Document of

The World Bank

Report No. 12866-TB

STAFF APPRAISAL REPORT

THAILAND

LAND TITLING III PROJECT

AUGUST 30, 1994

Agriculture and Natural Resources Operations DivisionCountry Department IEast Asia and Pacific Regional Office

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CURRENCY EQUIVALENTS(February 23, 1994)

US$1.00 - Baht (B) 25.50B1.00 - US$0.04US$1 million - B 25.5 millionBl million - US$39,216

WEIGHTS AND MEASURES

1 rai - 0.16 hectare1 hectare (ha) - 6.25 rai

ABBREVIATIONS AND ACRONYMS

AIDAB - Australian International Development Assistance BureauBIT - Bangkok Institute of TechnologyCSC - Civil Service CommissionCVA - Central Valuation AuthorityDOL - Department of LandsDOLA - Department of Local AdministrationGPS - Global Positioning Systemis - Information SystemsICB - International Competitive BiddingLCB - Local Competitive BiddingLDD - Land Development DepartmentLIS - Land Information SystemLTP I - Land Titling I ProjectLTP II - Land Titling II ProjectLTP III - Land Titling III ProjectMIS - Management Information SystemMOI - Ministry of InteriorNS2 - Pre-emptive CertificateNS3 - Certificate of Utilization based on ground surveyNS3K - Certificate of Utilization based on aerial photographyNS4 - Title Deed or ChanodOMO - Organization, Management and OperationsRFD - Royal Forest DepartmentRTG - Royal Thai GovernmentSK1 - Claim CertificateUTM - Universal Transverse Mercator

FISCAL YEAR OF BORROWER

October 1 to September 30

THAILAND

LAND TITLING III PROJECT

Loan and Proiect Summary

Borrower: Kingdom of Thailand

Amount: US$118.1 million

Terms: Standard Bank terms with 17 years' maturity, includinga grace period of five years

Proiect Description: The project would support the third phase of theGovernment's national land titling program, aimed atproviding secure documented land tenure to eligibleland owners, developing the long term sustainabilityof the Department of Lands' institutional capacity,improving land administration service delivery, anddeveloping an effective national valuation function.Specifically, the five-year project would support: (a)accelerated issuance of title deeds to eligible landowners; (b) producing cadastral maps in rural andurban areas in a uniform mapping system; (c) improvingland administration service delivery; and (d)developing the Central Valuation Authority to providean effective national property valuation function. Amain thrust of this third phase is to ensure thesustainability of technical and managerial capacity byproductivity improvements and implementation of humanresource development strategies. AIDAB wouldcofinance technical assistance and training in keyareas.

Benefits and Risks: The economic analysis of project benefits does notlend itself to conventional rate of return calculationmethods. Project benefits are derived from thephysical outputs (e.g. land titles, aerial photomaps,cadastral maps, etc.), improved systems of landvaluation and land information systems, and moreeffective land administration service to the public.Socio-economic studies carried out under the first twophases indicate that security of tenure from titledeed issuance led to: (i) higher land prices; (ii)increased access to institutional credit; (iii)increased input use and on-farm investments; (iv)higher productivity and beneficiary incomes; (v) moreefficient land markets and hence improved resourceallocation; and (vi) reduction of land conflicts. Thefiscal impact of land titling and improved valuationhas been substantial. The main project beneficiarieswould include some 1.1 million rural landholdingfamilies from a mix of provinces, slightly over half

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of which have a third of their population living atthe poverty level of Baht 4,400 (US$ 173) per capita.Project risks would be low, as the project would bethe third phase of a successful national titlingprogram. Government and its agencies are stronglycommitted to support of this program, and thenecessary experience has been gained under the firsttwo phases to address adequately any unforeseableimplementation problems.

