia 

TABLE OF CONTENTS 

Table of Contents 2 

Acronyms 3 

Foreword 4 

Acknowledgments 6 

Executive Summary 8 

Introduction 12 

The Consultations 15 

Recommendations 22 

Annex I: Men’s Groups - Major Points 24 

Annex II: Women’s Groups - Major Points 36 

Annex III: Montserrado Discussions - Major Points 45 

Annex IV: Discussion Questions 50 

Annex V: Existing Land Disputes 53 

Annex VI: Excerpts from Opening Statements 59 

AnnexVII: Participants by County 62 

Annex VIII: Land Issues Steering Committee -Membership 65 

Annex IX: The Way Forward 68

Acronyms 

ADR Alternative Dispute Resolution 

AU African Union 

CC Clan Chief 

CDAs County Development Agendas 

CDC County Development Council 

CI Conservation International 

CI County Inspector 

CLC County Land Commissioner 

CM City Mayor 

CNDRA Center for National Documentation, Records and Archives 

DC District Commissioner 

EPA Environmental Protection Agency 

FDA Forestry Development Authority 

FFI Fauna and Flora International 

GC Governance Commission 

GOL Government of Liberia 

LFI Liberia Forest Initiative 

LISGIS Liberia Institute of Statistics and Geo Information Services 

LRDC Liberia Reconstruction and Development Committee 

LS Land Surveyor 

MIA Ministry of Internal Affairs 

MICAT Ministry of Information, Culture and Tourism 

MLM&E Ministry of Lands, Mines and Energy 

MOA Ministry of Agriculture 

MOU Memorandum of Understanding 

MPEA Ministry of Planning & Economic Affairs 

MPW Ministry of Public Works 

NIC National Investment Commission 

NFRL National Forest Reform Law 

NRC Norwegian Refugee Council 

PC Paramount Chief 

PRS Poverty Reduction Strategy 

RPAL Rubber Planters Association of Liberia 

SDI Sustainable Development Institute 

SES Socio-Economic Survey 

TC Tribal Certificate 

UL University of Liberia 

UNDP United Nations Development Programme 

UN-HABITAT United Nations Center for Human Settlements 

UNMIL United Nations Mission in Liberia 

UNSC United Nations Security Council 

USAID United States Agency for International Development 

WB World Bank 



Foreword

Foreword 

On behalf of the Governance Commission, I am pleased to present this report on regional 

consultations on land issues that were conducted by the GC in 2008. 

The Governance Commission was mandated by the President, Madam Ellen Johnson- 

Sirleaf in late 2006 to consider the need for and possibility of reforms in land rights and 

tenure in Liberia and to establish a process with appropriate mechanisms for addressing 

land reform challenges. Rights in land have historically been a contentious issue in Liberia, 

particularly involving the different legal regimes of the statutory system introduced 

by Liberia’s founding settlers in the nineteenth century and the customary systems practiced 

by the indigenous population of Liberia during that time. The civil war had further 

exacerbated tensions regarding land, especially as lands were abandoned by owners and 

encroached upon by others. In beginning the tasks of post-conflict reconstruction in 

Liberia, it was apparent to both Liberians and the international community, that consideration 

and action were needed on Liberia’s contradictory and often outmoded laws 

governing land and property rights. 

One of the initial activities undertaken by the Governance Commission in fulfillment of 

the President’s mandate was to embark upon a series of meetings and consultations with 

a range of actors, including government ministries and agencies, civil society organizations, 

the private sector, and the international community, aimed at identifying the key 

issues involving land and charting a way forward. There was a unanimous recognition 

that charting a way forward would require broad-based participation and consultation 

with all stakeholders, especially those living in rural Liberia for whom land is their primary 

asset. 

In order to initiate the consultative process, funding was sought and obtained to hold, 

in early 2008, a series of regional consultations involving all counties of Liberia. This 

report is the outcome of those consultations. The perspectives and concerns of Liberians 

regarding key issues of land rights are presented. In particular, participants were asked to 

consider the establishment of a Land Commission that would have broad responsibility 

for considering policy and legal reforms. The proposal met by with almost unanimous 

approval throughout the country. The Act establishing that Commission was passed by 

the Legislature and signed by the President in 2009. 

As the Land Commission commences its work, we of the Governance Commission hope 

that this report will be informative as the difficult challenges of considering national 

policy and legal reforms on land and related issues are tackled. 

Sincerely, 

Amos C. Sawyer 

Chairman 

Governance Commission 



Acknowledgements

The consultations that are summarized in 

this report were conducted as one component 

of the Governance Commission’s 

work on land and property rights. In 2006, 

the Governance Commission (GC) was mandated to 

investigate issues regarding land rights and tenure 

in Liberia and to recommend actions that would address 

the problems regarding land tenure. A Land Issues 

Steering Committee was established under the 

leadership of the Governance Commission and its 

Chair, Dr. Amos Sawyer. This committee identified 

the need for the GC to reach out to the wider population 

to hear their views on land and property rights. 

As land policy was one of the issues addressed in 

the Poverty Reduction Strategy, funds for the consultations 

were provided by the World Bank from 

its Poverty Reduction Strategy Fund. These funds 

covered the costs of the six regional consultations 

that were held in March – May 2008. Additional 

funds have been obtained from the Norwegian Refugee 

Council (NRC) to cover preparation and printing 

costs of this report. 

The Governance Commission “Land Team” that 

worked under the leadership of Dr. Sawyer included 

Dr. Cecil T. O. Brandy, national consultant, 

Dr. Jeanette Carter, consultant seconded from the 

University of Liberia, Kuluboh Jensen, Program 

Analyst for the Governance Commission, and Rebecca 

Martin Heink, secretary. Support was provided 

by the GC Commissioners, including Yarsuo 

Weh-Dorliae and Sandra Howard-Kendor, 

and GC staff to whom appreciation is extended. 

The team worked closely with the Land Issues 

Steering Committee (see Annex (VIII) for list of 

members). The Economic Revitalization Pillar 

Committee chaired by Minister of Finance Antoinette 

Sayeh also assisted. The GC is indebted to 

all these for their work. Maura Kelly, a graduate 

student intern from Princeton University in 

2009, assisted in preparation of the report. Bantie 

Brownell-Forschner did the final formatting and 

layout. 

During the consultations, staff from the Ministry 

of Agriculture, Ministry of Planning & Economic 

Affairs, UN-Habitat, Talking Drum Studio, and 

DEN-L assisted in the facilitation. Presentations 

were made by The Honorable Vice President Joseph 

N. Boakai, Honorable John T. Woods, Man- 

aging Director of the Forestry Development Authority, 

and Honorable Julu Johnson, Assistant 

Minister, Ministry of Lands, Mines, and Energy. 

Minister Johnson’s death in June 2008 has left a 

critical gap in the institutional knowledge on land 

issues. The World Bank has also assisted the GC 

through the work of two consultants, Dr. Jon Unruh 

and Dr. John Bruce. Dr. Bruce, in particular, 

has worked closely with the GC and the Steering 

Committee in drafting the legislation that will provide 

for the establishment of the Land Commission. 

Appreciation is extended to the Ministry of Internal 

Affairs and its Minister, the Honorable Ambulai 

B. Johnson, and staff and to the Superintendents 

and other local officials of the counties who 

provided logistic support and, in several instances, 

participated in the discussions. 

The Norwegian Refugee Council provided logistic 

support during the consultations and have 

provided funds for the printing of this report. The 

Land Rights and Community Forestry Program 

funded by USAID also provided logistic support 

to the participants. The Ministry of Planning & 

Economic Affairs, led by Dr. Toga McInstosh, 

paved the way for the regional consultations during 

their regional meetings in Kakata, Gbarnga, 

and Zwedru that discussed the County Development 

Agendas (CDAs). 

Finally, appreciation is extended to the approximately 

1,000 men and women from throughout 

Liberia who enthusiastically participated in these 

discussions and who have provided rich and frank 

insights into the issues and problems of land tenure 

that affect their lives. 



Executive Summary

EXECUTIVE SUMMARY 

Background 

In 2006, the Governance Commission (GC) 

was given the mandate to consider and investigate 

i s s u e s 

s u r r o u n d i n g 

land tenure and 

rights in Liberia 

that were 

recognized as 

being contentious 

and potentiallyvolatile 

and which had their origins in the early history 

of Liberia. In pursuit of this mandate, the GC in 

early 2007 initiated a process that brought together 

a broad range of stakeholders, including government 

ministries and agencies, the private sector, 

civil society, and the international community, to 

discuss the way forward on land issues. A Land 

Issues Steering Committee, working under the 

GC, was established and functioned throughout 

2007 – 2008. 

The Steering Committee recommended that consultations 

be held at the local level to obtain the 

perspectives of the population. Six regional consultative 

meetings were held between March and 

May, 2008, involving nearly one thousand participants 

from all fifteen counties. Participants 

included local government and community leaders, 

elders and traditional authorities, ordinary 

citizens, women and youth, business and religious 

leaders, NGOs and international partners, government 

ministries and agencies. The consultations 

were held in 1) Harper (Grand Kru, Maryland, 

and River Gee), 2) Zwedru (Sinoe and Grand Gedeh), 

3) Gbargna (Lofa, Bong, and Nimba), ) 4) 

Tubmanburg (Grand Cape Mount, Gbarpolu, and 

Bomi), 5) Buchanan (Grand Bassa, Rivercess, and 

Margibi), and 6) Paynesville (Montserrado). 

The consultative meetings were held in order to 

hear the views of Liberians about land and land 

matters. These consultations provided a forum for 

open discussions with and among ordinary people 

from both urban and rural communities, and other 

stakeholders, around a common set of land related 

issues. Their 

discussions 

generated 

information, 

exposed ambiguities 

and 

knowledge 

gaps, and 

provided insights 

into 

their perceptions on land issues; all of which will 

be useful to the Land Commission as it proceeds 

“to promote, advocate and coordinate reform of 

land policy, laws and programs in Liberia”. 

“The next war will be over this land business if 

nobody does something to solve this problem” 

Statement made by an elder during the consultations 

The consultations which took place over two days 

were divided into plenary sessions and discussion 

groups. Men from each county formed a discussion 

group while the women participants were 

brought together in a separate group except for the 

Montserrado consultation. 

Discussions during the consultations focused 

on a number of important land related issues of 

concern, provided insights and raised questions, 

which will require further investigation and study. 

Participants identified and discussed pressing issues 

which demand immediate action, and made 

recommendations 

This report presents the views and ideas from the 

participants themselves. As such, the report does 

not attempt to analyze the responses. 

Similar concerns were expressed by participants 

at each of the regional consultative meetings on 

many of the issues discussed, with minor nuanced 

differences reflecting regional, locations (i.e. urban/rural), 

or specific ethnic/cultural peculiarities. 


Rural communities are reclaiming and re-establishing 

ownership of their traditional lands. These 

communities have historical knowledge of how 

tribal and communal ownership of land was established, 

where and how much land allocations have 

been made to families (quarters) and individuals. 

Rural participants, from all regions of the country, 

by and large expressed high degree of assurance 

regarding availability of and productive access 

to land. Some local farming communities did, 

however, indicate that they are experiencing severe 

pressure on available farm land in areas with 

heavy concentration of rubber plantations such as 

in Pleebo District, Maryland County, throughout 

Margibi County (which is considered the rubber 

belt of Liberia), and along the Gbarnga – Saclepea 

highway, which is also heavily concentrated with 

rubber farms. Rural participants generally expressed 

apprehension regarding security of tenure 

for areas on which they currently farm or otherwise 

occupy, and have adopted practical approaches to 

establish de facto ownership as a means of securing 

tenure. 

Urban participants likewise expressed uncertainty 

regarding issues of security of tenure, and matters 

requiring enforcement of laws with respect 

to landholdings and dealings in land, even under 

conditions of fee simple ownership. 

Urban participants indicated that pressures on accessible 

land are intensifying. This mainly applies 

to urban squatter communities and the poor urban 

neighborhoods, and contributes to land disputes 

and conflicts, zoning problems and mismanagement 

of land resources (i.e. building in swamps 

and other inappropriate uses of lowland areas). 

Participants generally agreed that unutilized land 

located within communities, which are typically 

privately owned (whether vacant city/town lots or 

abandoned farms), should be put into productive 

use and not be allowed to remain unused for time 

indefinite. 

Participants from both urban and rural communities 

expressed loss of confidence in existing land 

administrative mechanisms i.e. the national and 

local deed registries and procedures for obtaining 

ownership/deed). This loss of confidence is due 

to a number of factors, principally among others 

are: 


• 

Systemic security breaches throughout the 

property record keeping system; 

• Dubious transactions involving multiple sales 

of same parcels of land, carried out by unscrupulous 

individuals working in partnership 

with local municipal officials and government 

surveyors, and 

• Falsification of deeds and other property records, 

and problems associated with tribal 

certificates. 

• Participants from rural communities were 

aware of the existence of the main land documents 

but had less understanding of the meaning 

and uses of these documents. 

Participants from rural communities expressed 

their strong desire to have their land rights recognized 

and documented. Participants overwhelmingly 

expressed the view that the system of acquiring 

land deeds should be simplified and made 

affordable, and that the land record system be decentralized 

and de-concentrated. 

Participants, both rural and urban, emphasized the 

need to resolve the perceived large backlog of land 

cases before courts, as well as local land disputes 

within and between communities. 

Participants from all regions, rural and urban communities 

alike, agreed that land should be leased 

to concessions, but that limits should be put on 

size of these land concessions. 

The overwhelming response of participants to the 

question “should foreigners own land?” was negative. 

However it is important to note that a significant 

number of participants did express conditional 

support for allowing foreigners to own land. 

Women remain disadvantaged with regard to 

equal productive access to land in rural communities, 

within the context of customary law and traditional 

norms. 

Youth are also disadvantaged, and are increasingly 

demanding greater access to land and greater

security of tenure. 

Strangers or outsiders are given access to land in 

rural communities through established norms that 

restrict use and ownership. 

Participants recognized the need for land reform 

and overwhelmingly expressed strong support for 

the establishment of a Land Commission. 

Key interventions recommended by the participants 

in the six regional consultations. 

The Establishment of a Land Commission 

(LC) 

Participants urged that the proposed Land Commission 

be inclusive and that all counties be represented. 

Participants indicated that they want an 

ongoing consultative process in the work of the 

Land Commission. 

Land Use Management and Policy 

• Called for an active role from the communities 

in all decisions regarding land and natural 

resource management. In particular, participants 

want to be involved in decisions regarding 

concessions. 

• Women called for a greater role in decisionmaking 

regarding land and natural resources 

and in conflict-resolution. 

• In all counties, concern was expressed about 

undeveloped or unutilized land that is held in 

fee simple. Long-term leasing of such land to 

those willing to develop it was suggested as a 

mechanism to ensure that land is being productively 

used. 

• Limits should be placed on how much land 

can be privately owned by individuals or 

granted to concessions. Recommended land 

use planning, especially in urban areas, and 

the enforcement of zoning laws. The issue of 

“squatter’s rights.” was addressed 

Land Ownership and Access 

• Recommended that the Public Lands Law of 

1973 be revised and that the definition of public 

land be reviewed. Consider the conversion 

of long-held Tribal Certificates in rural communities 

to fee simple deeds. 

• 

Called for recognition by government of their 

traditional rights and claims to land. 

• Recommended that the process of acquiring 

a land deed be decentralized to the local level 

and that the process be affordable to all. 

• After vigorous discussions, the majority indicated 

that they were “not yet ready” to consider 

constitutional amendments concerning 

the ownership of land by non-citizens. 

Conflict Resolution and Law Enforcement 

Recommended that laws regarding property be 

rigorously enforced, especially those dealing with 

fraudulent practices. While people, especially in 

rural communities, expressed strong preference 

for their “traditional” methods of dispute resolution 

and a preference for addressing disputes 

locally, they also indicated a desire for broaderbased 

participation, including women and youth, 

in dispute resolution. Alternative Dispute Resolution 

methods should also be considered. 

Education & Access to Information 

• Requested that land records be made available 

to all at the local level in the districts and 

counties. Further, land records should be managed 

by professionals and should be secured 

to prevent tampering and fraud. 

• 

Called for education, especially by women 

and youth, on their land and property rights. 

• Recommended increase awareness, advocacy 

and consensus building for new land laws and 

regulations that provides and protect equal access 

to land for all Liberians and which guarantee 

security of tenure, both customary and 

statutory. 



Introduction

BACKGROUND 

Following the inauguration of a democratically-elected 

government in 2006, the 

Governance Commission was given the 

mandate to consider and investigate issues 

surrounding land tenure and rights in Liberia that 

were recognized as being contentious and potentially 

volatile. Failure to address these issues could 

affect peace and stability in Liberia. There was also 

a recognition that there were serious issues of equity 

in access to and security of tenure to land in Liberia 

that had their origins in the early history of the 

Republic. In early 2007, the Governance Commission 

initiated a process that brought together a broad 

range of stakeholders, including government ministries 

and agencies, the private sector, civil society, 

and the international community, to discuss how to 

proceed. A Land Issues Steering Committee was 

established which met regularly throughout 2007. 

Seven working groups, including 1) legal (statutory 

& customary), 2) natural resources & environment, 

3) historical context, 4) local government & administration, 

5) investment (foreign & local), 6) public 

awareness, and 7) technical support, were established 

to examine more closely those aspects of Liberia’s 

land issues. The work emphasized the importance 

of having sound empirical data, of knowing what is 

actually happening with regards to land, and of having 

broad-based participation of Liberians. On the 

basis of this work, the Steering Committee recommended 

that a Land Commission with a mandate to 

consider all aspects of land issues and problems be 

established. 

