Implementation of a Multipurpose Cadastre in Nigeria: A Case Study of Achara Layout, Enugu State

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1 Implementation of a Multipurpose Cadastre in Nigeria: A Case Study of Achara Layout, Enugu State Nnam V. C 1., Okeke F. I 2 & Anejionu O. C. D 3 Department of Surveying and Geoinformatics, Enugu State University of Science and Technology Enugu State Nigeria. Department of Geoinformatics and Surveying, University of Nigeria Enugu Campus Enugu State Nigeria. victor.nnam@gmail.com, francis.okeke@unn.edu.ng, obinna.anejionu@unn.edu.ng Abstract Multipurpose cadastre is a framework that supports continuous, readily available, and comprehensive land-related information at the parcel level. The Enugu State Ministry of Lands, Survey and Town Planning, charged with the allocation and management of lands in the state, is yet to fully incorporate digital method of data management, and is currently encumbered with analogue files and records, such as base maps, topographic sheets, cadastral plans, control network coordinate registers, and charts, which make data storage, update, retrieval, and processing extremely difficult tasks for the ministry, coupled with high possibility of data loss (analogue files such as plans, and maps wear out with time). In this paper, a multipurpose cadastre for a section of the Enugu metropolis was designed and implemented to demonstrate the usefulness of implementing such a scheme on a state-wide scale for effective administration and management of land resources in the state. Through the implementation of this prototype multipurpose cadastre, it is believed that the various government agencies involved with in land administration and management will see the need to urgently implement a state-wide multipurpose cadastre for the efficient management of land resources in the state. Keywords: Multipurpose Cadastre, Land Information System, ArcGIS Customization Background Multipurpose cadastre is a framework that supports continuous, readily available, and comprehensive land-related information at the parcel level (Panel on a Multipurpose Cadastre, 1980). It is imperative that land should be properly managed because of the vital role it plays in human affairs vis-à-vis the source of most material wealth. To effectively manage land and

2 its resources, comprehensive information about land should be recorded in an organised and robust manner, to enable quick and flexible access to land-related. Land information is a prime requisite for making decisions related to land investments, development, and management (Kaufmann and Steudler, 1998). The effectiveness of the decision making process concerning land matters relies heavily on the quantity and quality of available land information. Geographic Information System offers a cost effective means of supporting the decision making process concerning land matters, as it provides a robust platform for a wide range of analyses and manipulation to be carried out on spatial data such as land-related information in a number of ways, so as to solve geographically related problems. Land Information System (LIS), a subset of GIS that focuses on the integration and analysis of land-related information, usually stores information such as a spatial database of land parcel information, control/utility networks, parcel ownership information, municipal boundaries, plot number, area, block number, and other cadastral information for a given locality. It may also store actual deed, certificates of occupancy, parcel values, and other documents/records linked to the spatial data. LIS is a tool for legal, administrative and economic decision-making and an aid for planning and development, which consists on one hand, of a database containing spatially referenced land-related data for a defined area and on the other, procedures and techniques for the systematic collection, updating, processing, and distribution of the data (Nichols, 1994). The multipurpose cadastre is a refinement of the LIS as it incorporates data and information from a wide range of sectors and services that rely on land and land records. It is a larger, community-oriented Land Information System that is designed to serve the public sector, private organisations, and individual citizens. The multipurpose cadastre contains a variety of information categorised into four major groups: environmental or natural information (soil, geology, wildlife, and other natural phenomena that have unique physical, biological or chemical characteristics), infrastructure/utility information (engineering and utility structures information such as transportation and pipelines and other man-made improvements to land), legal/fiscal, cadastral information (land tenure and land use, and socioeconomic information (population distribution, health, welfare and marketing) (Palmer, 1984; Dale, McLaughlin, 1988). The basic components of a multipurpose are:

3 i. A reference frame consisting of a geodetic network, ii. A series of current, accurate large-scale maps, iii. A cadastral overlay delineating all cadastral parcels, iv. A unique identifying number assigned to each parcel, and v. A series of land data files. Implementation of a multipurpose cadastre in Nigeria will be immensely beneficial at federal, state, and local government levels, as well as in the private sector, and academics and research institutions. The multipurpose cadastre could be used at the federal level to harmonise all federal land related and infrastructural projects; serve as the central database for national projects such as population census, election, and irrigation schemes; and provide useful information to relevant agencies for national defence and policing. At the state level, the multipurpose cadastre can provide some useful information such as: street guide information for tourism and hospitality, information for police and military patrol teams, utility information, transport and road network analysis information, and information for urban and regional planning. Local governments Land Allocation Advisory Committees could also use multipurpose cadastre for effective decision making. Financial institutions could improve their services and marketing strategies if they could easily access street guide information of their area of interests. Telecommunication organisations could widen their coverage and identify suitable locations for the establishment of new communication masts if they could access a multipurpose cadastre. Non-governmental organisations and charity groups could improve the distribution of humanitarian services to sub-urban areas with the aid of a multipurpose cadastre. The general public is also not left out, as the multipurpose cadastre will allow members of the public better access and efficient delivery of geoinformation. The multipurpose cadastre would provide individual end-users with faster access to records such as: planning control, title deeds, and other cadastral information. The multipurpose cadastre will reduce litigations in court, as it would be used to clarify minor boundary disputes through simultaneous access to planning, cadastral, title and customary land title databases; as well as speeding up administrative actions. Due to increasing population growth in Enugu metropolis and environs, arising from urbanisation and industrialisation, there is currently high level of pressure on land resources in the city, which urgently calls for the effective management of the resources. The Enugu State Ministry of Lands, Survey and Town Planning, charged with the allocation and

4 management of lands in the state, is yet to fully incorporate digital method of data management. The ministry is currently encumbered with analogue files and records, such as base maps, topographic sheets, cadastral plans, control network coordinate registers, and charts. These make data storage, update, retrieval, and processing extremely difficult task for the ministry. There is also the possibility of data loss, as analogue files such as plans and maps wear out with time. Generally, the ministry is currently faced with the following issues arising from the use of the analogue method of land record keeping: unattended applications, multiple allocations of parcels, illegal allocations from "Parallel Offices", unclear situations in land allocation, mismatches in land use, forgeries of land documents, encroachments and overlapping, misplacement of services, utilities, rights of way, and property boundaries; misuse of public properties, and inefficient revenue generation and collection. Furthermore, most of the spatial data currently held at the ministry do not have a common reference coordinate system (some are still referenced to a local origin TB 20). There is also a problem arising from duplication of data due to the current practice of the Town Planning unit to arbitrarily issue layout numbers. These fundamental issues hamper the decision making process in land related matters in the state. The project was aimed at creating a multipurpose cadastre of the metropolis, to demonstrate how its adoption would facilitate land administration and management in the state, using Achara Layout, a prominent part of the metropolis as prototype case study. The multipurpose cadastre was developed to encompass the following primary components: a reference frame consisting of control networks and coordinate systems; a series of current and accurate layers of large-scale maps covering the area; cadastral map delineating all parcels with accompanying cadastral information such as parcel boundaries and areas, bearings and distances, unique identification number assigned to each parcel; records of all deeds or real estate transactions; fiscal cadastre (ownership, location, land use, improvements, and assessed value); as well as secondary components such as, street information, population information, satellite imagery of the area, topographic information, building/ development information, utilities such as electricity information, water pipeline, and drainage information; road and railway information. Study Area Achara Layout (see Figure1) is situated within the heart of Enugu metropolis, in Enugu South Local Government Area of the State. It lies within longitudes E and E, and

5 latitudes N and N, and encompasses major high density residential and commercial areas in the urban part of Enugu South Local Government, with an area of about 1,081460m 2 and a population of up to 20,000 residents. Figure 1: Map of Achara Layout Methodology Data The data used in this paper include a hardcopy cadastral plan of Achara Layout, obtained from the Enugu State Ministry of Lands, Survey and Town Planning, a Quickbird satellite image covering Enugu metropolis obtained from the Geoinformatics and Surveying Department, University of Nigeria Enugu Campus, one arc second (approximately 30 meter) Shuttle Radar Topography Mission data, hardcopy water pipeline map of Enugu state, acquired from Enugu State Water Corporation, and coordinates of control points used in georeferencing, acquired from field survey. Methods User Need Analysis

6 A user need assessment survey and analysis (see Table 1) was carried out to understand the necessary criteria that would satisfy the vital requirements of potential users of the multipurpose cadastre. The survey was carried out through oral interviews of potential users. Table 1: User Need Analysis Key: # = use data collected by others; & = collect and use data Data Acquisition and Preparation Field survey was carried out to determine the coordinates of ground control points to be used in the georeferencing of the scanned images. Fifteen controls points were carefully selected to cover the geometry of the study area (Figure 2) and differential GPS technique used to acquire the coordinates (in WGS 1984, Minna-UTM, Zone 32) of the points.