Estimated Project Costs a/ Local Foreign Total-------(US$ million)------

Land Titling 96.6 22.3 118.9Improving Service Delivery 14.5 2.6 17.1Strengthening DOL 9.8 7.7 17.5Developing CVA 10.8 4.3 15.1Technical Assistance and Training 1.1 5.2 6.3Studies 0.5 0.0 0.5

Base Costs 133.3 42.1 175.4

Physical Contingencies 1.6 1.3 2.9Price Contingencies 25.0 3.5 28.5

Total Prolect Costs 159.9 46.9 206.8

Financing Plan Local Foreign Total--------(US$ million)------

Government 76.8 5.6 82.4

AIDAB (Grant) 1.1 5.2 6.3Bank 82.1 36.0 118.1

Total 160.0 46.8 206.8

Estimated Bank Disbursements

FY 1995 1996 1997 1998 1999 2000---------- ---- (US$ million)--------------

Annual 5.9 24.8 23.6 23.6 23.7 16.5Cumulative 5.9 30.7 54.3 77.9 101.6 118.1

Economic Rate of Return: Not applicable

Poverty Category: Program of Targeted Interventions

OMa: IBRD 25527

a/ Including taxes and duties equivalent to US$9.4 million

THAILAND

LAND TITLING III PROJECT

STAFF APPRAISAL REPORT

Table of Contents

Page No.

Loan and Project Summary . . . . . . . . . . i-il

I. BACKGROUND.. . . . . . . 1

Land Resources . . . . . . . . . . . . . . . . . . . . . . . 1Land Use Policies and Economic Development . . . . . . . . . 2The Department of Lands . . . . . . . . . . . . . . . . . . 3Land Valuation and Taxation ........... . . . . . 4The Government's Land Titling Program . . . . . . . . . . . 4Role of the Private Sector . . . . . . . . . . . . . . . . . 5Experience under the Land Titling Projects . . . . . . . . . 5

II. THE PROJECT ... . . . 8

Objectives and Summary Description . ....... .. . . 8Rationale for Bank Involvement . . . . . . . . . . . . . . . 8Main Features ............... . . . . . . . 9Land Titling.. . . . . . . . . . . . . . . 10Improving Department of Lands Service Delivery . . . . . . . 11Strengthening the Department of Lands . . . . . . . . . . . 12Developing the Central Valuation Authority . . . . . . . . . 12Institutional Development ...... . . . . . . . . . .. 13Technical Assistance . .. ..... . ... o o . . . ... 13Training R.. ............... . . . . . 14Studies . . . . . . . . . . . . . . . . . . . . . . . . . . 14

III. ORGANIZATION AND IMPLEMENTATION . . . . . . . . . . . . . . 15

Project Organization and Implementation Arrangements . . . . 15Monitoring, Evaluation and Reporting . . . . . . . . . . . . 16

This report is based on the findings of a joint World Bank and AustralianInternational Development Assistance Bureau (AIDAB) appraisal mission whichvisited Thailand in February 1994. The mission included Messrs. Y. Wong(Mission Leader), T. Lohavisavapanich (Economist, FAO/CP), L. Holstein(Land Administration Specialist, Consultant), T. Jankowski (PropertyValuation Specialist, Consultant), and A. Zola (Resource Economist,Consultant) from the Bank, and Messrs. D. Barber (Director, ProgramDevelopment S.E. Asia) and A. Rowell (Australian Embassy, Bangkok) fromAIDAB. Peer reviewers were Messrs. G. Feder (AGRAP) and A. Nishio (EA3AG).The document was cleared by Ms. Pamela Cox (Chief, EAlAN) and Mr. C.E.Madavo (Director, EA1).

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IV. PROJECT COSTS AND FINANCING . . . . . . . . . . . . . . . . 17

Project Costs . . . . . . . . . . . . . . . . . . . . . . . 17Financing . . . . . . . . . . . . . . . . . . . . . . . . . 18Procurement . . . . . . . . . . . . . . . . . . . . . . . . 19Disbursement ......... .............. 21Cost Recovery .............. . 21Accounts and Audits ........ . . . .. . 21

V. PROJECT JUSTIFICATION AND RISKS . . . . . . . . . . . . . . 22

General .. . . . ... . 22Benefits . . . . . . . . . . . . . . . . . . . . . . . . . . 22Fiscal Impact.. . . . . . ....... . 24Beneficiaries . . . . . . . . . . . . . . . . . . . . . . . 26Women . . . . . . . . . . . . . . . . . . . . . . . . . . . 27Effect on the Environment ....... .. . . . . . . .28Risks.. ....................... 28