The Steering Committee further recommended 

that validation for the establishment of the Land 

Commission be sought from Liberians around the 

country. At the same time, under the leadership 

of the Ministry of Planning & Economic Affairs, 

three regional consultations were held in Kakata, 

Gbarnga, and Zwedru respectively to discuss the 

County Development Agendas with land issues 

being one of the key considerations. The Poverty 

Reduction Strategy (PRS) was also being developed, 

including land and environmental policy as 

a component of the Economic Revitalization Pillar. 

Funds were provided from the World Bank 

Trust Fund for the Poverty Reduction Strategy to 

conduct regional consultations. 

THE CONSULTATIONS 

Six regional consultations were held beginning 

in March and concluding in May 2008. The consultative 

meetings were held in order to hear the 

views of Liberians about land and land matters. 

Not enough is known about access and tenure, 

land use patterns, customary land law, and land 

administration and management practices in traditional 

rural communities. Information about how 

local communities perceive important land issues 

is also scanty and undocumented. Rural people 

have misconceptions and little understanding of 

their constitutional land rights, land ownership/ 

title transfer processes, and definitions of commonly 

used terminologies. These consultations 

provided a forum for open discussions with and 

among “ordinary people” from both urban and rural 

communities, and other stakeholders, around a 

common set of land related issues. Their discussions 

generated information, exposed ambiguities 

and knowledge gaps, and provided insights into 

their perceptions on land issues; all of which will 

be useful to the Land Commission as it proceeds 

“to promote, advocate and coordinate reform of 

land policy, laws and programs in Liberia”. 

The regional consultations were held in: 

• Harper, Maryland County (March 10-11): 

Participants from Maryland, River Gee, and 

Grand Kru Counties; 

• Zwedru, Grand Gedeh County (March 13- 

14): Participants from Grand Gedeh and Sinoe 

Counties; 

• Tubmanburg, Bomi County (March 18-19): 

Participants from Bomi, Gbarpolu, and Grand 

Cape Mount Counties; 

• Gbarnga, Bong County (March 27-28): Participants 

from Bong, Nimba, and Lofa Counties; 

• Buchanan, Grand Bassa County (March 31– 

April1): Participants from Grand Bassa, Rivercess, 

and Margibi Counties 

• Paynesville, Montserrado County (May 7-8): 

Participants from Montserrado County. 

Working through the Ministry of Internal Affairs, 

Superintendents from the fourteen counties other 

than Montserrado were instructed to invite local 


government representatives, including mayors, 

district commissioners, and paramount chiefs to 

attend the consultations. In addition, representatives 

of women, youth, and traditional elders from 

each district were invited. Participants were provided 

with transportation, food, and lodging. They 

were given a packet containing key information 

on land, including relevant sections from the 1986 

Constitution, key land terms, and a copy of the 

draft Land Commission Act. 

For the Montserrado consultation, those invited 

included district commissioners, mayors, and representatives 

of urban and peri-urban communities 

(including squatter communities). Also invited 

were business and civil society leaders. 

The consultations included plenary sessions and 

group discussions which were organized by county 

and by gender. In the first five consultations, 

the women attending formed a separate discussion 

group in an effort to ensure that they had an opportunity 

to participate and talk. The Montserrado 

consultation included one group of the key local 

government officials and several from the various 

sections of Montserrado. Women were represented 

in each of these groups. 

For the group discussions, each group selected a 

chair or moderator and a rapporteur. Discussions 

were led by a facilitator from the Governance 

Commission. The facilitators were careful not to 

bias or lead the discussions. Groups cooperated 

in allowing members to participate and express 

opinions. 

In addition to the discussion of the key topics, 

each group was asked to provide a listing of land 

disputes in their area (see Annex V). 

The plenary sessions provided an opportunity not 

only for the participants to discuss their views but 

also to be briefed in more details on land issues. 

The Assistant Minister for Land and Surveys, 

Ministry of Lands, Mines, and Energy provided 

background information on key issues including 

definitions of public and private land, squatters 

rights, tribal certificates, and so on. The Managing 

Director of the Forestry Development Authority 

(FDA) presented an overview of FDA activi- 


ties, especially the Forestry Reform Law of 2006 

and entertained questions. 

Dr. Amos Sawyer, Chair of the Governance Commission, 

attended several of the sessions and led 

discussions, including the controversial issue of 

citizenship and land ownership. 

The Honorable Joseph N. Boakai, Vice President 

of the Republic of Liberia, provided introductory 

statements at the meetings in Tubmanburg and 

Paynesville. 

The participants discussed pertinent questions related 

to four major topics that reflected the strategic 

objectives of government’s land reform agenda 

as stated in the PRS: (1) promoting equitable and 

productive access to the nation’s land, both public 

and private, (2) promoting security of tenure and 

the rule of law with respect to land holdings and 

dealings in land, (3) promoting effective land administration 

and management, and (4) promoting 

investment and development of the nation’s land 

resources. Following extensive group discussion 

of each question set, county group responses were 

agreed upon, recorded and presented to plenary, 

along with recommendations. One set of questions 

was used for five of the consultations. A 

modified set of questions was used in Montserrado 

(see Annex IV for the questions). 

THE REPORT 

This report presents a summary of the discussions 

and, in the annexes, the major points raised by the 

participants. The report does not attempt to analyze 

the discussions, but rather to present what Liberians 

had to say about land issues as a first step 

in a consultative process.

The Consultations 


General Observations: 

Concerns were expressed by participants at each of 

the regional consultative meetings on many of the 

issues discussed, with minor nuance differences reflecting 

regional, locations (i.e. urban/rural), or specific 

ethnic/cultural peculiarities. These concerns 

include the following: 

1. Rural communities are reclaiming and reestablishing 

ownership of their traditional 

lands. These communities have historical 

knowledge of how tribal and communal ownership 

of land was established, where and 

how much land allocations have been made 

to families (quarters) and individuals. Rural 

participants, from all regions of the country, 

by and large expressed high degree of assurance 

regarding availability of and productive 

access to land. 

2. Some local farming communities did, however, 

indicate that they are experiencing severe 

pressure on available farm land in areas 

with a heavy concentration of rubber plantations 

such as in Pleebo District, Maryland 

County, throughout Margibi County (which 

is considered the rubber belt of Liberia), and 

along the Gbarnga – Saclepea highway; all of 

these communities have recently experienced 

violent land conflicts, which in some instances 

have resulted in the lost of life. 

3. Rural participants generally expressed apprehension 

regarding security of tenure for areas 

on which they currently farm or otherwise occupy, 

and have adopted practical approaches 

to establish de facto ownership as a means of 

securing tenure. 

4. Urban participants likewise express uncertainty 

regarding issues of security of tenure, 

and matters requiring enforcement of laws 

with respect to landholdings and dealings 

in land, even under conditions of fee simple 

ownership. 

5. Urban participants indicated that pressures on 

accessible land are intensifying. This mainly 

applies to urban squatter communities and the 


poor urban neighborhoods, and contributes to 

land disputes and conflicts, zoning problems 

and mismanagement of land resources (i.e. 

building in swamps and other inappropriate 

uses of lowland areas). 

6. Participants generally agreed that unutilized 

land located within communities, which is 

typically privately owned (whether vacant 

city/town lots or abandon farms), should be 

put into productive use and not be allowed to 

remain unused for time indefinite. 

7. Participants from both urban and rural communities 

expressed a loss of confidence in 

existing land administrative mechanisms (i.e. 

the national and local deed registries and procedures 

for obtaining ownership/deed). This

loss of confidence is due to a number of factors, 

principally among others are: 

• systemic security breaches through-out 

the property record keeping system 

• dubious transactions involving multiple 

sales of same parcels of land, carried out 

by unscrupulous individuals working in 

partnership, with local municipal officials 

and government surveyors, and falsification 

of deeds and other property records, 

including tribal certificates. 

8. Participants from rural communities were 

aware of the existence of most commonly 

referred-to land documents, including Tribal 

Certificates, Land Deeds, and Concession 

Agreements. Many rural participants were, 

however, confused regarding terms and con- 

ditions allowed under these documents, with 

respect to user and ownership rights. 

9. Participants from rural communities expressed 

their strong desire to have their land 

rights recognized and documented. Participants 

overwhelmingly expressed the view that 

the system of acquiring land deeds should be 

simplified and made affordable, and that the 

land record system should be decentralized 

and de-concentrated. 

10. Participants, both rural and urban, emphasized 

the need to resolve the perceived backlog of 

land cases before courts, as well as local land 

disputes within and between communities. 

11. Participants from all regions, rural and urban 

communities alike, agreed that land should be 

leased to concessions, but that limits should be 

put on size of these land concessions. 

12. The overwhelming response of participants to 

the question “should foreigners own land?” was 

negative. However it is important to note that a 

significant number of participants did express 

conditional support for allowing foreigners to 

own land. 

13. Women are somewhat disadvantaged with regard 

to equal productive access to land in rural 

communities within the context of customary 

law and traditional norms. 

14. Youth are also disadvantaged, and are increasingly 

demanding greater access to land 

and greater security of tenure. 

15. “Strangers” or emigrants are given access to 

land in rural communities through established 

norms that restrict use and ownership. 

Participants recognize the need for land re- 

16. 

form and overwhelmingly expressed strong 

support for the establishment of a Land Commission. 


GROUP SESSIONS 

Particular attention was paid to creating an environment 

that fostered open, frank discussions involving 

all participants. 

As earlier mentioned, participants were organized 

into county groups. Each of the groups selected 

a chairman/moderator and a rapporteur; this contributed 

significantly to fostering a sense of ownership 

of the process while creating a very relaxed 

and comfortable environment that facilitated lively 

discussion among participants. 

Facilitators were assigned to each of the groups 

to insure that discussions were kept on-tract with 

regard to the issues and to assist in the preparation 

of the group reports. 

Each group discussed the same issues, reflected in 

a set of questions which was provided to participants. 

Following lengthy discussions each group 

reported to plenary the results of deliberations and 

their respective responses 

to these questions. 

Participants at each of 

the regional meetings 

provided insight into 

customary and contemporary 

land use and tenure 

arrangements. 

Each county group report 

was accompanied 

with a listing of existing 

land-boundary disputes 

between communities 

and political jurisdictions. 

Cognizant of the peculiar 

dimensions and 

sensitivities surrounding 

women and land 

issues in rural communities, 

particular care 

was taken to ensure 

that each county delegation 

reflected strong 


gender balance. Female participants at each of the 

regional consultations formed a women’s group. 

This arrangement provided a conducive environment 

for women to freely and openly discuss land 

issues and express their views relative to access 

and security of tenure. 

PLENARY SESSIONS 

Discussions in plenary sessions extended the conversation 

among participating county clusters on 

the range of land issues discussed earlier in their 

respective county groups, and solicited their opinion 

concerning the proposed Land Commission. 

These larger forums provided the opportunity to 

note agreement and disagreement of group responses, 

record concerns and opinions expressed 

by both rural and urban participants about issues 

of tenure and access of local communities to land, 

and issues surrounding land ownership by non Liberians. 

The plenary sessions also afforded an opportuni-

ty to educate participants on land administrative 

matters, and to provide information concerning 

various aspects of Liberia’s land law and related 

issues which affect community land rights. 

Many participants lacked basic awareness and 

knowledge about their constitutional rights, including 

the right of all Liberians to own property. 

These rights were discussed and explained by the 

chairman of the GC (Dr. Amos C. Sawyer) and 

the GC’s Lead Consultant on land (Dr. Othello 

Brandy). 

A number of relevant documents were distributed 

and subsequently discussed, including excerpts 

from the 1986 Constitution of Liberia relevant to 

land and property rights, public lands law, and the 

TOR of the proposed Land Commission. 

The Assistant Minister for Land and Surveys at the 

Ministry of Lands Mines and Energy addressed 

plenary sessions at each regional meeting; explaining 

topical issues, defining commonly used landrelated 

terminologies (such as public land, private 

land, communal land, tribal certificate etc.), and 

responding to questions relative to existing land 

laws and procedures for obtaining land. 

The Managing Director of the FDA presented a 

general overview of the new National Forestry Reform 

Law (NFRL) to local officials and community 

leaders during the plenary sessions at several 

of the regional meetings. References were made 

during his presentation to the proposed Community 

Rights Law with Respect to Forest Lands, 

which the FDA was actively working on at the 

time. 

General overview of zoning and urban planning 

regulations was presented by an official of the 

Ministry of Public Works, during the Monrovia 

consultations. 

Topical Observations: 

The following observations reflect specific responses 

from participants in county groupings to a 

similar set of questions posed to each group, concerning 

issues which impact upon four topics of 

discussion (see questionnaire in Annex IV). 

• The majority of rural people still acquire land 

through customary processes which rely upon 

traditional authority, involving negotiations 

with elders and traditional authority for allocations 

of land in rural communities, whether 

for farming or residential purposes. Rural people 

appeared to maintain a high degree of confidence 

in customary processes and traditional 

authority when seeking to acquire land. 

• Access to land in urban communities is provided 

through two means: a long standing 

established land market system, involving 

private land sales and leases, and through 

informal arrangements between individuals 

and, in many instances, involving municipal 

authorities who allow access to individual 

“squatters” and “squatter communities” on 

public or vacant land. Such transactions, particularly 

those involving private land sales, 

are plagued by rampant fraudulent transactions 

involving sellers, surveyors and other 

individuals responsible for effecting these 

land transactions 

• Access to land for youth and women is limited 

in some rural communities. Long standing 

traditional norms are perceived to favor men 

while restricting equal access to women. 

• Rural participants regard “strangers” as fellow 

citizens from outside the community and 

treat them differently from “foreigners”, who 

are non citizens, in granting access to land. 

• In the case of “strangers”, rural communities 

are usually willing to grant access through 

sponsorship by “stranger fathers/mothers” or 

through marriage to a member of the community 

in question. Access to “foreigners” on the 

other hand is restricted by constitutional provisions 

and obtained only through legal statutory 

processes. 

• Both rural and urban participants expressed 

frustration with the lack of security of tenure, 

the pervasive and flagrant practices of fraud, 


and lack of rule of law, with respect to land 

sales and transactions. 

• Young people within rural communities are 

increasingly converting to statutory process 

of acquiring land. 

• People in rural farming communities, particularly 

returning youth, are often planting trees 

crops (mostly rubber) on communally owned 

family assigned plots as a means of securing 

tenure and eventually establishing ownership. 

• Rural communities generally place high degree 

of reliance on traditional authority for 

securing tenure. 

• Squatter communities within Monrovia generally 

recognize the right of ownership of government 

or other parties (where convincing 

evidence exist) to areas currently occupied by 

these communities. Many of these communities 

are now seeking to establish permanency 

through invoking the principal of “adverse 

possession”. 

• Regarding the perceived backlog of land 

court cases, participants stressed the need to 

enhance capacity of the Courts to effectively 

dispense of those cases which can be readily 

disposed of through the court system, while 

concurrently strengthened judicial enforcement. 

• Many rural participants expressed preference 

for employing Alternative Dispute Resolution 

(ADR) mechanisms including local traditional 

land disputes resolution mechanisms, which 

they emphatically stated do work (when left 

un-interfered by county officials), and are still 

widely used in rural communities. These traditional/informal 

ADR mechanisms involve 

fewer adversarial procedures and are therefore 

less likely to result in lasting rifts between 

community members (as is usually the 

case with “court” adjudicated disputes resolution 

mechanisms), thereby maintain communal 

harmony, which is of utmost importance 


• 

to rural communities. 

Participants recognized and acknowledged 

the need for having land records. 

• Many individuals residing within rural communities 

have tribal certificates in their possession 

for parcels of land on which they 

currently have productive access, which are 

several years (even several decades) old. 

Many wrongly believe these Tribal Certificates 

are legally equivalent to deeds. 

• Participants expressed frustration with the 

cumbersome, time consuming and relatively 

expensive process of obtaining public land 

deeds. 

• Participants also strongly felt that land records 

should be maintained and made assessable 

at national, county, and district levels. Rural 

participants want clan elders to also maintain 

a record system for Tribal Certificate issued 

locally. 

• Generally, rural communities want their property 

rights (both communal and personal) 

documented. 

• Local communities expressed the need to be 

involved in all decisions regarding the use and 

management of land and land based resources 

(both forestry and mining). 

• Participants in general strongly feel that limits 

should be placed on the amount of land that 

individuals, group of individuals, communities, 

businesses and concessions, are granted 

the right of possession over; under both customary 

and statutory land tenure systems. The 

recommended maximum acreage allocations 

for each of these categories of users were surprisingly 

consistent among county groups and 

regions. 

• Participants recognized the need for instituting 

a land taxation regime which is fair and 

which promotes investment and development 

of land and land based resources. The use of

punitive taxation, as a deterrent to land hoarding 

and other speculative practices, was recommended. 

• Participants expressed very strong views that 

unutilized land, located within urban or rural 

communities, be put into use whenever possible. 

In instances where such properties are 

privately owned by individuals who lack the 

financial resources needed to undertake development, 

government should encourage and 

promote such development efforts. 

• Participants suggested that unutilized parcels 

of land that remain idle for long periods of 

time within communities, where farmers and 

developers have need for and capacity to develop 

and utilize, be reclaimed by government 

and made available as such. 

• Participants overwhelmingly expressed opposition 

to granting foreigners the right to 

own land in Liberia. This is reflective of the 

general sense of insecurity and vulnerability 

which influences their unwillingness to permit 

ownership by foreigners. Several participants, 

however, voiced conditional support 

for allowing limited land ownership rights to 

be extended to foreigners desirous of undertaking 

major development projects or who are 

married to Liberians. 



Recommendations

Key recommendations were made by the participants 

in the six regional consultations.: 

On The Establishment of a Land Commission 

Participants urged that the proposed Land Commission 

be inclusive and that all counties be represented. 

Participants indicated that they want an 

ongoing consultative process in the work of the 

Land Commission. 

On Land Use Management and Policy 

Called for an active role from the communities in 

all decisions regarding land and natural resource 

management. In particular, participants want to 

be involved in decisions regarding concessions. 