7 Figure 2: Reconnaissance Diagram for Ground Control Points Acquisition The cadastral plan and water pipeline map were scanned, georeferenced to Minna UTM, Zone 32N, and digitised into appropriate vector files using appropriate ArcGIS tools. The georeferenced cadastral plan was compared with the satellite image (spatially rectified), as a check. The satellite imagery covering Achara layout was used to extract streets, rail network, and buildings details. Elevation information was extracted from the SRTM data and was used to generate the contour layer of the MPC using ArcGIS 3D Analyst tools. Due to the difficulty encountered while trying to obtain certain attribute information of the parcels from the register, such as allottee name, parcel value, demographic attributes etc, as a result of high level bureaucracy in the ministries, appropriate hypothetical values were assumed for the attributes in question. Database design

8 A spatial database for all the layers/entities (parcel, layout block, building, roads and streets, rail lines, drainage, allottee details etc) was designed and developed. Care was taken to identify relevant attribute information for the entities (see Table 2), and appropriate relationships between the layers were identified and created. Table 2: Spatial Database Entities and Attributes Table Name Attributes Description Parcel Parcel_ID Block_ID Aloctee_ID Centroid_Easting Centroid_Northing Area Perimeter Street_ID Purpose_Clause Date_1 st _Allocation Type_Holding Land_Rent2011 Parcel_History The parcel unique identifier. The block unique identifier. Name of land owner. Eastings of parcel centre. Northings of parcel centre. Parcel area in meters. Parcel perimeter in meters. Parcel declared value as at ID of the parcel street location. Purpose of the layout. Date of first allocation. Type of holding by Aloctee. Condition of payment for 2011 History of parcel ownership Layout Block Block_ID Area Perimeter Centroid_Easting Centroid_Norting Num_Parcel The block unique identifier. Block area in meters. Block perimeter in meters. Eastings of block centre. Northings of block centre Number of parcels in the block. Building Building_ID Parcel_ID Street_ID Building_Use Building _Population Building _Area Num_floors Unique identifier for a building. The parcel location unique identifier. ID of the building street location. The current use of building. Population of building. Area of building in square meters Number of Storeys in the building Contour line Contour_ID Contour_Height Contour unique identifier. Contour line height. Streets Street_ID Street_Location Traffic_Level Street_Condition Street unique identifier. Location of street. Vehicle traffic level of street.

9 Water_ Pipeline Boundary_Point Boundary_Line Water_Course Railways Control Points Electricity Drainages Alottee Info Pipe_ID Pipe_Lenght Pipe_Diameter Point_ID, Point_Easting Point_Northing Line_ID, Line_Bearing Line_Distance Stream_ID Direction_Flow Rail_ID Route_ID Control_ID Control_Order, Easting, Northing, Height Line_ID, Tension, Nature_Installation Drain_ID, Nature_Drain Aloctee_ID Date_Birth State_Origin Passport Occupation Next_kin Nationality Road pavement surface condition. Unique identifier of the pipeline. Length of the pipeline. Diameter of the pipeline. Unique identifier of boundary point. Easting coordinate of point. Northing coordinate of point. Unique identifier for boundary line. Azimuth of boundary line. Length of boundary line. Name of water course. Direction of flow of water course. Unique Identifier for rail line. Unique identifier for rail line route Unique identifier for Control. Order of control point. Eastings coordinate of control point. Nothings coordinate of control point. Height of control point. Electric line unique identifier. Tension level of electric line. Nature of installation of line. Drainage identifier. Nature of construction of drainage Name of parcel Owner. Date of birth of parcel owner. State of origin of parcel owner. Passport photograph of owner. What the owner does for a living. Next of kin of parcel owner Nationality of parcel owner. Customisation The ArcGIS interface was customised to meet the usual requirements of the ministry, especially for easy access to data vis-à-vis parcel information, and for quick update of records, using Arc-Objects VBA (figure 3). The interface was customised in such a way that