VI. AGREEMENTS TO BE REACHED AND RECOMMENDATION . . . . . . . . 29

ANNEXES

1. Sector and Project Supporting Tables2. Detailed Cost Estimates and Financing3. Improving DOL Service Delivery4. Human Resource Development Programs5. Information Systems Development6. Developing the Central Valuation Authority7. Technical Assistance8. Environmental Analysis9. Key Performance Indicators10. Disbursement Schedule11. Project Implementation Plan12. Supervision Schedule13. Documents in the Project File

CHARTS

1. Organization of the Ministry of Interior2. Organization of the Department of Lands3. Issuance of Title Deeds4. Structure of Land Titling Project Office5. Revenues of Department of Lands

MAP

Main Project Provinces - IBRD 25527

I. BACKGROUND

Land Resources

1.1 The Kingdom of Thailand has a total land area of about 321 million rai(51.4 million ha or 514,000 sq km), of which about 160 million rai (50%) aresuitable for agriculture. Of this, about 152 million rai were cultivated in 1991(Annex 1, Table 1). Forest land has been severely encroached. Although 40% ofthe total area of the country has been proclaimed forest area, only about 182remains still relatively untouched. Demand for land is high, and in combinationwith inheritance patterns, results in increasing numbers of (smaller) landparcels.

1.2 The Land Code. Traditionally, all land in Thailand belonged to theCrown, but landholders were commonly recognized as being rightful owners whocould dispose of their property quite freely. Before the 20th century, land userights were determined by custom, villagers had free access to land. The firstofficial system of land registration was introduced in Thailand in 1901 with theexamination of claims, registration of documents, issuance of titles, and theestablishment of a Department of Lands (DOL), but land use practices continuedmuch as before. In the past few decades, population growth has exhausted thesupply of unused agricultural lands and led to the severe deforestation. Concernover the disappearing forests and the legality of private settlements on publiclands has prompted considerable land legislation and led to the establishment ofthe present system of land administration. A Land Code enacted in 1954 providedGovernment with a legal framework for a land administration system designed tocontrol land use, determine ownership, and generate revenues from land. Aboutten more Land Acts have been passed since 1954.

1.3 Under the Code, DOL is empowered to issue four forms of private landdocument:

(a) A Title Deed (Nor Sor Sii, NS4, or Chanod Thi Din) indicates fullownership and is supported by a deed plan showing the positionof boundary mark stones, which are usually measured by groundsurvey methods.

(b) A Certificate of Utilization (Nor Sor Saam, NS3; Nor Sor SaamKor, NS3K) indicates that the person named as land holder has putthe land to use. The NS3 certificate is based on a rough groundsurvey, as a temporary measure before titling. By the 1970s, DOLwas unable to cope with both the demand for titles and therequirement for ground surveys. To speed up the issuance ofcertificates of utilization, the NS3K certificates were issuedas from 1972, based on unrectified aerial photographs. Thecertificate is supported by a deed plan showing the size andshape of the holding. During the 1972-82 period, nearly eightmillion NS3K certificates were issued. Holders of NS3 and NS3Kcertificates have the same possessory rights as holders of titledeeds; the only difference is the manner in which the boundariesare surveyed. An amendment to the Land Code in 1985 enabled NS3Kcertificates to be converted to title deeds without re-survey.

Both NS3 and NS3K certificates are being converted to title deedsunder the land titling projects.

(c) A Pre-Emptive Certificate (Nor Sor Song, NS2, or Bai Chong)authorizes temporary occupation of land. The certificate is nottransferable except on inheritance and is conditional on usewithin six months of issue.

(d) A Claim Certificate (Sor Kor Nueng or SKI) indicates a claimlodged by a person who was in possession and made use of the landprior to 1954, the effective date of the Land Code. Thecertificate is transferable, subject to advertisement of thetransfer, and is convertible to a title deed.