Women called for a greater role in decision-making 

regarding land and natural resources and in 

conflict-resolution. In all counties, concern was 

expressed about undeveloped or unutilized land 

that is held in fee simple. Long-term leasing of 

such land to those willing to develop it was suggested 

as a mechanism to ensure that land is being 

productively used. 

Limits should be placed on how much land can 

be privately owned by individuals or granted to 

concessions. Recommended land use planning, 

especially in urban areas, and the enforcement of 

zoning laws in addition to addressing the issue of 

“squatter’s rights.” 

On Land Ownership and Access 

Recommended that the Public Lands Law of 1973 

be revised and that the definition of public land 

be reviewed. Participants also recommended the 

conversion of long-held Tribal Certificates in rural 

communities to fee simple deeds. 

Called for recognition by government of their traditional 

rights and claims to land. 

Recommended that the process of acquiring a land 

deed be decentralized to the local level and that 

the process be affordable to all. 

After vigorous discussions, the majority indicated 

that they were “not yet ready” to consider constitutional 

amendments concerning the ownership of 

land by non-citizens. 

On Conflict Resolution and Law Enforcement 

Recommended that laws regarding property be 

rigorously enforced, especially those dealing with 

fraudulent practices. While people, especially in 

rural communities expressed strong preference for 

their “traditional” methods of dispute resolution 

and a preference for addressing disputes locally, 

they also indicated a desire for broader-based participation, 

including women and youth in dispute 

resolution as well as Alternative Dispute Resolution 

(ADR) methods. 

On Education & Access to Information 

Requested that land records be made available 

to all at the local level in the districts and counties. 

Further requested that, land records should be 

managed by professionals and should be secured 

to prevent tampering and fraud. Called for education, 

especially by women and youth, on their land 

and property rights. Further requested increased 

awareness, advocacy and consensus building for 

new land laws and regulations that provide and 

protect equal access to land for all Liberians and 

which guarantee security of tenure, both customary 

and statutory. 



Annex I: Men’s <strong>Report</strong>

SUMMARY OF RESPONSES FROM MEN’S GROUPS 

Participants at each of the consultative sessions 

were divided into men’s groups (by 

county) and a women’s group, The groups 

were brought together in plenary session 

to discuss topics related to the PRS strategic objectives 

on land for economic revitalization and social 

development. The men’s groups were comprised of 

traditional leaders (Paramount Chiefs, District Commissioners), 

local government officials, community 

leaders, representatives of civil society, business 

and religious leaders, local representatives of 

NGOs, and youth. The points summarized below are 

their responses to a set of questions which facilitated 

their groups’ discussions about issues of access, security 

of tenure, management and administration of 

land; and records participants’ views/opinions on a 

range of land issues along with suggestions and recommendations 

on how to achieve the land reform 

objectives outlined in the PRS. 

QUESTIONS AND RESPONSES 

1.1 How do you get land? 

Responses: 

People get land through: 

• Family quarters; 

• Traditional elders with a defined role to apportion 

land; they must, however, give consent to 

the types of crops to be grown on the land. 

• Token ( kola, liquor, cloth); no cash involved 

in getting land but a token; 

• Conquest in war with seizure of other tribe’s 

or community’s land and properties; 

• Clearing a virgin area for a farm by a person 

who first settled and build a shelter; 

• Planting of ‘life trees’ (kola, orange, cocoa, 

coffee); 

• The process of obtaining a tribal certificate, 

and a deed; 

• Purchase from private owners; 

• Pay money to land agents, e.g. land commissioners, 

mayors and surveyors. 

• Granting of land rights to religious, government 

and other entities; 

• Brushing of road to point agreed by commu- 

nities as the boundary; 

• Encouraging investors to invest; 

• Leasing for business purposes by owners; 

• Granting of ‘squatters’ rights by city mayors, 

township commissioners and elders; Land is 

acquired from both government and private 

owners; 

• Private owners must have fee simple titles before 

you acquire land from them; 

• For Public land, one must go through the community 

leaders or authorities; Whatever document 

received must be properly registered and 

probated; 

• Through Presidential approval following executive 

order for survey of a public land; 

• First approach the Tribal authority then the 

City Mayor for town lot office who will contact 

the Land Commissioner for vacant land/ 

lot. 

• For business, firstly, one has to go to the 

County Authorities who will in turn direct you 

to the tribal community that owns the land on 

which the business is to be undertaken; 

• For housing, people build by quarters, except 

under some conditions, such as inter-marriages 

and use of your mother’s quarter which is 

based on the approval of the quarter; 

• If there is a vacant lot to be bought, the process 

immediately starts with the Land Commissioner 

and the Surveyor who will take the 

buyer to the vacant land and prepare a survey 

order; 

• You must obtain a tribal certificate signed by 

the elders and chiefs; 

• You have to use the land for its intended purposes; 

• Money is paid to the land officials (city mayors, 

land commissioners, surveyors )to obtain 

certificates and deeds, a practice described as 

fraudulent and seemingly giving rise to land 

conflicts); 

• You meet the land owner, the family head or 

the elders of the community; 

• If the land belongs to the community, the elders 

and chiefs lease the land; 


• 

• 

• 

By making farms (food crops: rice, etc), hunting 

and fishing; 

Planting cash crops (cocoa, coffee, etc.); 

By Negotiation; 

1.2 Are you able to get enough land for your 1) 

rice farms, 2) tree crops, 3) houses, and 4) businesses 

or (How do you give out land in your community? 

For Farming? Houses? Business?) 


• No, the process in obtaining land is very difficult; 

• Land is expensive for the poor; 

• Large portions of land are owned by people 

who cannot develop the land; 

• Private surveyors sell land without the knowledge 

of the proper authority; 

• Yes, there is enough land, but the forest land 

is limited due to Government restriction on 

Reserved Forest; 

• Yes, for rice farms; 

• No, for tree crops because original land owners 

are holding on to land and do not want to 

give it out; 

• For houses, there is enough land; 

• For business, it depends on the agreement, 

land can be available; 

• No, land is not enough due to growing population, 

and pressure on land in urban communities; 

• Getting land is constrained by encroachment 

with purchase made easier for financially potent 

individuals; 

• Rapid urbanization is taking up land area; 

• Land can be acquired from both government 

and private owners; 

• Private owners must have simple titles; 

• For Public land, one must go through the community 

leaders or civil authorities, and whatever 

document received must be properly 

registered and probated. This process is long, 

costly and difficult for most poor people; 

• Presidential approval following executive order 

for survey is a requirement that make acquiring 

land difficult; 

• Extension of private and foreign owned plantations 

makes it difficult to get land; 

• Yes for those who own land, there is enough 

land for farming, housing and tree crops; 


1.3 How do you make sure that land is put to 

good use? 


• You make sure to develop the land, if not, the 

quarter, family or elders have the right to take 

back their land; 

• Encourage other town people to live on, and 

use the vacant land; 

• By making sure that all zoning regulations 

and ordinances are adhered to. 

1.4 How do women, youth and strangers get access 

to land? 


• Strangers can lease the land not own it; 

• Strangers have to be naturalized citizens of the 

country if desirous of engaging in farming; 

• Strangers may get land by application to the 

elders and authorities; 

• Through stranger-fathers or host who vouches 

for the stranger’s character; 

• Man as a stranger gets land by marriage to a 

woman from the community; 

• Strangers get access to land through intermarriages; 

• Long stay in a particular community where 

he/she resides; By commitment and kindness 

to landlords, stakeholders; 

• In appreciation of services rendered (by 

strangers and youth); 

• Land given to a stranger is not bought and is 

forfeited when a stranger’s behavior is no longer 

compatible with community values. If no 

life-trees are planted, the land goes back to the 

citizens. If life-trees are planted, the land goes 

to the children of the strangers. 

• Strangers can lease the land but not to sell it to 

them; For strangers, especially foreigners, can 

only get land by leasing. Internal strangers 

(Liberians from different area) can get land 

through stranger-father. 

• Stranger acquires land through tribal certificate 

from tribal authorities; The first step is to 

ask the citizens for a parcel of land for farming 

and building; 

• If desirous of planting life-trees, token can be 

given to the citizens by the stranger;

• 

For strangers, especially foreigners can only 

get land by leasing. 

Women: 

• When she (referring to a widow) agrees to 

marry a relative of her deceased husband if 

she wants ownership of land she and her husband 

farmed; 

• A woman may only benefit from land with 

life trees when her husband is alive, if no life 

trees, land goes back to family (to sons and 

not daughters); 

• Women and youth have equal rights to land 

(Bomi County men’s group in contrast to 

men’s groups responses from thirteen counties); 

• No land for women; women have access, but 

may not own land; 

• Women may, however, own land through 

marriage and their children; 

• Women may own land through family and 

quarter chiefs with condition not to be given 

out to a third party; 

• Traditionally women do not own land: however, 

there are few exceptions; 

• Women can acquire land through the legal 

system; A woman can get land when a “man 

shows his chest” meaning a man must accompanied 

and negotiate on behalf of a woman 

to access land, give a token or purchase land 

(from traditional elders); 

• Through relatives; 

• Women and children own land inherited from 

their forefathers; 

• By purchasing and probating of a deed; If a 

widow refuses to marry to any member of her 

late husband’s family, she will no longer own 

the land once owned by her husband; 

• If she selects a member of her late husband 

family for re-marriage, then the husband’s 

land becomes hers; 

• Women own land from their Quarters or from 

their husbands’ quarters; 

• Women can also own land through purchasing 

(more applicable to educated or affluent 

women and not poor and illiterate women); 

• Only way a woman can own land if she is 

married; If she is not married, she will have to 

buy the land from the Government; 

• If a woman is not married, she can only own 

• 

• 

family land (from her parents landholding and 

dealings in land; 

Women inherit land only when there is no 

male child to inherit the land; 

By will, but most times the will is not honored 

by male siblings and other male family members. 

In times past, there were obstacles in 

women and children acquiring land and other 

real properties, however, with the passage of 

the Inheritance Bill, those obstacles are now 

out of the way. Women can get land through 

inheritance and buying. 

Youth: 

• Youths can own land by inheritance, purchasing 

and negotiation; 

• Through the establishment of a settlement or 

the planting of life-trees; 

• Through courts, tribal means, communities 

leaders, family; 

• Through the County Superintendent and the 

President, referring to public land; 

• For the youth, both boys and girls can own 

their parents’ land or can buy the land themselves; 

• Youths can own land only in the father’s quarter; 

• Youth can ask for farming land in their mother’s 

quarter, but cannot own it; 

• Youth who are not born by men from their 

county can own land through their mother’s 

quarter; 

• Parents can pass on property to girls like the 

boys ( group thinks girls too have the right 

to inherit property which is in line with the 

new inheritance rights laws in contrast to tradition); 

• Parents can pass property unto would-be owner 

as a result of his/her obedience to them, services 

rendered them and through maturity as a 

result of marriage (when you married, parents 

feel you are mature to acquire property); 

• Good behavior towards community people; 

• Youth can get land when he reaches maturity 

and when married. 

• By will. 

• In times past, there were obstacles in women 

and children acquiring land and other real 

properties, however, with the passage of the 

Inheritance Bill, those obstacles are now out 


of the way. Women can get land through inheritance 

and buying. 

1.4.1 Strangers (Participants’ definition/perception 

of strangers) : 

Lofa men’s focus group defined strangers as, persons 

of similar ethnic groups from countries bordering 

Liberia, who migrate to Liberia. Strangers 

were described as: 

• Guinea Loma; 

• Guinea Kpelle; 

• Guinea Mandingoes; 

• Guinea Kissi; 

• Sierra Leonean Kissi and Mende. 

The definition of strangers from other counties 

was not fully reflected. 

1.5 How can you be sure that the land is for 

you? 


• By owning properties on the land; 

• By surveying the land; Through tax payment; 

• By constantly farming; 

• By building town/village; 

• By planting cash crops; 

• By planting a life tree/forest tree as a boundary, 

• Use rivers/creeks and hills, 

• By obtaining a tribal certificate and/or land 

deed to be presented to central authorities. 

This needs to be revised to make it mandatory 

for Central Government to provide deeds; 

• Having Deeds that should be prepared within 

twelve months, which is not the case; 

• By the legalization of an inherited land; 

• By adverse possession (living on unoccupied 

and disowned land for more than 21 years) 

without claim of ownership by another; 

• Boundary demarcation-making sure that the 

land is for you. You can be sure that a portion 

of land is yours if you go through the process 

of acquiring it from the rightful owner(s); 

• Drawing up the necessary documents, registering 

and probating same. Few own the land 

thereby denying the majority; 

• Investors are taking a lot of the land with little 


or no benefits going to affected communities; 

• Local authorities are fronting for others in 

land sale transactions. Therefore one needs to 

find proper authority; 

• Surveyors and land owners are involved in 

fraudulent acts; 

• The lack of awareness on the process and procedure 

to acquire land. 

1.6 What is Public land? Private land? Communal 

land? Or How do you understand Public 

land? Private land? Communal? Swamp land?- 

Monrovia consultation) 

Participants’ Definitions: 

Public Land: 

• Public land is any land owned by the state or 

government; 

• Public land is land that is not owned by a particular 

individual - belongs to everybody or 

Government; 

• Public land is land not assigned to or sold to 

anyone, a specific group, quarter or an individual; 

• Public land is land owned by government and 

cannot be transferred to anyone; Land owned 

by government; 

• Land that is not owned by anyone; 

• Land given by government to an individual; 

• Public land – land that is not deeded; 

• Public land is land owned by the Government 

through enactment and purchasing. 

Communal Land: 

• Communal land belongs to a community and 

is reserved by the local authority for community 

use or for specific purposes, including development; 

• Communal land given to a community or 

group by the Government; 

• Communal land belongs to a community and 

is set aside for the community development; 

• Communal land is owned by the community 

and cannot be sold; 

• Communal land – land given by government 

with a grant deed for any purpose; 

• Land set aside by a community for agricultural 

and other purposes or for future use;

Private Land: 

• Private land is land purchased and owned by 

an individual, a family, an institution, company, 

a group or a business with a titled deed 

that has been probated and registered; 

• Private Land is land that belongs to an individual, 

company, etc. and document for such 

is a deed; 

Swamp land (specific to Monrovia consultations): 

• Swamp land can be owned by an individual 

if he/she buys a parcel of land surrounded by 

a swamp or adjoining a swamp. Swamp can 

also be public; 

1.7 What kinds of land records should there be? 


• Tribal Certificate; 

• Land Deeds; 

• Memorandum of Understanding; 

• Records of land disputes; 

• Records should be kept in county and national 

archives supervised by an archivist; 

• There should be such records as Tribal Certificate, 

Land Deed, Revenue Receipts and 

Concession Agreement; 

1.8 Who should keep these records? 


• In the computers while some should be kept 

by local elders and custodian; 

• The records should be kept by Paramount 

Chiefs, Land Agents, Commissioners; Land 

Commissioner, the Superintendent and the 

National Archives; 

• In keeping these records, there should be local 

Archives created at the county and district 

levels; 

• The local communities and the Central Government; 

• Copies of concession agreements should be 

placed in public libraries for the use of the 

students; 

• The Land Commissioner be responsible for the 

County Archive while District Land Commis- 

sioner takes charge of the District Archives; 

• Decentralize land record keeping system; 

• Land records should include Tribal Certificates, 

deeds, Wills, Administrator Papers, 

Power of Attorney, etc; 

• Records should be kept from the community 

level to the national level and if possible to the 

International level; 

• Records on decisions handed down on land 

cases. 

1.9 What is your understanding of a Tribal Certificate? 

A Deed? 


• A Land Deed is a legal document that guarantees 

land ownership; 

• A Land Deed is the paper that one receives 

from the President after land is surveyed ( 

public land); 

• A Land Deed is a legal land entitlement paper 

given by the government to an individual, 

group, family and which is probated and registered; 

• A Land Deed is a legal document showing 

ownership of a land from an individual or 

government; Land Deed is a document showing 

ownership to a piece of land legally; 

• A Land Deed is an official document giving 

right of ownership to a person or group of persons/institution; 

• A Land Deed is a piece of record describing 

the area given to an individual or group normally 

surveyed and signed by the President. 

• A Tribal Certificate is a document from the 

elders of a given community to inform the 

government that someone proposes to buy a 

piece of land. A verbal understanding with token 

to tribal people or an individual does not 

validate a tribal certificate; 

• A Tribal Certificate is the paper given by the 

Tribal Community for land owned by them; 

• A Tribal Certificate is a document prepared 

and signed by elders, Town Chiefs, Clan 

Chiefs, Paramount Chiefs and Commissioners 

indicating the wishes of the tribal people 

to give land to someone in their area as a personal 

or group property; 

• 

A Tribal Certificate is a permit from the Tribal 


• 

• 

• 

• 

People to acquire and possess a certain quantity 

of land mentioned therein; 

A Tribal Certificate is an official document 

given to a person indicating that a piece of 

land is not legally owned by any one; 

A Tribal Certificate has a lifespan of 7 years. 

It tells one that he/she has the right to pursue 

a land deed; 

A Tribal Certificate is an agreement put to- 

gether by local people/elders for the use of 

land; a bond; a guarantee given to somebody 

for the use of the land; 

Tribal Certificate is a permit given to the 

would-be buyer as a clearance for obtaining 

the land. 

2.0 Monrovia Consultation: What is your understanding 

of a tribal certificate? A Land Deed? 

Squatters’ Rights? Lease? 


• A land owned by a group of people with a 

Tribal Certificate; 

• Deed by the Traditional authority; a Land 

Deed is a legal document that guarantees land 

ownership; 

• A Land Deed is that authentic instrument giving 

one a title to a portion of land, which is 

processed through the requisite agencies of 

government to be legally binding on grantor 

(s) and owner (s); 

• A Lease is an agreement between and amongst 

individuals or with business and government 

for the use of a portion of land; 

• A Squatter’s Rights has no legal basis, but is 

usually granted by municipal authorities to 

persons in need, for a period of one (1) year 

(in contrast squatters tend to claim ownership 

after a period of time); 

• That there is too much bureaucracy in transforming 

Tribal Certificate to Deeds; 

• That there are incompetent Surveyors and 

Land Commissioners; 

• That there be a limit of seven (7) years to transfer 

one’s tribal Certificate to a Land Deed. 