10 selected parcels could be zoomed into, and parcel information obtained through Parcel ID, Allotte ID, as well as first name and surname of allottee (figures 3 and 4). Figure 3: The parcel locator gateway interface. Tools were added to the interface that could be used to update parcel records (accept land rent payment, and update it in the table), display the records, and print receipts for land rents received, as well as print out relevant parcel or allottee information (see Figure 4). Figure 4: The Customised Tools. Results and discussion A prototype multipurpose cadastre was successfully developed, comprising essential spatial and attribute information of land parcels in the area of study, such as parcel and other cadastral information, information on buildings, utilities, topography, road and street network, railway, electricity, water pipeline, drainage network, and health care services (figure 5). It demonstrated capability of carrying out a wide range of spatial analyses that may

11 be required in land administration. The multipurpose cadastre was robust enough to produce accurate results from various queries (spatial and aspatial) it was subjected to as shown in figure 6 to 8igure 8. Figure 5: The Developed Multipurpose Cadastre. Some of the queries that were carried out on the prototype multipurpose cadastre are summarised below. Query 1: Locating a parcel from the database using either Parcel_ID, Allotte_ID, or first and surname of owner; zooming to the selected parcel and displaying its attributes.

12 Figure 6: Sample result of Query 1, with selected parcel highlighted in green. Query 2: Locating and selecting buildings meeting particular criteria. Buildings at a distance of 10m from the centre of Ozalla Street were identified and highlighted (figure 7). This sort of query is expected to be very useful to in the Town Planning Department of the Ministry of Lands in identifying illegally positioned structures. Query 3: Identifying undeveloped parcels. This sample query was carried out to identify parcels that are yet to be developed. This is one of the common information needed for the effective management of land resources and policy making. Figure 7: Sample result of Query 2 Figure 8: Sample result of Query 3

13 Conclusion The project was able to achieve its primary goal, which was the design and implementation of a prototype multipurpose cadastre of a section of Enugu metropolis to demonstrate its usefulness in the efficient administration and management of land resources. The developed multipurpose cadastre comprises the following: parcel and other cadastral information, information on buildings, utilities, topography, road and street network, railway, electricity, water pipeline, drainage network, and health care services (see figure 5). It is strongly believed that the adoption and implementation of a state-wide multipurpose cadastre based on the result of this prototype study will greatly enhance the activities of various ministries in the state that primarily deal with land resources and other environmental information. Recommendations This pilot study has highlighted the benefits of implementing a multipurpose cadastre in any local government, state, or country, for efficient land administration and management. Based on the findings from this study the following recommendations are advocated. i. In view of achieving the specifics of proposed land reform in Nigeria, implementation of a nationwide multipurpose cadastre is strongly recommended. This should be done to provide a national clearing house for all cadastral and land related information and activities going on in the constituent states. This proposed nationwide multipurpose cadastre can be extended by integrating all the governmental and non-governmental institutions that acquire or use acquired cadastral, utility, and land related information in order to increase land information availability and accessibility. ii. iii. There is a need for the reconciliation of the local coordinate systems in all the states with the National grid. This is to provide a unified coordinate system for adjoining cadastral layout maps in order to solve the problem of boundary overlaps which will arise as a serious challenge to the real implementation multipurpose cadastre. Furthermore, there is an urgent need for the training of surveyors, on the operation, use and management of digital systems; as well in spatial analysis and remote sensing and image processing techniques, as skilled professionals are in short supplies at the federal, state, and local Government levels. This is to enable surveyors, participate actively in every aspect of the land reform program, which would entail constant

14 updating of large volume of cadastral information, and various aspects of spatial analysis to support decision making. iv. Finally, the Land Use Act should be revisited and amended. It is highly recommended that the amendments should include digitization of all sources of data and unification of land administration methods in every state of the federation. References Dale, P.F., McLaughlin, J. (1988). Land Information Management: An introduction with special reference to cadastral problems in the third world countries. Oxford University Press. Walton Street, Oxford OX26DP. Kaufmann J., Steudler D. (1998). Cadastre 2014: A Vision for a Future Cadastral System. A paper presented to the Working Group 1 of FIG Commission 7. Nichols, S. (1994). Managing Land Tenure Information for Sustainable Development, proceedings of the FIG XX. International Congress, Melbourne. Pp Palmer, D. (1984). A land Information Network for New Brunswick. Technical report No. 111, Department of Surveying Engineering, University of Brunswick, Canada. Panel on a Multipurpose Cadastre. (1980). Need for a Multipurpose Cadastre. Committee on Geodesy, Assembly of Mathematical and Physical Sciences, National Research Council. National Academic Press. Washington.

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