1.4 DOL also issues an additional document, known as a Document for StateLand (Nor Sor Lor or NSL), to government agencies when land is used for publicpurposes. Some land documents and the records to support them are maintained inprovincial land offices, while others are retained in district land offices.

1.5 Other Government agencies also issue various forms of licenses andother documents on land tenure which are not specifically provided for under theLand Code. The most important of these are the usufruct licenses issued tosettlers by the Public Welfare Department and the Cooperatives PromotionDepartment; the usufruct licenses issued by the Royal Forest Department tosquatters in gazetted forest reserves; and the land occupancy certificates issuedby the Agricultural Land Reform Office. The objective of these documents hasbeen to provide temporary occupancy rights to farmers until such time as they canobtain more secure tenure, but the Royal Thai Government (RTG) has not yetrevised the Land Code to allow conversion of these documents to title deeds. Inthe meantime, these documents cannot be sold or otherwise transacted, but areinheritable.

1.6 Parcel Statistics. National land parcel statistics (Annex 1, Table2) are very approximate due to continuing subdivisions. In 1992, DOL estimatedprivate lands to include about 22.7 million parcels. About 9.6 million of theseparcels had already been issued with title deeds. Of the remaining 13.1 millionparcels, about 10.2 million were covered with certificates of utilization andpre-emptive certificates, and 2.9 million were undocumented.

Land Use Policies and Economic Development

1.7 The Government's stated aim in the Seventh National Economic andSocial Development Plan (1991-95) is growth with equity. Development objectivesinclude income redistribution, and upgrading the quality of life, the environmentand natural resource management. Specific objectives in the Plan are to expeditedistribution of land ownership by accelerating the issue of land title deedsnationwide and to reduce land speculation by enforcing tax measures based onproper land price valuations.

1.8 Agricultural Development. About 80% of Thailand's population live inrural areas, and most of them depend directly or indirectly on the agriculturalsector. Agriculture provides over 60% of employment but its contribution to the

overall economy has been steadily declining, as reflected in 1991 in its 12%share of GDP (against 25% in 1981) and 30% of exports. During 1960-75, thesector performed exceptionally well and was able to achieve annual growth ratesexceeding 5%. Since 1975, the rate of growth of total domestic agriculturaloutput has fallen progressively and in 1990, turned negative.

1.9 As area expansion is no longer possible, agricultural development mustrely on increase of farm productivity. However, the switch to higher-valueagriculture necessitates capital investment in land improvements, such asirrigation and drainage, better land preparation, land improvements to reducesoil erosion, and purchase of farm equipment and inputs. Financial institutions,both government and commercial, presently provide medium and long term creditonly against collateral, usually land which is covered by a full title deed.Thus, the millions of legitimate land owners who are still awaiting title deedshave limited access to institutional credit for farm improvement.

1.10 Urban Development. Government is presently unable to tax realproperty effectively, due to the lack of accurate cadastral maps that are alsoessential for planning and implementation of development programs. Thailand,particularly Bangkok and the major provincial centers, has been experiencing adevelopment boom in the past five years which has strained public utilities andservices. In addition, revenue collection by DOL (when assessing transactionfees) and DOLA (local tax) is affected by low CVA valuations. As these are alsoused for the compensation of expropriated private property, they do not providefair and equitable compensations to property owners. Low CVA valuations resultfrom once in four years valuation (while market values increase much faster) andinadequate methods.

The Department of Lands

1.11 Established in 1901, DOL is under the authority of the Ministry ofInterior (HOI). It is responsible for most aspects of land administration inrespect of state lands (public domain) and private lands. Its main activitiesinclude cadastral surveying and mapping, documentation of private lands andregistration of land rights throughout the country, and subsequent maintenanceof registers of these documents.