2.1 What role should local communities play in 

managing land, forests, and mining? (County 

Consultations): 



• The community should set-up a land committee 

to represent the interest of the community; 

• The land committee should be part of the 

monitoring process; 

• There should be a memorandum of understanding 

(MOU) signed between the community 

and the would-be investor(s); 

• The community and or local authorities should 

form part of concession negotiation process 

from start to finish; be it for land management, 

forest or mining; 

• The community should also provide adequate 

information on traditional groves through 

county information data bank to be established 

in every provincial capital; 

• Provide correct information about the land; 

• Community should help to educate people; 

• Advocate for shared benefits; 

• All concession negotiations should commence 

with the community with copies of every concession 

agreement placed in a county archive 

to be established in each county. The role of 

communities should be a collaborative one. 

Communities must work with government 

in deciding what to do with land, forest and 

mining, taking into consideration the development 

of the local community as well as environmental 

problems; 

• Local communities should be charged with 

the responsibility to keep records on land 

transaction; 

• Local leaders, youths and women should be 

involved in the negotiation and monitoring 

process; 

• Local authority should be involved in providing 

security; 

• For land, community should be consulted 

first; 

• The Government of Liberia should give room 

to community in making decisions on the use 

of land; 

• For the use of forest, negotiation should begin 

at the community level; 

• For mining, all negotiations should also begin 

first with the community. Both the Government 

of Liberia and the local communities 

should be involved; 

• 

About 40% of the proceeds generated from

the resources be allotted to the county and 

55% to the National Government, while 5% 

goes to the family(ies) directly affected by the 

presence of the concession. 

2.2 Who should manage the natural resources? 

What role should communities play? 

(Montserrado Consultations) 

Responses : 

• Government should manage the natural resources 

jointly with the local communities/or 

private property owner(s); 

• For land, community should be consulted 

first; 

• The Government of Liberia (GOL) should 

give room to community in making decisions 

on the use of land; 

• For the use of forest, negotiation should begin 

at the community level; 

• For mining, all negotiations should also begin 

first with the community; 

• Local communities should always have a representative 

to work along with the land, forests 

or mine user(s) deviating from the original 

agreement; 

• The Government of Liberia in partnership 

with the local communities; 

• Local communities should be signatory to 

land document(s); 

• Communities should go into agreement before 

granting rights of ownership to persons 

and concessions; 

• The County Development Council (CDC) 

comprising District representation should 

manage the natural resources; 

• Government should manage the natural resources, 

but there should be equitable distribution 

of the proceeds obtained there from; 

• Government should manage the resources in 

collaboration with the indigenous of a given 

community; 

• Local communities should make sure individual 

or groups plant crops for which land was 

cleared; 

• Negotiation for concession intended for local 

communities should first begin in said communities 

with community consulted first; 

• Local community members should serve as 

members on the board of would-be conces- 

sions; 

• Registration of mining claims for local miners 

should be done in the county and not in Monrovia 

and proceeds from registration should 

go to the county; 

• Concession mining agreement registration 

should be done by the Central Government; 

• Local people should be encouraged to buy 

shares in companies wanting to do business in 

said communities; 

• Some products (forests) be transformed into 

finished or end-products-value-added for local 

consumption or use; Example, logs be 

transformed to planks for local construction 

instead of everything being shipped to Europe, 

etc; 

• Negotiation for mining should start in local 

communities rather than at national level; 

• Local surveyors should be used to demarcate 

mining claim; 

• Local mining registration fees should remain 

with local communities or local Government 

officials in each area; 

• Mining Concession claim registration should 

go to national Government; 

• The Government in partnership with the local 

communities with a committee to be set-up by 

the community; 

• That the community have access to the benefits; 

• That a Memorandum of Understanding 

(MOU) be negotiated and signed with the 

community. 

2.3 What should be done with land that is not being 

utilized or what should be done to encourage 

people to use their land? 


• Taxes should be levied on such land to serve 

as a warning to others who are not utilizing 

their land; 

• After five years if there is no development being 

carried out on the land, the land should be 

sold and the original owner is reimbursed; 

• Land owners should be given a period of time 

to develop their land ; 

• Laws should be put in place to guide land 

ownership and or tenure; 

• 

Secure land bank for the use of future genera- 


tion; 

• The Government of Liberia (GOL) should setup 

a loan system through the National Investment 

Commission (NIC) to enable people 

utilize their land; 

• Use administered-credit system (No Cash); 

• That the Government of Liberia (GOL) supports 

agriculture colleges at the University of 

Liberia (UL) and other Institutions of higher 

learning (that could utilize land for agriculture 

production and research); 

• That women and youth communal farming 

system is supported by the GOL; 

• That Traditional Title document be given to 

the Tribal people for “tribal reserves”; 

• Create awareness amongst local people on 

land tenure and ownership; 

• Central government should develop a policy 

that will grant loan to local communities 

housing development; 

• That there should be a policy to encourage 

farmers to use their land to increase production; 

• To serve as a collateral for housing; 

• Providing opportunities and financial assistance 

to local people to help them acquire title 

to their communal lands; 

• Taxes should be paid on land not utilized; 

• The land should be used by Government for 

social infrastructure; 

• Should you pay taxes on your land? Yes, particularly 

when not making use of the land; 

• Declare unused land public, be taken away 

from the owner, sell it and deposit funds into 

a special revenue and return same to the owner; 

• Owner should also be relocated upon application 

for new land; 

• For farmland, a period of one year should be 

given; 

• Any decision regarding unutilized land, however, 

should be done in accordance with city 

ordinances and laws of the land; 

• Three (3) months be given to landlords, following 

its acquisition, to develop their land; 

• That the Government of Liberia (GOL) levy 

progressive taxes on idled lands; 

• Government sells to those who are prepared 

to develop it. 

• That Government reduce the taxes on build- 


ing materials; 

• Primarily, advise owner to develop land; 

• Give personal or communal assistance. Example, 

the Kuu System (for extension of subsistence 

farming); 

• Should you pay taxes on your land? No.; 

• Land not being utilized should be taken over 

by the Government in five (5) to six (6) years 

if nothing is done on it; 

• Lease the land to anybody for use; 

• Government maintains the Zoning laws as 

well as the Eminent Domain of Liberia; Owners 

of land not being used are compensated 

while Government takes over same and those 

without tribal certificates should be referred to 

the Land Commissioners for their relocation; 

• A loan scheme should be put in place by the 

Government to help land owners develop their 

respective lands; 

• People should be encouraged to lease the land 

to people who are prepared to develop the 

land; 

• Educate them as to the importance of development; 

• That minimum fees be charged for land acquisition. 

2.4. How much land do you think someone 

should have for a farm? for a house?; for a concession? 

Or are you able to get enough land? 


Farm: 

• 200 to 300 acres; 

• 200 acres 

• 50 acres 

• 450 acres; 

• 50 – 500 acres 

• 10-500 acres 

• 50- 200 acres 

Residence/House: 

• 1 – 2 acres; 

• 1 acre 

• Five (5) acres ; 

• 1 lot - 1 acre; 

• 1 – 4 lots for a house 

Concession: 

• 

300 to 1,500 acres;

• One hundred fifty (150) acres; 

• 50,000 ; 

• 5,000-100,000 acres; 

• 5,000 – 200,000 acres (Margibi?- is there land 

left to allow for concession of this size ?) 

• 200 - 100,000 acres (Lofa); 

Other Determinants: 

For a concession: it should depend on the size the 

would-be investor wants or needs; Yes and No. It 

depends on where you live and where you want 

the land- in many cases; Land owners are holding 

vast tracts of land and not willing to sell or lease, 

while these properties are not developed; 

There are communities where you cannot find vacant 

or free land for any of the uses mentioned; 

There should be a limitation to the quantity of land 

to be purchased by an individual or concession. 

2.5 How do you settle land matters? Is it working? 


• Land matters between two individuals, quarters, 

towns, etc. are settled by chiefs and elders; 

• Where such matters cannot be handled by the 

elders, the Dakpanahs, Zoes, etc. meet outside 

the community to settle it; 

• No, it is not working as the youths are no longer 

showing respect for our cultures and decisions 

made by the elders; 

• The so-called education we get is influencing 

our culture; 

• Other external cultures are replacing our 

culture and ours are eroding for example, 

the Western Culture which promotes child 

rights; 

• Land matters in the rural areas are settled 

by elders/leaders/chiefs through traditional 

means and negotiations; 

• By inviting elders who know the history of 

said land; 

• In the rural areas, however, land matters are 

settled by legal means through court where 

there is still a dissatisfaction following the intervention 

of elders/local leaders or chiefs; 

• It is working in the rural areas and not the urban 

areas due to the so-called education that 

people are acquiring these days; 

• Traditionally, through the chiefs and elders in 

the hinterland; 

• Most land matters are settled by community 

leaders, however some cases are taken 

to courts; 

• Sex for assistance on the part of women ( Lofa 

County Men’s group-with women confirmed 

that when it comes to accessing land/or land 

matters they are told to have a man ‘show his 

chest’); 

• In the cities, this is not working because the 

Traditional Leaders, the Surveyors, Land 

Commissioners are not able to interpret 

deeds; 

• Local leaders have lost credibility because 

they are not neutral; 

• That there is no mechanism of settling land 

disputes; (Perhaps credible mechanisms); 

• Land sale is unregulated; 

• That there is a scarcity of land in strategic locations; 

• That there is a lack of knowledge on land 

capacity for surveying and deeds interpretation; 

• Surveyors and land owners are involved in 

fraud; 

• Through the youths; 

• By inviting elders who know the history of 

said land; 

• Failure on part of elders to speak the truth 

giving false testimonials when bribery is involved; 

• Can be settled by elders if respected, if not 

involved in illegal dealings of multiple sale of 

single parcel to several persons; 

• It is working in the rural areas; and not the 

urban areas due to the so-called education that 

people are acquiring these days no respect of 

cultural values; 

• Absence of effective structures and lack of 

capacity for dispute resolution mechanismsneed 

to be strengthened; 

2.6 How do you settle land matters? Is it working? 

How can laws pertaining to land and court 

decisions be enforced? 


• 

Modify or replace dispute resolution mecha- 


nisms by involving youth in traditional ways; 

• It has been observed regrettably that laws pertaining 

to land are not working; 

• Land cases are intentionally delayed in courts 

by greedy lawyers. There is a need for a reform 

. 

2.7 The Liberian Constitution says only Liberian 

citizens can own land. What do you think about 

this? 

• The white man should not be allowed to become 

citizen of Liberia; 

• The white man should own land for investment; 

• Discuss the issues at a separate forum (referendum 

as it is a constitutional issue); 

• The purchasing of land should be open to all 

races; 

• That the citizenship of Liberia be open to all 

races; 

• 

• 

• 

• 

• 

• 

• 

• 

• 

• 

• 

• 

They must purchase land and reside within 

the country for not less than ten (10) years (if 

citizenship is to be granted); 

Liberians wait for the next 20 years to re-think/ 

revisit the issue with people better aware on 

the issue; 

Whites should not own land because the land 

is all we have and has to be passed onto posterity; 

Support non-Liberians to own land for devel- 

opment purpose as Liberia is too backward in 

her development drive, but caution be exercised 

in doing so; 

They can buy the land in the city, but not to 

make farms on same; 

Opposition to non Liberian owing land is their 

distrustful attitude towards Liberians (even in 

the face of not having such rights at present 

how much so if they become.); 

They will exercise so much economic power 

over Liberians; 

It is important to give them a chance; 

Liberia backwardness should not be attributed 

to others but due to ourselves; 

Limitation should be exercised in this regard; 

Pray that the Liberian Constitution remains as 

it stands presently; 

Liberian Constitution says that a non-Liberian 

should not own land but the same constitution 

can be amended through a referendum; 


• There should be a condition that they be allowed 

provided they marry Liberians to front 

for them; 

• Liberia’s backwardness is not the result of 

Liberians not selling land to non-Liberian; 

rather, it is our Government’s inability to empower 

Liberians economically; 

• Relax the constitution to allow non-Liberians, 

if so desirous, to lease land to undertake investment 

ventures; 

• The best thing to do is for non-Liberians to 

lease the land for investment purposes and 

that if possible, extend the lease period; 

• Give it a second thought with condition that 

their children in the United States of America 

and other parts of the world will be consulted. 

• The Group said Liberia is not yet RIPE to give 

or allow non-negro descents to acquire or own 

land; 

• That the law granting only Negro-decent citizenship 

in Liberia be changed to allow white 

man to become citizens and own land; 

• That the whites (people of non negro descents) 

be allowed to own land in Liberia, but that 

policy governing it be put into place; 

• That the constitution be revised through a referendum. 

However, Article 22 of the Liberian 

Constitution that gives Liberians the exclusive 

rights to own real property, be maintained; 

• That land ownership be opened to all Liberians, 

including women; 

Regarding effective land administration and 

management and Investment in and development 

of the nation’s resources. 

• 

• 

• 

• 

• 

• 

That the Government should decentralize the 

process of getting a land deed and the registration; 

That the Government of Liberia provides 

deeds for tribal lands; 

That a Land Commission is set-up at the 

county levels; 

That in the traditional settings, our daughters 

own land; 

Local communities should participate in the 

process of signing concession agreements 

(logging, mining) with representation on 

Boards; 

Mining Agents should be accountable to local

communities; 

• Local communities are empowered to monitor 

various concession groups and would-be 

investors; 

• The land committee should be involved in 

proper agro-practices; 

• There should be laws put in place to guide acquisition 

and use of land; 

• Land should be laid out and allotted for specific 

businesses/buildings; 

• That land management awareness be created; 

• That Government makes the process of acquiring 

a deed for a tribal land less burdensome 

for the poor people; 

• That Land Deeds originating from the counties 

be probated by the Resident Judge in the 

counties (as it too expensive to travel to Monrovia 

and process involving the President is 

too long with no guarantee); 

• That Government gives seven (7) years for 

the changing of a Tribal Certificate to a Land 

Deed; 

• That a Land Commission be established; 

• That a Ministry or institution be established to 

exclusively handle land issues in the country; 

• That land fraud be a capital offense; 

• That a dowry widow be allowed to own land 

of the deceased husband; 

• That all government properties (land) be demarcated 

and deeded; 

• Given that President of the Republic is too 

busy, for the purpose of decentralization as 

well as the difficulties people encounter with 

the process through the probate courts and the 

costs to have their land deed, a tribal certificate 

once obtained should not be subject to 

the signature of the Chief Executive again; 

• That the Government recognizes the tribal 

certificate on the same level as Land Deed, 

since Chiefs are elected by the people, their 

signatures, along with that of the County Superintendent’s 

should be recognized by the 

Chief Executive; 

• Investors wanting to invest in a given locality, 

in addition to the Government sanctioning the 

venture, the Investor should enter into a written 

agreement spelling out the locals’ wishes 

as to the benefits they ought to derive during 

the course of the venture; 

• Government considers an alternative mea- 

• 

• 

• 

• 

• 

• 

• 

• 

• 

• 

• 

• 

• 

• 

sures by which land issues can be resolved 

through tribal medium rather than by means 

of court; 

That the youth be involved in the settling of 

land disputes; 

That all holes dug by miners are filled in fol- 

lowing the process of extraction of minerals 

from the earth to give the soil a replenished 

look; 

That Government work through the Minis- 

tries of Public Works and Lands, Mines and 

Energy as well as Municipalities in the layout 

of the various townships and cities, and to enforce 

the zoning laws; 

That Government works through the various 

cities and county authorities to establish large 

tracts of communal land for farming, recreation 

land housing; 

There should be a fast-track court to try land 

cases as the judicial system is not working effectively 

in that direction; 

That the Ministry of Lands, Mines and En- 

ergy standardize the surveying fees for land 

as well as for probating and the registration of 

Land Deeds in the country; 

That mini and all other concession laws in- 

tended to provide benefits for affected communities 

be reformed; 

That a reasonable percentage of all taxes and 

levies collected (from concessions) remain in 

the county for development; 

That all owners of Tribal Land Certificates 

be given not less than one year and not more 

than 7 years to obtain a deed or said land be 

declared public land; 

That archives be established in all county 

seats and if possible at the district level to be 

headed by a County Archivist; 

Those Occupants on Tribal Land should not 

sell such land. Land sale should be done by 

only individuals holding Land Deeds; 

That all land documents be signed at the local 

or county level instead of by the President; 

That the deed of a farm land up to 450 acres 

be signed by the County Superintendent; 

Those local communities should be empow- 

ered to play a monitoring role in the management 

of the forest, mining, etc. 



Annex II: Women’s <strong>Report</strong>

SUMMARY OF RESPONSES FROM WOMEN’S GROUPS 

In five of the regional consultations, the women 

participants formed their own discussion 

group in order to ensure that they would have 

the opportunity to express their opinions, discussing 

the 

same issues 

as the men. 

As their 

responses, 

perceptions, 

and ideas 

were similar 

throughout 

the country, 

these have 

been aggregated 

for their report, with local differences noted 

when relevant. 

Superintendents were instructed to ensure that 

women were represented in the county delegations. 

As with the men, the women came from 

diverse backgrounds. 

In the focus groups, women discussed several 

issues that have an effect on equitable access to 

land and the security of land tenure. The bullet 

points below summarize the points that the women 

brought up in discussion: 

• Inheritance patterns that pass on land and 

property rights through men may limit women’s 

access to land. 

• Biases against women in land acquisition and 

security of tenure and that limit women’s access 

to land. Such biases are more pronounced 

when a woman does not have a husband or 

other male relative to speak for them. A woman 

from Lofa commented: “when you want 

land, our elders still ask that a man must show 

his chest”; 

• Poor women have inadequate financial resources 

to acquire and own land in contrast 

to their educated counterparts under statutory 

law; 

• 

Customary laws, social norms, or practices 

often deprive women (including widows) access 

to or use of land, restricting their use to 

the production of annual food crops. Among 

some ethnic 

groups, widows 

may be denied 

access to land if 

they have no children 

for their deceased 

husbands. 

A widow may 

also be expected 

to marry her deceased 

husband’s 

brother (or other 

male relative) to maintain access to the husband’s 

property; 

“City mayors, surveyors and land commissioners apportion land 

like elephant meat of unlimited quantity: it is cut and sold to 

whoever has money.” 

- Woman participant in County-wide consultations 

• In some cases, women married to “ strangers” 

may be prohibited from planting life trees or 

tree crops on family land. On the other hand, 

men who are “strangers” in a community may 

gain access to land for farming through marriage 

to local women; 

“When you want land, our elders 

still ask that a man must show his 

chest.” 

- Lofa woman 

• Women, as well as men, generally lack awareness 

and education on inheritance rights, existing 

land laws, and advocacy or support options; 

• Women perceive that some men, especially 

noted by those from Bong and Lofa, continue 

to regard women as property. Under customary 

marriage, a man paid a “dowry” of $40.00 

to the bride’s family, often interpreted to mean 

that a wife is the property of her husband; 

• Women commented that in the past, women 

were often “given” to men, especially chiefs 


or politicians, as part of the patronage system; 

• The processing of acquiring land documents, 

e.g. tribal certificates and deeds, to secure 

land ownership under statutory law is difficult, 

time consuming, and costly. As a result, 

women commented that they may abandon 

their attempts to secure land; 

• Women are often excluded from the process 

of decision making in land matters by sacred 

traditional societies such as the Poro; 

• Sibling rivalries may fuel conflicts over land 

when children of head wife and other wives, 

in exclusion of sisters, claim ownership thus 

denying access to and use of land. 

• Wills left by fathers/parents that pass on inheritance 

rights to women are often disregarded 

and there is controversy involving elders 

and chiefs over woman’s chieftaincy and inheritance 

rights after father’s demise. 

Availability and Utilization 

Rice Farms: 

• Women from some participating counties acknowledged 

an increase in the demand for 

farmland; 

• Women are usually able to obtain land for 

food crops, especially rice and cassava; 

• Large tracts of privately owned land and land 

occupied by concessions are planted with cash 

crops (rubber, oil palm, coffee and cocoa) and 

not available for food crop production; 

• There is an acute shortage of land for agriculture 

due to population pressure in some areas, 

e.g. Pleebo District and parts of Nimba; 

• Educated and influential men and women of 

the community, considered to be those with 

finances or official posts, are increasingly 

privatizing family and communal land; 

• In some areas, especially the southeast, tribal 

certificates are being obtained in Monrovia 

and presented to local people, without the 

knowledge or consent of local elders and 

without consideration of local land needs. Individual 

choices in deciding what to grow on 


land is shifting to rubber; 

• Comments were made about considerable 

land not being accessible by road. The absence 

of farm-to-market roads constrains their 

ability to market crops. Having to walk long 

distances to market also increases their work 

load; 

• Women see roads as being crucial to increasing 

food crop production by providing easier 

access to markets; 

Tree Crops: 

• Women generally perceive that they have less 

access to land for planting tree crops. Men 

dominate the tree crops sector while women 

may be restricted to the planting of food crops 

or annuals that do not establish ownership or 

assure security of tenure; 

• Men tend to take the lead in decisions concerning 

cash crops, even when women have 

inherited land or otherwise secured title or 

ownership; 

• Educated and wealthy women are able to cultivate 

tree and other cash crops. 

Land for Houses and Business: 

• Land for houses and businesses is available in 

smaller rural communities/towns where land 

is not sold; 

• In larger towns or cities lots must be purchased 

and demand is often high. When land is of 

prime economic value (situated along roadsides 

or near business centers), individuals 

compete for owner ship. Absentee landlords 

(who may not return to Liberia) often prevent 

land from being utilized productively. 

How Much Land Can One Own? 

• Like the men, women participants were in 

general agreement that “it is not good for anyone 

to own too much land.” There was no 

agreement, however, on what constituted “too 

much.” People felt that there should be limits 

on land owned by individuals for farms or 

residents and on the size of concessions. the 

amount of land that could be owned should be 

limited. There was not, however, a consen-

• 

• 

sus on what the limit should be. Suggestions 

for a farm ranged from 15-500 or more acres; 

for a house 1-4 acres and concession 10-5,000 

acres. Many people have no realistic notion 

of what an acre of land is; 

Women reported that land records and sur- 

veys are often not accurate. Surveys may 

show acreage in excess of what is available. 

Sometimes a survey “can capture a whole 

town.” Surveys can also cross-cut community 

boundaries, leading to conflicts; 

Women generally felt that the amount of land 

to be given for deeded farmland and for concessions 

be determined by the amount of land 

available. Concern was frequently expressed 

that there should be land left for their children 

and future generations. 

Acute Shortage of Farmland: 

• Women understand land to be in excess in 

remote areas of the country, but cite concessions, 

population growth, and customary laws 

and practices as factors that restrict their access 

to land; 

Remote Land: 

The absence of farm-to-market roads coupled with 

long walking distances prevent women from accessing 

remote land for farming. The absence of 

other services (medical/educational) also serves as 

a disincentive for women. Counties that are easily 

accessible are experiencing population pressure. 

Concessions agreements provided for land in excess 

of what can be developed in these counties. 

In addition, private individuals have gradually encroached 

upon or privatized family/communally 

owned land. Consequently, this has contributed to 

reduced land area for shifting cultivation, shorter 

fallow periods and lower crop yields; 

• Customary laws, regulations or practices that 

marginalize women as heads of households, 

were also cited as responsible for acute shortage 

of land. Sometimes, women enter informal 

agreements with chiefs by paying the 

chiefs to use land, but the land use is restricted 

to annual food crops ((Kpaai District, Bong 

County). Also, some women enter into “rent- 

al agreements” where women agree to pay a 

share of their produce as rent for use of land. 

Women may also “lease” land from private 

owners, paying “toll” to the landlord. Women 

are often bound to keep that agreement even 

when crop yields are poor, threatening their 

household food security. 

Access to Land by Youth 

There was a commonly–held perception by women 

that access to land by the youth is biased against 

young women, especially those not married. 

Young men are given land in reward for working 

hard or as the family heirs. Young women, 

on the other hand, are viewed as likely to marry 

and obtain land through their husbands. There is a 

concern that a woman’s husband, especially if not 

local, might “take her land.” 

Strangers’ Access to land 

Discussions of strangers’ access to land uncovered 

varied understandings of the definition of “stranger.” 

To understand who is referred to as a stranger 

in Liberia, and whether or not she/he has access to 

land, women were asked to talk about who they 

considered to be strangers. 

In the women’s words, Strangers are: 

• persons granted temporary use of land for rice 

farms and short duration crops with no land 

rights to plant life trees (tree crops that are of 

cash value); 

• A Liberian who leaves one county and becomes 

a resident in another county; 

• People who leave their county of origin and 

becomes residents in another county through 

marriage. 

• people who are unable to correctly identify 

their community of origin, family, quarter or 

with no ties or affiliation with persons from 

the county he/she claims to originate from 

(Bong, Nimba, Lofa womens group); 

• Residents who in the past escaped payment of 

taxes (head tax/ other taxes levied) by making 

known they were strangers; 

• People observed by elders and community 

members to be of good character to live among 


• 

• 

• 

• 

them and be able to have a host that will be 

held responsible for actions incompatible to 

the community way of life; 

Are those people who have denounced their 

Liberian citizenship (following presidential 

declaration in the 1980’s that they were citizens), 

but at the peak of the Liberian civil crisis 

sought refuge in bordering countries and 

reverted to citizenship of refuge country believed 

to be their countries of origin (Bong, 

Lofa and Nimba); 

Are individuals returning to post-war Liberia 

from neighboring countries and asking for 

return of ideally situated land claimed to be 

owned by them, but asserted by others in the 

community as given them “on good will gesture” 

(sentiment strongly expressed by women 

from Bong, Nimba and Lofa counties) by 

their fathers. Some of these individuals were 

accused of having forged ownership documents; 

Are squatters in large towns without “strang- 

er mothers or fathers” of same ethnic group. 

Shelter is often found in garages and makeshift 

structures along roadsides or vacant lots. 

Sometimes money is exchanged for “squatters 

rights” which legally do not exist. 

People who are able to integrate in the com- 

munity and accept the traditional norms, e.g. 

respect for elders with services rendered in return 

for land rights. 

Land is Crucial for Women’s Livelihoods 

Land is critical to women’s livelihoods. Women 

are expected to maintain the production cycle of 

food crops, but they have limited access to and 

insecurity of tenure which constrains their agriculture 

production capacity. Access to land in order 

to produce food crops for household consumption 

and sale to provide for other basic necessities and 

services (health care, education) would significantly 

improve women’s livelihoods. 

Women made the following recommendations on 

how to promote equitable and Productive Access 

to both Public and Private Land: 

• 

Work to increase awareness, education, and 


• 

• 

• 

• 

• 

• 

advocacy on inheritance rights laws and other 

laws that promote gender equity; 

The process of acquiring deeds for land should 

be decentralized. The current process is prohibitively 

expensive and time-consuming for 

rural residents; 

The time period for formalizing land docu- 

ments (that take up time they would have spent 

on other livelihood activities) be shortened; 

Fees to surveyors, land commissioners, and 

responsible agencies handling land administration 

should be affordable and regulated as 

the meager financial resources within their 

means is often depleted in following up on 

land issues; 

Corrective measures to encourage and sup- 

port food crops production should be complemented 

by incentives to produce cash crops 

which have more monetary value; 

Reinforce existing or formulate new policies 

to promote women’s participation in decision 

making on land, resource management, 

and other related community activities and issues; 

Laws and other practices that discriminate 

against women should be replaced with new 

laws that do not discriminate. 

Literate women are more assured of access to land 

than their illiterate counterparts. These women are 

also more informed on the laws and their rights relating 

to land holdings and dealings, and security 

of tenure under statutory laws. While tree crops, 

corner stones, soap trees, creeks are known to 

most women as symbols that indicate ownership 

and promote security of tenure, literate women are 

more likely to be resolute and confident in pursuing 

land cases even when their claims are not recognized 

and tenure of security is threatened. 

When asked, “How can you be sure the land is for 

you?” most women responded with reference to 

men rather than themselves, as it is men who control 

decisions on land, and administer and guarantee 

security. Responses included: 

• If you are the first to brush an area of land for 

farm/village belonging to a family quarter or 

community, then the land belongs to you;

• By mutually agreeing on means of demarcation 

e.g. throwing of rocks and accepting 

boundary where the rocks drop; 

• By planting life trees, soap trees and, recently, 

rubber; 

• By the oral and historical accounts and testimonies 

by elders on boundary demarcation, 

e.g. where road side brushing for one community 

begins and stop, or topographical features 

such as creeks, hills or mountains; 

• By conquest in the pre-state era; 

• If you are in possession of the oldest deed or 

the mother’s deed that validate ownership; 

• Having a tribal certificate that has been negotiated 

with elders upon payment of a token. 

Understanding of Public Land, Private Land and 

Communal Land 

Women have varied understandings about the 

meaning and definition of Public Land. Responses 

to the question: “What is the definition of Public 

Land? ranged from: 

• “Public land is part of the forest where no one 

lives” 

• “Public Land is land that tribal people put law 

on that no one should use unless abiding to 

those laws.” 

• Land set aside or reserved for general use by 

the people, community or government for the 

construction of public facilities; 

• Does not belong to anyone and has not been 

paid for by anyone; 

• Any public land is for us since we are the government; 

Generally, women were in agreement in their understanding 

of private and communal land. 

Private land is understood to be land that can 

be purchased by anyone and sold by the owner 

through a transfer of a deed to another person. 

Communal land is land that has been set aside 

by elders with regulations prohibiting extraction 

of resources, including forest, wildlife or use of 

land for farming without permission. Communal 

land is not to be sold; it is community owned with 

sacred places to be protected. Use of any portion 

of the land must be agreed upon and trespassing 

carries punitive measures. 

Settling of Land Matters 

Women generally agreed that there has been a recent 

increase in land disputes. Historically, elders 

and chiefs in the community were looked upon to 

amicably settle land disputes and their decisions 

were respected. In current times, participants say 

elders’ role and other forms of dispute resolutions 

are not functioning as a result of: 

• 

• 

• 

• 

• 

• 

• 

• 

• 

• 

• 

Lack of respect for elders’ judgment and heads 

of traditional sacred societies (in settling land 

disputes in the “bush”); 

Western imposed influences, including laws 

and courts that overshadow the role of elders 

and disregard for their endowed knowledge 

and wisdom; 

The preference of some individuals to have 

disputes settled by courts and the use of money 

to manipulate court decisions; 

Incompetent courts and/or lack of attractive 

incentives for judges and paralegal personnel; 

An eroding trust in elders and chiefs to settle 

land disputes without prejudice, due in part to 

interference of the legislature and county authorities, 

e.g. superintendents and the giving 

of bribes to elders and chiefs; 

Advice from children to take cases to court; 

The acts of oath taking and giving of testimo- 

nies by elders and chiefs are no longer credible 

in settling boundary disputes; 

The hike in legal fees and other costs, includ- 

ing transportation fares to and from county 

seats and to Monrovia where land disputes are 

transferred; 

The infusion of money by one party or en- 

gagement in fraudulent acts to obtain land 

documents which prior to the dispute were 

non-existent. 

The settling of land disputes and decisions by 

men without involving women and youth. 

Family members using or developing land, 

creating perception that land is individually 

owned. Lack of written records to validate 

such arrangements. 


• A tribal certificate is perceived to be a document 

given to indicate that a specified piece of 

land has been given by the elders and chiefs in 

return for a token; 

• A process of acquiring land that is cumbersome 

and bureaucratic; 

• A process that is expensive as surveyors, land 

commissioners, superintendents and other officials 

demand high fees; 

• People are not sure for how long a tribal certificate 

is valid; 

• Getting a presidential signature on a deed may 

take considerable time, even exceeding the 

term of a president; 

• A land deed is considered to be a document 

or paper with signatures of individuals from 

whom the land is purchased. A deed should 

confer ownership of the land and provide security 

of tenure but this has been compromised 

by people selling the same piece of land to 

more than one person. 

Role of Local Communities in Managing Land, 

Forests and Mines 

Women, like men, want participation in: 

• The management of natural resources, including 

forest resources, with percentage of benefits 

accruing to their communities; 

• Decisions that allow substantial contributions 

to community development initiatives 

by concessions for upgraded social services, 

infrastructure development (roads, bridges, 

hospitals, schools); 

• Proposed management committees that will 

represent communities on issues that relate to 

social contracts for share of benefits from forest 

exploitation and other natural resources; 

• Monitoring environmental abuses of forests 

by logging companies, e.g. pollution of water 

and land degradation; 

• The activities of civil society organizations 

and other local structures in managing the forest 

and natural resources should build on their 

knowledge; 

• The exploitation of forests did not benefit 

them in the past. There should be new measures 

that will contribute to long term devel- 


opment. 

The following are women’s recommendations for 

strengthening the role of local communities in 

managing land, forests, and mines: 

• Women want a clear definition of public land 

since their communities have occupied and 

used land for several hundred years; 

• Women want representation on management 

committees that will decide on the distribution 

and use of benefits and revenue from forests 

and mines; 

• Management should be done at the local level, 

not just in Monrovia; 

• FDA and the government should ensure that 

revenues and benefits are paid 

• Communities should participate in decision 

making processes leading to the granting of 

concessions; 

• Concessions, including logging, should agree 

to employ residents from areas of operation 

and employ qualified Liberians in managerial 

positions; 

• Women want access to information regarding 

concession agreements; 

• Logging companies should take measures to 

prevent environmental problems such as forest 

loss, land degradation, and pollution of 

rivers. Some commented that shifting cultivation 

is not as destructive to the environment as 

extensive logging. 

Land records include deeds, letter of administration, 

tribal certificates, deeds, and lease agreements. 

Presently they are not kept in one place. 

• Records should be consolidated in one place 

and handled by professionals; 

• Records should be secured to prevent handling 

by unscrupulous personnel; 

• All documents relating land be written with 

copies kept by parties to the agreement. If a 

party can not read or write that party finds a 

person sufficiently literate to represent her/his 

interest; 

• Land records should be available at the local 

level.

In order to promote investment and development, 

women put forth the following recommendations: 

• Introduce and impose a progressive tax system 

on dormant or unutilized land as a step to 

encourage utilization; 

• Restrict the buying of land in excess of what 

can be developed by individuals or companies; 

• Responsible agencies should introduce land 

use mapping to maximize land use, and productivity; 

• Identify owners of land and negotiate for land 

for construction of public facilities (schools, 

clinics, playgrounds/parks) for the public 

good; 

• Lease land that has economic or agriculture 

value and is not being utilized to concessions 

and others who need land for investment. 

Citizenship and Land 

Participants were asked whether or not they believed 

that the constitution should be amended to 

allow non-Liberian citizens to purchase land. This 

was a very controversial issue and participants engaged 

in heated debate. 

Those participants who said “yes” to the question 

generally listed the following reasons for the 

“yes” answer: 

• Security of the state will be prioritized with 

threats to destabilization averted when their 

investments and economic interests are at 

risk; 

• Improved living conditions for the general 

population through investment in construction 

and maintenance of social facilities (health 

centers, hospitals, schools) and better social 

services for them and fellow Liberians; 

• Allow citizenship on a reciprocal basis, with 

preference to individuals from countries where 

Liberians are granted citizenship, own properties 

and enjoy other opportunities (America, 

Europe); 

• Impose criteria to be met (years of resident requirement, 

must be law abiding); 

• Grant “them” citizenship as some Liberians 

opt to become citizens of other countries with 

• 

• 

• 

• 

• 

no desire to invest in Liberia, or return to develop 

land and other properties; 

Exempt a category of individuals from citi- 

zenship (reference to Lebanese) who have 

long exploited Liberians without significant 

contributions to development.; 

“Give them citizenship-they will develop Li- 

beria using models as the French did in Cote’de 

Voire, the British and others in Kenya; ” 

Should be allowed citizenship through mar- 

riages to Liberians with properties, land, 

houses and businesses registered in name of 

Liberian spouses and/or children; 

Limit the amount of land to be bought and 

owned by “them; ” 

Land or citizenship issue should not be thought 

of as one that will bring development. Equal 

distribution of resources for development 

should be the focus. 

Request to Defer Responses: 

Respondents from some counties including 

(Maryland, River Cess, Margibi, Grand Gedeh 

and Grand Bassa) suggested the issue be deferred 

for discussion when they would have consulted 

family members and their children in the Diaspora. 

Others recommended a forum be held separate 

from the discussion of other land issues since the 

issue is constitutional. Those who said “No” citied 

the following reasons for their response: 

• The granting of citizenship and ownership of 

land as confrontational when most Liberians 

in post-war Liberia live in abject poverty; 

• While most Liberians are desirous of developing 

their land, they do not have the money 

to do so. When the constitution is changed, all 

the land will be bought by “them.” We will 

work for them for “little or for nothing” without 

fair compensation for our labor and other 

resources that they will own; 

• As our forefathers never sold land why should 

we now sell land (with reference to land as a 

birthright not to be sold to strangers or foreigners). 

• Concerns over influx of persons of same race 

(they refer to as strangers or foreigners with 

paper citizenship) who buy land and properties 

at prime locations with some Liberians 


• 

• 

• 

• 

now preferring them to buy at prices Liberians 

can not afford; 

Feelings of insecurity from war experiences 

despite promotion of peaceful co-existence 

and reconciliation amongst people of different 

religious affiliation; 

Negative reflections on scenarios of land ac- 

quisition and ownership in South Africa and 

Zimbabwe by whites; 

Lease land for agreed number of years for 

agricultural activities and food security with 

benefits or returns to be shared with owners; 

This perpetuates the dependency syndrome- 

relying on others to come and develop Liberia 

instead of Liberians taking lead initiative. 

Participants were supportive of the establishment 

of a Land Commission, believing that such a body 


will help settle land disputes. They recommended 

that its members be persons of integrity and trust, 

representing Liberians from the counties and not 

just Monrovia. The Land Commission should prioritize 

land policies that correct the biases against 

women. When established, the Land Commission 

should form alliances with women advocacy 

groups, civil society organizations, interest groups 

such as female lawyers/associations, external affiliates 

and international organizations, and other 

stakeholders to enhance the process. 

While the citizenship issue is important and relates 

to promoting investment and development, 

people need to be adequately informed on reasons 

that prompted the making of these laws in the formative 

years of the state.

Annex III: Montserrado Discussions - Major Points 


This report is a result of a two days consultative 

meeting on land reform organized 

by the Governance Commission, Republic 

of Liberia. The meetings were held at the 

S. K. D. Complex, Paynesville, Liberia from May 

7-8, 2008. Over 250 participants/stakeholders and 

other people from various locations in Montserrado 

County attended. Four (4) major topics/issues were 

discussed during the meetings. They included: 

• Promoting equitable and productive access to 

the nation’s land, both public and private; 

• 

• 

• 

Promoting security of tenure in land and the 

rule of law with respect to landholding and 

dealings in land; 

Promoting effective land administration and 

management; 

Promoting investment in and development of 

the nation’s land resources. 

The meeting was officially opened by the Vice 

President of Liberia, His Excellency Joseph N. 

Baokai, while the closing ceremonies were held 

with the presence of the Chairman of the Governance 

Commission, Dr. Amos Sawyer. 

Meeting Objectives 

Land being a sensitive issue and a potential source 

of conflict, the consultative meeting was intended 

to get views/opinions from individuals, groups as 

a way forward for the possible establishment of a 

“Land Commission” for the country. 

Meeting Strategy 

Opinion leaders, including women, men, and 

youths from Montserrado County/other stakeholders 

were brought together under one roof and 

divided into four (4) groups for discussions on the 

four (4) main topics. This was followed by a plenary 

session where issues and recommendations 

from the groups were highlighted and presented. 

Meeting Outcome 

As a result of the 2 days consultative meeting, participants 

were able to put forward sound recommendations 

intended to jump start the process for 

setting up a “Land commission” for the Republic 

of Liberia. 

TOPIC I: Promoting equitable and productive 


access to the nation’s land, both public and private 

Question: How do you get land? 


• Apply to government for vacant lot; 

• Conduct survey; 

• Obtain deed; 

• Deed to President for signature; 

Question: What are the legal ways to acquire private 

land? 


• Investigate; 

• Obtain permit from Lands, Mines & Energy 

Ministry; 

• Conduct survey; 

• Obtain deed, along with copy of mother 

deed; 

• Probate deed in probate court 

Question: What are the illegal ways to acquire 

land? 


• By discovery, conquest & inheritance; 

• “Build quick, quick”; 

• By hook or crook behavior (i.e. backdating of 

deeds); 

• By squatting; 

• By planting tree crops over a long period of 

time; 

• By filling up swamp/low land areas 

Question: Are you able to get enough land for 

your farm, tree crops, houses and businesses? 


For farm 

• Depends on location (rural/urban); 

• For rural (yes), large land is available; 

• For urban (no), very small land available. 

For tree crops 

• Rural: (available but conditional –allowed for 

people from within the village, town or com-

• 

• 

• 

munity 

Urban: (insufficient land for tree crops); 

For houses: depends on your financial capacity 

For businesses: depends on the type of business, 

desired location and purchasing power. 

Question: How do you make sure that the land is 

put to good use? 


• By development; 

• By building schools, hospitals, roads, markets 

and businesses; 

• By leasing land to potential investors; 

• By selling land to others; 

• By informing government about unused land; 

• By rebuilding new structure on previously, 

but destroyed structure 

Question: How do women, youth and strangers 

get access to land? 


Women 

• From ancestors/by inheritance; 

• By own purchase; 

• By marriage; 

• By gift (i.e. lover). 

Youth 

• From ancestors/by inheritance; 

• By own purchase; 

• By marriage; 

• By gift (i.e. lover); 

Strangers 

• By marriage 

• By gift (stranger father) 

• By legal means (through government) 

TOPIC II: Promoting security of tenure in land 

and the rule of law with respect to landholding 

and dealings in land? 

Question: How can you be sure that the land is 

for you? 

Responses : 

• By registering deed in township in which land 

is located but township authorities may illegally 

sell same land to someone else); 

• By planting cornerstone on the land; 

• By probating your deed; 

• By building on it; 

• By placing caretaker on said land; 

• By testimony of several other people/witnesses 

living in the area; 

• By obtaining copy of mother deed. 

Question: How do you understand public land, 

private land, communal land, swamp land? 


• Public land: Land owned by government; 

• Private land: land owned and deeded by individual 

citizen; 

• Communal land: Joint ownership by people 

(town, clan, district, etc.) for farming. It is not 

to be sold. 

• Swamp land: Owned by government; these 

include all wet/low lands. 

Question: How do you settle land matters? Is it 

working? 


• By elders; 

• By legal investigation through court; 

• By community investigation; 

• It is not really working due to delay in adjudicating 

land cases. 

Question: How can the laws pertaining to land 

and court decisions be enforced? 


• By improving salaries of judges/law enforcement 

officers; 

• By refining the court system; 

• By setting up special/fast track courts (i.e. 

Civil Law Court ‘B’ “with no appeal); 

• By appointing credible officials (judges, land 

commissioners, ministers, etc.); 

• By creating public awareness/education on 

land issues; 

• 

By government agencies coordinating their 


• 

• 

• 

• 

activities; 

By government of Liberia laying out the entire 

country; 

By abolishing “letters of administration”; 

By government taking possession of deeds of 

all land already sold 

By government verifying all land documents 

before they are probated. 

TOPIC III: Promoting effective land administration 

and management. 

Question: What is your understanding of a land 

deed? A lease? Squatter’s right? 


• Land deed: Legal document of entitlement; 

• Lease: An agreement between parties for a 

short time possession of a property; 

• Squatter’s rights: Temporary use of a government 

land. But, there is legally no such thing 

as “squatter’s right”. 

Questions: What role should local communities 

play in managing land, forests and mining? 


Land: 

• Set up law to govern use; 

• Work along with government on contracts, 

through consultation; 

• By protecting land from criminals; 

• By serving as security, mediator of land; 

• By working along with government to administer 

land issue; 

• By informing government about land issue 

• Forest: 

• That agreements/contracts should be done in 

consultation with communities. They know 

their forest better; 

• Restrict hunting 

Mining: 

• Identify area for use 

• Contracts should be signed in the community, 

not in big hotels in Monrovia/abroad. 

Questions: What kind of land records should 

there be? Who should keep these records? 



• Title deeds (That are registered and probated); 

• Government should develop an Information 

Technology (IT)/Data Base system though 

out the country; 

• Government should keep original document 

while land owner keeps the duplicate; 

• Government should employ people of good 

character at record offices (Lands, Mines & 

Energy/Archives & Ministry of Public Works, 

etc.). 

Question: What do you think about putting land 

aside for public use, e.g. Parks, cemeteries, playgrounds, 

etc.? 


• It is critical because land is insufficient due to 

improper planning by government. 

Question: What is your understanding of zoning 

laws and regulations? 


• Zoning laws tells you how, what and where 

to erect a structure (residence, business, factory, 

funeral homes, etc). For example, houses 

should be built with toilet to reduce pollution 

problems. 

Question: Environmental regulations? How 

should these laws and regulations be enforced? 


• Environment regulations: Ordinances defining 

where and what to build in a locality. 

TOPIC IV: Promoting investment in and development 

of the nation’s land resources. 

Question: What should be done with land that 

is not being utilized? What should be done with 

abandoned property and vacant lots? 


• Investigate who owns land and why not utilized; 

• Government should possess said land after 

twenty (20) years;

• Government should impose fine on said property; 

• Government should provide load through National 

Investment Commission (NIC) to land 

owner. 

Question: How much land do you think someone 

should have for a farm? A house? For a concession? 


Land for farm: 

• Depends on ability of individual 

• 50-250 acres 

• 

Land for house: 

• 1-2 lots 

• 1 acre 

• 

Land for concession: 

• Between 500-1,500 acres. 

Question: Who should manage the natural resources 

on the land? 


• Government along with citizens/locals. 

Question: The Liberian constitution says that 

only Liberian citizens can own land. What do 

you think about this? 


• It is a constitutional issue; 

• “Divided opinion” on this matter. (Yes and 

No group) 

“Yes’ Group 

• This will bring about development; 

• There should be limitation/restriction; 

• If married to Liberian citizen; 

“No” Group 

• Only allow to lease. 

RECOMMENDATIONS 

From the topics/issues discussed, the following 

recommendations were put forward for consider- 

ation: 

• Government in collaboration with the citizens 

should begin to verify and establish ownership 

of all private and public properties. 

• All lands should be acquired legally; surveyed, 

deeded and probated. 

• Government should establish “Fast Track 

Courts” throughout the country. Such courts 

should have no appeal; 

• Government should ensure proper city/town 

planning to prevent squatting; 

• That a way forward should be established to 

address squatter’s issue; 

• That land administration/natural resources 

should be done by government and locals; 

• That community should allocate land for public 

use. Establish reserve land for future development; 

• That government should enact laws requiring 

people with large track of lands to set aside 

some portion for public use/development; 

• That government enforces zoning laws; that 

alleys and roads are properly demarcated and 

opened up to avoid prevent squatting. 

• That government imposes tax on all abandoned 

and underdeveloped land; failure to 

pay tax on said land, government take possession 

of same. 

• That government carries out a national public 

awareness on the sale of land. 

• That government adopts a strong enforcement 

on waste disposal. 



Annex IV: Discussion Questions

LAND CONSULTATION DISCUSSION QUESTIONS 

(FIVE RURAL CONSULTATIONS) 

TOPIC I: Promoting equitable and productive access to the nation’s land, both 

public and private. 

1. How do you get land? 

2. Are able to get enough land for your 1)rice farms, 2) tree crops, 3) 

houses, and 4)businesses? 

3. How do you make sure that the land is put to good use? 

4. How do women, youth, and strangers get access to land? 

TOPIC II: Promoting security of tenure in land and the rule of law with respect to 

landholding and dealings in land. 

1. How can you be sure that the land is for you? 

2. How do you understand public land? Private land? Communal land? 

Swamp land? 

3. How do you settle land matters? Is it working? 

TOPIC III: Promoting effective land administration and management 

1. What is your understanding of a tribal land certificate land certificate? 

A land deed ? 

2. What role should local communities play in managing land, forests, and 

mining? 

3. What kind of land records should there be? Who should keep these 

records? 

TOPIC IV: Promoting investment in and development of the nation’s land 

resources 

1. What should be done with land that is not being utilized? 

2. How much land do you think someone should have for a farm? A house? 

For a concession? 

3. Who should manage the natural resources on the land? 

4. The Liberian Constitution says that only Liberian citizens can own land. 

What do you think about this? 


LAND CONSULTATION DISCUSSION QUESTIONS 

(Montserrado County) 


TOPIC I: Promoting equitable and productive access to the nation’s land, both 

public and private. 

1. How do you get land? 

2. Are you able to get enough land for your 1.)farms, 2) tree crops, 3) 

houses, and 4)businesses? 

3. How do you make sure that the land is put to good use? 

4. How do women, youth, and strangers get access to land? 

TOPIC II: Promoting security of tenure in land and the rule of law with respect to 

landholding and dealings in land. 

1. How can you be sure that the land is for you? 

2. How do you understand public land? Private land? Communal land? 

Swamp land? 

3. How do you settle land matters? Is it working? 

4. How can the laws pertaining to land and court decisions be enforced? 

TOPIC III: Promoting effective land administration and management 

1. What is your understanding of a land deed ? A lease? Squatter rights? 

2. What role should local communities play in managing land, forests, and 

mining? 

3. What kind of land records should there be? Who should keep these re- 

cords? 

4. What do you think about putting land aside for public use, e.g. parks, 

cemeteries, playgrounds, etc? 

5. What is your understanding of zoning laws & regulations? Environmen- 

tal regulations? How should these laws & regulations be enforced? 

TOPIC IV: Promoting investment in and development of the nation’s land 

resources 

1. What should be done with land that is not being utilized? What should 

be done with abandoned property and vacant lots? 

2. How much land do you think someone should have for a farm? A house? 

For a concession? 

3. Who should manage the natural resources on the land? 

4. The Liberian Constitution says that only Liberian citizens can own land. 

What do you think about this?

Annex V: Existing Land Disputes 


COUNTIES: 

• 

• 

• 

RIVER GEE COUNTY 

Nyenawliken District vs. Tienpo Statutory 

District 

Nyenawliken District vs. Gbeapo 

District Jargboken Clan vs. Nyenawliken 

• Nyenebo Chiefdom (River Gee County) vs. 

Karlueay District (Maryland County) 

• Nyenebo Chiefdom (River Gee County) vs. 

Dorrobo Chiefdom (Maryland County) 

• 

• 

• 

• 

• 

Nyenebo Chiefdom vs. Nyatujah Chiefdom 

(both of Webbo Statutory District) 

Deabo Chiefdom vs. Chalajah Chiefdom 

Webbo Chiefdom vs. Chalajah Chiefdom 

Tuobo District vs. Sarbo District 

Kiteabo of Sarbo District vs. Klibo of Tuobo 

District 

Signed: __________________ 

Jarpu B. Wesseh 

Land Commissioner 

Harper District : 

MARYLAND COUNTY 

• Bigtown of Nyemonweh Chiefdom vs. Rocktown 

of Klemonweh Chiefdom, Harper District. 

• 

Fishtown, Maryland County vs. Nemiah, 

Grand Kru County. 


• 

Little Wlebo vs. Rocktown, Harper District 

Pleebo District: 

• 

• 

• 

• 

Pedebo of Pleebo Sodoken District vs. Wholegary 

of Harper District 

Klebo Chiefdom of Pleebo Sodokken District 

vs. Rocktown, Harper District. 

Klebo Chiefdom Pleebo Sodoken District vs. 

Nemiah, Grand Kru County 

Gborlobo vs Gedetarbo, Pleebo District 

Karluway District : 

• 

• 

• 

• 

• 

• 

• 

• 

• 

• 

Gedebo, Karluway District #1 vs. Nyenebo, 

River Gee County 

Dorrobo, Karluway District #1 vs. Nyenebo, 

River Gee County 

Dorrobo vs. Barrobo District, Maryland 

County 

Doloken vs. Yederrobo 

Dedeabo vs. Yobloken 

Yederrobo vs. Nyan-ou Wessiken 

Pomuken vs Taryewayso 

Wlowien, Karluway District # 2 vs. Behwan 

of Grand Kru County 

Manolu vs. Nyenewrokken 

Wulukken vs. Nearrobo

• 

• 

• 

• 

• 

• 

• 

• 

• 

• 

• 

GRAND KRU COUNTY 

Wedabo vs. Gblebo resulted in arson 

Wedabo vs. Suehn, Barclayville – resulted to 

death in 1987, resurfaced in 2007 

Wedabo vs. Gbalakpo, Barclayville – now 

under investigation 

CROSS-COUNTY LAND DISPUTES 

Nemiah, Grand Kru County vs. Nyanbo, 

Maryland County 

Nero, Grand Kru County vs. King Williams 

Town, Sinoe County 

GRAND GEDEH COUNTY 

Anthony Wesseh vs. William Roberts 

Samuel Wilson vs. Lucy Garlo and Rebecca 

Gee 

Geweyan’s Family vs. Mr. Campbell 

Konobo vs. Putu 

Fula Nationals vs. Citizens 

Ploe vs. Marbo Clan 

Signed : ________________ 

Alfred Dorbah 

County Land Commissioner 

• 

GBARPOLU COUNTY 

Lobaizu Clan, Belleh District vs. Hembeh 

Clan, Kolahun District 

• Zoimai, Vajalla, Wolowumon, Belleh District, 

Gbarpolu County vs. Kongbah and Kolahun 

Districts in Lofa County 

• 

• 

• 

• 

• 

• 

• 

Bokomu District, Gbarpolu County vs. Loloi 

Clan, Bong County 

Bokomu District vs. Konign Chiefdom, Gbarpolu 

County 

Gbarma District, Gbarpolu vs. Sawmill, Bomi 

County 

Gbarma District, Gbarpolu vs. Tinduwah, 

Bomi County 

Gbarma District vs. Monlonkpainsu Bopolu 

District 

Gbarma District vs. Buyamah, Bopolu District 

Gbarma District vs. Tinduwah, Grand Cape 

Mount County 

Bopolu District Land Disputed Areas 

• 

• 

• 

• 

• 

• 

From Sawmill to Kenemo 

From Guyanta to Monlonkpansu 

Sawmill - Bopolu District 

Kenemo - Fowviah District 

Monlonkpansu - Guyanta 

GRAND CAPE MOUNT COUNTY 

Gola Konneh vs. Gbarpolu Tima Village Tin 

Dowah 

In-house Conflict: Gola Konneh and Porkpa 

Districts : 

• Camp Israel 

• Soso Camp 

• Fula Camp 

Dispute Areas/Boundaries : 

• Porkpa and Tewor Districts 

• Banakano 

• 

Yate Ville and Boima Towns 


• 

Cape Mount County vs. Gbarpolu County: 

Porkpah and Kongba Districts 

BOMI COUNTY 

External: 

Bomi and Montserrado: 

• At Royesville across to the side of Bomi County 

along the Po River in Dewein District 

Bomi and Bong Counties: 

• At Manzen in Suehn Mecca District, Bong 

County is claiming this Town (Manzen and 

other areas) which fall on the side of Bomi 

County. 

• At Kpo Hill in Suehn Mecca District, Gbarpolu 

County is claiming this portion of Bomi 

County. 

Bomi County and Gbarpolu County: 

• At Lower Togay Clan, Towns including 

Yomo, Karnley, Gbamamo, Zallah, Beadien 

No.1, Beajah, Tawafeyah, Deiwehi and other 

areas, are being taken over by Gbarpolu 

County; and which are Bomi County’s. 

• Also at Upper Togay Clan, areas and Towns 

such as Yarkemah, God’s Garden, Sumopham, 

Gbelesingbeh, Norway, Hill Village in Senjeh 

District have been taken over by Gbarpolu 

County. 

Bomi County and Cape Mount County: 

At Upper Togay Clan in Bomi County, specifically 

Islands such as Sample Department, Teendeh 

and Teenlalah Islands in and along the Lofa River 

are being claimed by the people of Grand Cape 

Mount County. 

Internal: 

• There is conflict over the area called Weyeahae. 

• There is also internal problem with Klay and 

Senjeh over Weafah, Fahsee and Jenneh-gane-kpo. 

Klay District: 

• There is a boundary dispute between Gonzepo, 


Kpo Clan and Gorbla Clan on one hand and 

Gorbla Clan and Dewein District, on the other. 

Klay and Suehn: 

• Mannah Clan in Klay District wants to claim: 

Yourmo Town, Denyourkdee, Faileyan, 

Momo Kanly, Mandingo Camp, Mamadu 

Camp and John Woto Village. 

Dewein District and Montserrado/Brewerville: 

• In Lower Zor Clan, Dewein, George Haddah 

is claiming areas surrounding Neezohn, Sami, 

Zohnlamie and Kpanii Town. 

Dewein District: 

• The Guunii Town and Diawea, adjacent to 

the District main Compound, people are encroaching 

on the district man Compound. 

LOFA COUNTY 

Kolahun and Foya Districts 

• Sosomoilalhun and Gelema Towns 

Voinjama District 

• Lawalazu and Simmeta Towns 

• Quadu-Bondi and Voinjama Districts 

• In Lawalazu House spot and Tree crops plantation 

• Samodu and Selega Towns (Quardu-Gboni 

and Voinjama Districts) 

• Sarmodu and Kpakumai Towns (Quardu 

Gbondi and Voinjama Districts) 

• Mamada Dukuly and Dayzabah Towns (Quardu 

Gboni and Voinjama 

• Amena Village and Jayalmai Towns (Quardu- 

Gboni and Voinjama Districts) 

• Bulor and Goyala Towns (Quardu-Gboni and 

Voinjama Districts) Salayea District 

• Gorlu and Telemu (Palama Clan) 

• Gbonyea and Telemu Towns (Palama and 

Gbanlin Clans) 

• Vavala and Palama Clans (Salayea District) 

• Between Larwou Roberts and Amstrong Moiwen 

(Salayea Town – Salayea District 

• Between Tokpa 762 and John Muedee (Gorlu 

Town Salayea District

Lofa County Land Disputes Summary 

• 

• 

• 

• 

Salayea and Gbarpolu Districts 

Salayea and Zorzor Districts 

Kolahun and Gbarpolu Districts 

Gbarpolu and Vahun Districts 

GRAND BASSA COUNTY 

• Geeblee Section vs. Marlor Clan – Alfred 

Juah Logan District # 2, Grand Bassa County. 

LAC and #4 District. 

• In Teemor, District #1, Grand Bassa County, 

7,500 acres is being claimed as personal property 

and not holding any deed, but is using a 

Tribal Certificate and that of the citizens of 

Teemor Districts #1. 

• Tribal boundary dispute between the elders of 

Trowhre and Donwein in Gorblee Administrative 

District, Wee Statutory District, Grand 

Bassa County. 

• The Tribal Boundary dispute between the Elders 

of Quiowen Section and that of Bain Section 

#2 “B”, Glarkon Statutory District, Grand 

Bassa County. 

• County Border dispute between Grand Bassa 

County, #3, “C” and Morweh Statutory District, 

River Cess County. 

• 

• 

• 

• 

• 

The LAC expansion project in District #4 between 

the citizens of #4 District and LAC. 

The demarcation between Rivercess and District 

#”C”, Grand Bassa County. 

The boundary dispute between Nimba County 

and District #3-c. 

Grand Bassa County vs. Rivercess over Sayon 

Town, Suahkon, Doundayn and Barh Town. 

Nimba County vs. Grand Bassa County at 

Yarwein-Mehnsonnoh 

• Conflict between Districts #1 and 2 exists 

where Whoo Town, District #2 is encroaching 

on farmland said to belong to Bai Section 

within District #1, Worr District. 

• Members of the Bassa Tribe residing in Nyuaniwein 

Clan are In serious land tussle with 

the Kpelle ethnic Group residing in the same 

clan. 

• Somah Gee Clan has land dispute issue with 

Marlor Clan in District #2 A, Grand Bassa 

County. 

• Geegbahn Administrative District in Grand 

Bassa County has Land dispute with another 

Section in Bong County around Whoogban in 

Geegbahn. 

• 

Quewin Section and Bian Section both of 

Geegbahn have issue on land boundary. 

• Swagbon-Ceeduah and Vah Whoolorn are on 

serious land Dispute over the last three years. 

The vicinity is within Grand Bassa County. 

• 

• 

MARGIBI COUNTY: 

Margibi vs. Grand Bassa County 

Between Margibi County and Bong County 

along the Salala District and Gibi District 

Marshall City – Margibi County 

• Mr. William D. Coleman 

• Elder Garwololdeh Mitchell 

• Mr. Edward 

• Gen. Richard Wright 

• Rev. George McGee 

• Philip Garpu 

Township of Charlesville 

• The land formerly owned and operated on 

by EXCHEM is now being re-claimed, sold 

by the people of Gayemen Town when the 

Government of Liberia has earlier paid the 

Gayemen Family 

• Longo Town land dispute 

• Ben Town Versus Kpara Town and others 

• Rocky and David Saiway land disputes 

• 

Lloydville Township vs. Kaibar Chiefdom 


RIVERCESS COUNTY 

1. Land dispute between Rivercess and Nimba 

County, the area of the Gbee Community. This 

land is located in Rivercess County but the 

Nimbaians are saying that this land is theirs. 

Gbee, however, is one of the Bassa Tribes in 

Rivercess County. 

2. The land of Juu and Chenyen Town located in 

Rivercess is located on the boundary of Jo-River 

District and Gbarsaw Chiefdom in Nyeenyen 

District. The Jo-River forms the boundary 

between Nyeenyen District and Jo-River District. 

Signed: _________________________________ 

Richmond A.G. Fleming 

Land Commissioner 

Jo-River District, Rivercess County 


Land Disputes in Central Rivercess District 

There is a land dispute between the Town of Gbadia 

Gbourohozohn Town; both towns are located 

in Zadia Clan, Kplor Chiefdom, Central Rivercess 

District. The people of Gbourohozohn stopped 

the people of Gbadia from making farms; while 

the people of Gbadia asked the people of Gbourohozohn 

to produce Land Deed for the land they 

are claiming. 

Signed:_________________________________ 

Doegar Gabriel 

Commissioner 

Central Rivercess District

Annex VI: Excerpts from Opening Statements 


Opening Statements 

Grand Bassa County Superintendent: 

“… there is no other good time than now for the 

people to come together to discuss whatever is affecting 

their lives. The guns are silent, but Liberia 

is threatened with another kind of war, the war of 

land-oriented conflicts…” 

Grand Kru County Superintendent: 

“The issue of land is very crucial to our national 

development and the consultations provide the opportunity 

for participants to speak out…” 

Maryland County Superintendent: 

“ If this country is to move to higher destiny, it 

is important that people learn to solve their land 

disputes in an amicable fashion rather than allow 

recourse to confrontation.” 

FDA Managing Director: 

“ I responded to the Governance Commission invitation 

with serious considerations. Firstly, to interact 

on the ground with people who are affected 

by the management of the forests in their communities…” 

Mayor of the City of Paynesville: 

“These consultations are necessary as same could 

serve as a worthwhile forum in finding solutions to 

the many disputes being caused by the sale of land 

by unscrupulous individuals in the country..“ 

Superintendent of Montserrado County: 

“Most land in Liberia is privately owned and is 

not utilized due to the landowners not having substantial 

income-base to develop the land. Despite 

their financial impotency, land owners are equally 

unwilling to sell same and when they are willing 

to sell, the cost is astronomically high thus driving 

away buyers. This contributes by and large, to 

the country’s lack of development. Also in time of 

rising cost of food, the promulgation of a National 

Agricultural Policy to take into consideration a 

land reform policy would support self-sufficiency 

in food production…” 


VICE PRESIDENT OF LIBERIA: 

MONROVIA, LIBERIA 7 MAY 2008 

“Land is one of the most important resources God 

has given man. In the Bible, man was asked to till 

the soil for a livelihood – soil is land. Most of the 

wars ever fought and that are still being fought occur 

over land issues. Land, therefore, means sustenance 

– it is the source of life. The Nile Delta 

became the cradle of civilization because of the 

fertile soil. 

We in Liberia have not considered land as an important 

resource because we have it in abundance. 

No matter how much land there may be, without 

proper administration and management policies, it 

will certainly be in short supply and a source of 

conflict. God is not creating new land anymore, as 

squatters may tend to believe. 

Our Government has been involved in a number 

of reform programs as an essential part of our exercise 

in the Poverty Reduction Strategy. Land is a 

very important component of this exercise. 

We are gathered here once again to deliberate on 

a very Contending issue that our government is 

grappling with. The issue of land tenure ship and 

land registration is an issue that we cannot brush 

under the carpet. 

As noted in an assessment report by the MLME 

“there is no national land policy and the national 

constitutional framework for land administration 

and that management in inappropriately designed, 

uncoordinated and ineffective. No agency of the 

Central Government seems to be responsible for 

or engaged in the management of public land, as 

such, the public domain is apportioned and allocated 

for various uses without land use 

regulations; government can hardly find land for 

public buildings and other essential public uses 

in urban areas, including specifically the capital, 

Monrovia.

There is also an acute shortage of trained land 

professionals; hence, practice of land surveying is 

now in the hands of lower level technicians and 

unscrupulous practitioners whose actions have 

filled court dockets with unresolved land dispute 

cases. There is no data and so effective and reliable 

land information system. As a result, security 

of tenure is virtually non-existent in Liberia: 

a situation which hampers development and fuel 

conflicts”. 

Dr. Amos C. Sawyer to Sinoe and Maryland 

Participants: 

“The enormity of problems and conflicts, including 

recent land conflicts, which have plagued the 

Liberian state, people have an entrenched belief 

when the country is in trouble that such trouble is 

because the President is bad. 

This is not always true, rather that bad and ambiguous 

laws are responsible. 

This is why it is necessary to revisit the laws of the 

country… to re-do those laws that are not good, 

while re-enforcing those good ones…” 

Tubmanburg City Mayor: 

“As the Mayor, I welcome the Vice President and 

the workshop participants. The land tenure policy 

in the country and hope that this policy framework 

being put into place would serve as an impetus in 

the resolution of multitude land disputes plaguing 

the entire country for example the land disputes 

between our county, Bomi, and the counties of 

Grand Cape Mount, and Montserrado.” 

Vice President’s Response in Tubmanburg: 

“I am delighted to have formed part of the Tubmanburg 

Land Consultation Meeting against 

the backdrop of the many land-related disputes 

throughout the country, coupled with the Government 

not being a panacea to all of the problems in 

the country. This Administration has decided to 

constitute a Land Commission, but that in order 

to do that there is a need to conduct consultative 

meetings throughout the country so as to listen to 

the citizenry on how the Government can formulate 

a National Land Tenure Policy. 

Liberia has land in abundance and that the Liberian 

Constitution provides that people own properties, 

including land, but people are not doing 

anything with the land which is synonymous to 

wealth. Hence, it is important to know how it is 

owned. 

To do this, there has to be a legal framework within 

which this Government can operate to put things 

in the right perspectives through legislations that 

will extend to the demarcation of boundaries for 

the newly created political sub-divisions in the 

country.” 


Annex VII: Consultation Participants 

62 Governance Commisssion - Liberia

<strong>Regional</strong> Breakdown of Participants 


Participants 

Harper Meeting 184 Total Participants 

Maryland 39 


River Gee 75 

Grand Kru 70 

Zwedru Meeting 78 Total Participants 

Sinoe 18 

Grand Gedeh 60 

Tubmanburg Meeting 132 Total Participants 

Grand Cape Moount 31 

Bomi 63 

Gbapolu 38 

Gbarnga Meeting 205 Total Participants 

Bong 102 

Nimba 70 

Lofa 33 

Buchanan Meeting 141 Total Participants 

Grand Bassa 38 

Rivercess 70 

Margibi 33 

Montserrado Meeting 250 Total Participants

Annex VIII: Land Issues Steering Committee Membership 


Land Issues Steering Committee Participants 

Ade Adewumi UNMIL/CAS 

Stephen Arkue Ministry of Lands Mines and Energy (LME) 

Chief Bondokai National Investment Commission (NIC) 

Othello Brandy Governance Commission/Ministry of Agriculture 

Alfred Brownell Green Advocates 

Jeanette Carter Governance Commission/University of Liberia 

Francis Colee Green Advocates 

Natty B. Davis LRDC Secretariat 

Peter Doekpan Probate Court 

Patrick Farnga Ministry of Agriculture 

Emmanuel Fiadzo World Bank 

Nessie Golakai UNDP 

John Gweama Forestry Development Authority (FDA) 

Carsten Hansen Norwegian Refugee Council (NRC) 

Deborah Hart U. S. Embassy 

Susan Heintz Norwegian Refugee Council 

Elizabeth Hoff Ministry of Information, Culture and Tourism (MICAT) 

Thomas Jallah Ministry of Internal Affairs (MIA) 

Jangba Jargba Ministry of Finance (MOF) 

Kuluboh Jensen Governance Commission (GC) 

Ambulai Johnson Ministry of Internal Affairs (MIA) 

Augustine Johnson Forestry Development Authority (FDA) 

Julu Johnson * Ministry of Lands, Mines and Energy (LME) 

E. C. B. Jones, Jr. Ministry of Lands, Mines and Energy (LME) 

Keith Jubah * RPAL 

J. Momolu Kaindii ECOWAS 

Shadrach Kanneh CNDRA 

Kristina Karjanlahti World Bank 

Ssamuel Koffa ARD 

Krubo Kollie Ministry of Foreign Affairs (MFA) 

Gertrude Korvayan Forestry Development Authority (FDA) 

James Logan Ministry of Agriculture (MOA) 

Moses Mapleh Ministry of Public Works (MPW) 

Moses Massah UNDP 

Rudolph Merab Liberian Timber Association (LTA) 

Letta Mosenene FFI 

Thomas Nah U. S. Embassy 

Doris Nimley Ministry of State 

Ayesha Noor UNMIL/CAS 

Alex Peal CI 

Ccecelia Rogers Ministry of State (MOS) 

Amos C. Sawyer Governance Commission 

Eugene Shannon Ministry of Lands, Mines and Energy (LME) 

Useff Sharnoh LISGIS 


Fole Sherman UN-Habitat 

Darlington Shiakeh Ministry of Commerce and Industry 

Silas Siakor SDI 

Robert Simpson LFI 

Rebecca Simpson World Bank 

Annie Wesley Swen Ministry of Justice (MOJ) 

Moses Tehswensr 

Ministry of Lands, Mines and Energy 

J. Chris Toe 

Ministry of Agriculture 

Nathaniel Vah 

Ministry of Gender and Development 

Anyaa Vohiri 

FFI 

Michael Weah 

Liberia Timber Association 

Angelique Weeks 

Ministry of Finance (MOF) 

John Malota White 

AU 

Dan Whyner 

USAID 

Henry Williams 

EPA 

Philomena Williams 

Ministry of Agriculture 

Walter Wisner 

Ministry of Internal Affairs (MIA) 

Moses Wogbeh 

Forestry Development Authority (FDA) 

John T. Woods 

Forestry Development Authority (FDA) 

Deceased * 

Land Issues Steering Committee Participants 



Annex IX: The Way Forward: 

LAND & PROPERTY RIGHTS ISSUES 

in The Republic of Liberia

Land and Property Rights Issue 

Issues pertaining to land and property rights are 

being highlighted by individuals and groups as 

critical to Liberia’s stability, recovery, growth 

and development. Land tenure issues are coming 

under public scrutiny and political debates are 

developing in several sectors, including agriculture, 

forestry, mining, and local government. Court 

dockets are crowded with land disputes. People are 

openly stating that “if we fight again, we will fight 

about land.” Potential investors are indicating that 

the question of security of tenure is a major factor 

influencing their investment decisions. 

Liberia is now focused on reconstruction and development 

with goals articulated in the iPRS of 

poverty reduction, economic growth and development. 

Equity and participation are key components 

in achieving these goals. Security of land 

tenure is core to economic growth and development. 

President Ellen Johnson Sirleaf, recognizing the 

volatility of land issues, has prioritized land reform 

in her administration, pledging that a land 

commission will be established to deal with the 

complexity of issues. In preparation for the establishment 

of a commission and in order to establish 

the framework within which land and property 

rights issues can be considered in a national 

dialogue, this paper proposes an approach to be 

implemented and coordinated by the GRC, in line 

with its mandate, in collaboration with many and 

diverse stakeholders. 

This paper, in identifying the major land and property 

issues and in proposing a framework for considering 

these issues, is not intended to take positions 

or to make recommendations. Rather, it is 

expected that the issues identified will be further 

discussed, expanded, and documented through a 

range of consultations and working sessions, culminating 

in a national conference and the establishment 

of a land commission. 

BACKGROUND 

• 

Access to land is a concern to all, whether 

• 

• 

• 

• 

seeking a lot to build a house, obtaining land 

for smallholder or commercial farming, or engaging 

in the extraction of natural resources 

such as timber or minerals. 

Competition and conflict over access to and 

control of land has been an aspect of Liberia’s 

history from its earliest settlement, predating 

the arrival of the settlers from the Americas. 

With their arrival in the nineteenth century, 

a new dimension was added when a system 

of land tenure based upon American statutory 

law was introduced into the territory that is 

now Liberia. 

Following the arrival of the settlers, a dual 

system of land tenure was established in 

which statutory law prevailed in those areas 

that were controlled by the settlers and, subsequently, 

the Liberian state. Customary law, 

in which access to land is based on usufruct 

rights, prevailed in those areas administered 

by the Liberian state as provinces and inhabited 

by the indigenous peoples of Liberia. When 

these provinces attained the status of counties 

in the mid-twentieth century, the customary 

legal system, supported by the state, continued 

to function. That situation obtains today 

in many parts of Liberia 

Both systems are dynamic as land use pat- 

terns have changed. Small holder agricultural 

use and political control of land were the focus 

until the 1920s when Firestone was established 

as the first rubber concession. The 

statutory system provided the legal basis for 

the development of the rubber, timber, and 

mineral concessions that were often foreigncontrolled 

and for private commercial farming. 

Increasing acreage in rural Liberia came 

under the control of these concessions or was 

transferred from the customary system to the 

statutory by the acquisition of land deeds by 

Liberians. Unchecked land appropriation and 

land speculation became sources of uncertainty 

and conflict. 

Rights of access to and use of natural resourc- 

es, including land, minerals, forests, and water, 

are shrouded in a state of tenure insecurity, 

vague and ambiguous legislation, conflicting 


• 

• 

• 

and competing tenure arrangements and constant 

and persistent clashes of customary and 

statutory rights over the management, authority 

and control of these resources. 

By the outbreak of the civil conflict in 1990, 

the legal mechanisms for acquiring land deeds, 

especially in areas under customary tenure, 

were a contentious issue. Currently, usage 

of land continues to diversify, creating new 

challenges for both the statutory and customary 

systems. Diversification is most evident 

in the peri-urban and rural areas, especially 

as commercial activities are reestablished or 

expand. 

The civil conflict exacerbated an already com- 

plicated and volatile situation. Access to land 

was, in fact, one of the root causes of the civil 

conflict (Richards et al 2004). The educated 

“country” people had become aware of their 

exclusion and marginalization in the interface 

between the customary and statutory systems. 

Generational conflict was central as young 

people saw themselves excluded and marginalized 

as the elders controlled access to land. 

The ethnic dimension was extended from 

tension between the settlers and indigenous 

ethnic groups to tensions between Mandingo 

and Mano/Gio (in Nimba) or Loma (in Lofa). 

These latter tensions are the focus as refugees 

return to Liberia. In Monrovia and other areas, 

land disputes focus on land that was “abandoned” 

as owners fled the country, allowing 

others to occupy the land. The original owners 

are now returning to claim their properties. 

In the fluid, indeed chaotic, situation that 

existed during the conflict and its aftermath, 

it has become common practice for land to be 

sold and resold with no or little reference to 

original owners or registration procedures. 

The administrative and judicial systems re- 

quired to handle land matters are underdeveloped, 

nonfunctional, or overstretched. Archival 

records were, in some cases, destroyed 

or pilfered during the war. There is a lack of 

trained personnel to manage the system and to 

adjudicate disputes. Unauthorized surveyors 

are taking advantage of the fluid situation. The 

dockets of the statutory courts are crowded 

with land disputes that include approximately 


• 

• 

• 

90% of the civil cases. Cases that should be 

solely civil are appearing in criminal courts. 

There is little information on the current adjudication 

of land disputes by elders, chiefs and 

commissioners within the customary system. 

Rural land disputes are being adjudicated by 

legislative representatives, especially when 

the disputes are at the clan or district level. 

Land and property disputes have been identified 

in 10 counties as being one of the top four 

protection issues in communities (Norwegian 

Refugee Council 2006). In four counties, 

Lofa, Grand Gedeh, Sinoe, and Maryland, 

these disputes were the most common (see 

also Security Sector Assessment, GRC). 

In the forestry sector, a rigorous review of 

commercial forestry concessions led to the 

cancellation of all existing concessions in 

early 2006. The timber sanctions imposed by 

the U.N. Security Council were lifted after 

the new forestry law was passed by the Legislature 

and signed into law by the President 

in October 2006. This law allows logging to 

take place on private lands without following 

the competitive bidding process. The legal 

distinction between government land, public 

land, and aborigine or tribal land deeds lacks 

clarity and is being challenged. Former logging 

companies are pushing for rapid and potentially 

unlawful privatization of forest land 

areas. In early 2007, the FDA requested that 

all forest land deed holders present documentation 

for verification. Over 8 million acres of 

deeds were presented, while there are only 12 

million acres of forest land identified for commercial 

logging. Conservation and community 

rights and utilization have joined commercial 

utilization as the foci of the forestry sector. 

In the mining sector, mineral concessions are 

likely to hold overlapping claims, especially 

for gold and diamonds. The banks of the entire 

stretch of the Lofa River have been allocated 

for mining prospecting. The area allocated 

to the Mittal Steel concession overlaps 

with parts of the East Nimba Nature Reserve. 

Currently, there is extensive exploration by 

numerous firms, often foreign, of potential 

mineral deposits. 

In agriculture, the interface between commer-

• 

cial holdings and smallholder farmers is the 

focus of increasing conflict. The issues of access 

to land, security of tenure, and utilization 

of land cross-cut the sectors. Local communities 

are contesting the allocation of land to 

concessions such as LAC and Sinoe Rubber 

Corporation. Disputes over privately-held 

rubber farms are common, especially when 

original owners are absent. Among rural 

communities, the most common disputes are 

probably those that center on the increasing 

acreage devoted to tree crops (cocoa, coffee, 

oil palms) and to develop lowland swamps. 

Population growth and migration may be creating 

a category of people who can no longer 

obtain land through customary rights and who 

lack the resources to acquire deeded land. 

In local government, administrative and ju- 

risdictional issues are core. The delineation 

of administrative units in the counties can 

be described as chaotic. During the years of 

conflict, multiple new administrative units, 

e.g. cities and statutory districts, with poorly 

defined boundaries were created by the legislative 

bodies. Today there is often overlap 

and jurisdictional ambiguity between the 

state-supported customary units of clan and 

paramount chieftaincies with the townships 

and cities subject to the statutory system. In 

communities that were destroyed during the 

conflict, disputes over house plots are frequent. 

Boundary disputes between rural communities 

are being brought to the Ministry of 

Internal Affairs almost daily. Questions are 

arising regarding the authority of city officials 

in land matters, e.g. do they have the authority 

to sell land or to grant squatters’ rights? In 

communities which rely upon usufruct rights, 

people (especially youth) are questioning the 

process by which chiefs were able to authorize 

the deeding of the community’s land, either to 

“strangers” or local elites. Some are suggesting 

that this system is in fact creating a feudal 

structure in rural Liberia in which the deeded 

owner can exclude the local population from 

any use of the land. 

• Finally, Constitutional provisions restricting 

Liberian citizenship and ownership of land are 

of concern to investors, especially foreign. 

THE CHALLENGES 

The timing of work on land reform needs to be 

coordinated with other aspects of national recovery, 

including the phased withdrawal of UNMIL. 

It is important for the public to know that work is 

being undertaken and that it will take some time 

for results, solutions, and/or reforms to emerge. 

National and regional workshops can serve the 

function of making the public aware that their 

concerns are taken seriously and that serious, balanced 

work is underway. 

• 

• 

• 

• 

• 

The sequencing of the work is critical to ensure 

that expectations of reform do not outpace the 

required groundwork and that situations are 

not created with the potential for conflict. 

Establishing priorities in research, especially 

identifying those issues that need clarification 

and analysis to formulate solutions. Critical 

is research on customary tenure and how it is 

being implemented and modified in the current 

situation. 

Proposing interim procedures to address the 

most urgent issues. Implementation of interim 

procedures is critical as it is unrealistic to 

“freeze” land and property transactions. 

Identifying issues that may require legal rul- 

ings, e.g. the interpretation of the “adverse 

possession” law, status of aboriginal deeds, 

tribal reserves, etc. Conducting the necessary 

legal and community research for sound judicial 

decisions. 

Underpinning the discussions on land and 

property rights, there is a need to develop a 

shared national vision of what land and property 

rights should be in Liberia in the future. 

THE CONSULTATIVE APPROACH 

Considering the background and challenges that 

have been identified, a methodology is proposed to 

move the process forward. In developing this approach, 

the experience of other African countries 

is considered. Particularly instructive have been 

the numerous publications by IFPRI and CAPRi. 

The Issues Paper prepared for the <strong>Consultative</strong> 

Workshop on Land Policy in Africa, March 2006 


(UNECA, available on web), was most helpful in 

placing Liberia’s land issues within the broader 

African context. 

Given the complexity of issues involved, a multisectoral 

and multi-disciplinary approach is mandatory. 

The task must be coordinated under a single governmental 

umbrella, the GRC initially, and a Land 

Commission, upon its establishment. 

Five major categories of stakeholders have been 

identified: 1) Government and autonomous agencies, 

2) Civil Society, 3) Private sector, 4) Communities, 

and 5) International partners (including 

the donor community). 

Key government ministries and agencies must 

be involved from the beginning. These include 

Lands, Mines & Energy (MLME), Agriculture 

(MoA), Internal Affairs (MIA), Justice (MoJ), and 

the Forestry Development Authority (FDA). 

As legislative action will be required at some 

point, the National Legislature must be involved. 

The process must be participatory. All categories 

of stakeholders must be presented with the opportunity 

to lodge their concerns and to provide 

information. The process must be educative and 

iterative. The process should provide for continual 

sharing of information among all stakeholders 

who can then participate in the decisions of “nextsteps.” 

The process must involve capacity-building for 

key institutions charged with the administration 

and adjudication of land matters. This will involve 

short-term training for ministry and agency staffs 

and for longer-term training through the universities 

and graduate training. Civil society organizations 

must also be strengthened. 

Research required for policy formulation and legislative 

reform must be non-partisan, neutral, and 

academically sound. The research must be multidisciplinary. 

The research capacity of local institutions 

must be built. 

A national and several regional stakeholder workshops 

are proposed to provide the platform for 

participation and to educate people on the issues. 

In support of these workshops and the longer-term 

effort, the preparation of several issues papers 

will be required. The topics and scope of work 

for these issue papers will be identified in the near 

future. 


Funding for the process will be sought from several 

donors, with each taking the lead for those aspects 

of the process of most interest. Donor contributions 

need to be coordinated to ensure that there 

is no duplication or conflict in programs. 

The effort will also draw upon the expertise and 

experience of international research institutions 

and agencies (e.g. IFPRI, CAPRi, UNECA, ILC, 

RRI, FAO, etc.) in conducting the work. 

Based upon the experience of other countries, the 

process will require several years and long-term 

support from the government and donors. 

TRAINING AND RESEARCH 

Land and property rights will continue to be issues 

in Liberia, requiring several institutions and systems 

for their management. Apart from immediate 

needs, there is the need to build local capacity and 

institutions. The University of Liberia and other 

universities will need to train people and to provide 

them with practical experience. Immediately, 

it is essential that research be coordinated and that 

there be quality control. The GRC suggests that 

the research be coordinated under the direction 

of the University of Liberia, through the Institute 

of Research. This will ensure that the research 

and training are conducted in a coordinated, academically 

rigorous, and non-partisan framework. 

In collaboration with the GRC, the Research Institute 

(drawing upon the relevant colleges of the 

University) will help coordinate the work of other 

institutions and organizations and will help ensure 

appropriate donor funding for the various research 

and training activities. 

TOWARD A LAND COMMISSION 

There are urgent issues that may require shortterm 

actions or remedies. These actions should 

be constructed in such a manner that they are not 

incompatible with longer-term actions. Among 

these are: 

• Proliferating land disputes in rural areas that 

focus on boundary disputes, especially among 

clans, district, townships, and cities. These 

are currently being looked into by the Minis-

• 

• 

• 

• 

• 

• 

• 

try of Internal Affairs in consultation with local 

government officials and local legislative 

representatives. 

Proliferating land disputes, especially in ur- 

ban and peri-urban areas. Attempts to survey 

or re-survey land are increasingly being resisted 

by local residents, sometimes resulting 

in violence. 

The backlog of land dispute cases in the court 

system. One option could be the establishment 

of a special court or mediation unit to 

deal with these cases. The unit could provide 

clarity until new legislation and clear tenure 

management strategies are put in place. 

The time frame for the process is evolving and 

is, in part, dependent upon the availability of 

funding. The short-term schedule should include: 

The establishment of the steering committee 

and the working groups that will report to the 

steering committee. 

The working groups will identify the key is- 

sues and prepare preliminary issues papers in 

preparation for regional and national stakeholders 

workshops. 

<strong>Regional</strong> and national stakeholders work- 

shops will begin in July 2007. There should 

be a minimum of 3 regional workshops, and 

more if time and funds permit. The national 

workshop will be from 2 – 3 days and will 

include participation by international experts 

and visitors. 

By July 26th, Liberian Independence Day, the 

work should be sufficiently advanced to enable 

the President to make substantive recommendations 

regarding the way forward and the 

formation of a Land Reform Commission. 

In order to accomplish these tasks, the following 

structure is being established: 

1. Steering Committee: Until the Commission is 

established, the current steering group should 

guide the work, coordinating and facilitating 

activities required to establish a Land Commission. 

The Steering Committee will solicit information 

and perspectives from all stakeholders. 

2. Sub-Committees or working groups: The 

Commission should identify working sub-com- 

mittees that are empowered and supported to 

complete specific tasks that are required by the 

Steering Group. These working groups will 

be formed from the membership of the Steering 

Group but will be able to engage technical 

advice from specialists or experts to develop 

issues papers, identify research activities, and 

to make recommendations on issues to be addressed 

by the Commission. These groups may 

continue under the Commission. 

3. Identification of working groups: Groups 

already identified include: a) Legal, including 

customary and statutory, b) natural resources, 

including land, mineral, and forest, c) local 

governance, d) historical context, e) technical, 

including GIS, f) investment, and g) public 

awareness and education. Until the Land Commission 

is organized, the GRC will serve as a 

secretariat and, in cooperation with the Institute 

of Research of the University of Liberia, 

coordinate the research activities of the working 

groups. 

4. Activities coordination: The GRC will coor- 

dinate the activities of the Steering Group and 

the working sub-groups to ensure that the work 

is comprehensive, complementary, and of high 

quality. 

MARCH 30, 2007 



Copyright (C) 2009 Governance Commission 

This report has been prepared by the Governance Commission with funding from the Norwegian Refugee 

Council (NRC). Quotation and or reproduction are welcomend, provided appropriate acknowledgement is 

given. 

Governance Commission, S. D. Cooper Road, Monrovia, Liberia 

Norwegian Refugee Council, Mamba Point, Monrovia, Liberia 

Editing and Design: 

Arthur R. Tucker, Bantie Brownell-Forschner 

Graphic Design & Layout: 

Thomas S. Blidi 

Photographs: 

Patrick Farnga, Dr. Jeanette Carter, 

Bantie Brownell-Forschner, Dr. Ophelia Weeks 

Monrovia, Liberia 2010 


<strong>Regional</strong> <strong>Consultative</strong> <strong>Meetings</strong> on Land and Land Reform Policy <strong>Report</strong> 

Republic of Liberia 

May 2008

Report: Regional Consultative Meetings on Land - Land Commission

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