1.12 DOL is administered by a Director General (DG), assisted by fourDeputy Director Generals (DDG) and a Surveyor General. Each DDG is responsiblefor 4-7 Divisions and about 18-20 provincial land offices (and their satelliteoffices). With over 13,000 staff, DOL is one of the largest RTG agencies. About39% of the staff are located in Bangkok, with the remainder in the 75 provincialoffices and about some 600 district and branch land offices. DOL staff can begrouped into three basic occupational categories: (a) land office staff,including land administration staff, land officers and legal officers; (b)technical staff, including surveyors, valuers, draftsmen, map production andcomputer staff; and (c) general staff, including personnel, finance, accounting,training, and clerks. In FY93, DOL had a budget of Baht 2,420 million, allocatedto land administration (65%), mapping and document issuance (25%), valuation(2%), general administration (3%), and land allocation (5%). DOL's contributionto the project would amount to 25% of its annual budget. DOL's revenuesincreased substantially in recent years due to increased transfer revenues from

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the land boom, but have now stabilized to about Baht 21,040 million. About 55%of the revenue is derived from transfer fees, 40% from capital gains tax, and 5%from stamp duties.

1.13 DOL in 1981 created a land and building valuation section, which wasupgraded in October 1983 to a Division and renamed the Central ValuationAuthority (CVA). Until now, efforts to develop CVA have been limited. There arefew qualified and professionally trained Thai valuers in the staff of over ahundred. Only some 50 staff having received some training in valuation, mostlyat the diploma level. Support for CVA under LTP I focused on the initialtraining of professional valuers both in Thailand and overseas, through theestablishment of a two year diploma course at the Bangkok Institute of Technologyand award of overseas scholarships to undergraduate valuation degree courses inAustralia. While this initiative was continued under LTP II, additional emphasiswas placed on the formulation of a strategic plan (Annex 6), completed in 1992,for the establishment of a national valuation function in Thailand.

Land Valuation and Taxation

1.14 CVA provides valuations of land parcels to DOL for assessment oftransfer fees and to DOLA1 as a reference for local tax collection. RTG plansare for CVA to operate nationwide to provide the central and local governmentswith valuation services based on international valuation principles andstandards. Two main areas are defined: (a) individual parcel valuations over thewhole country to be used for property taxation; and (b) a land acquisition andcompensation service for fair compensation for land acquired for public purposes.

The Government's National Land Titling ProRram

1.15 Government concerns over land tenure and productivity problems led tothe establishment in 1980 of a policy to accelerate issuance of title deeds andimprovement of DOL's mode of operation and land rights documentation andregistration. The national land titling program would have taken over a hundredyears at the prevailing speed. The accelerated program started in 1984, withBank and AIDAB support under the Land Titling I (LTP I) and Land Titling II (LTPII) Projects (para. 1.18). The main objectives were to complete issuance oftitle deeds for some 13 million parcels then without title and to improve landadministration services across the country through:

(a) Production of new cadastral maps, covering a total of 80,000 mapsheetsbased on the Universal Transverse Mercator projection (UTM)2 and newsatellite based control surveys, for rural and urban areas. The old

1 The Department of Local Administration (DOLA), also within the Ministry ofInterior, is responsible for local revenue collection through municipalities,sanitary districts, and provincial administration offices.

2 The internationally adopted UTM projection, a system covering the whole globein standard zones 6 degrees wide, minimizes distortions of length and areaarising from plotting the spherical earth on a flat plane.

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mapping was based on 29 local origins and was distorted by asignificant number of errors in the control surveys.

(b) Issuance of title deeds for private lands (103.3 million rai or 16.5million ha) and land documents for state lands (16 million rai or 2.6million ha), covering some 13 million parcels (over an area of 119.3million rai or 19.1 million ha).

(c) Decentralization of land administration and related services to localoffices by the establishment of about 300 branch land offices andimproving the maintenance of land documents. The more convenientlylocated branch land offices would offer a full range of services.

(d) Development of a property valuation function to support propertytaxation and a property acquisition and compensation function, andprovide a national valuation service.

(e) Improvement of DOL's organization, management and operations tosustain an effective system of land administration for the future.

Role of the Private Sector

1.16 Surveving. LTP I and II have aimed to support development of theprivate sector survey industry, as this industry is still at a very early stageof growth. There are currently only some 211 licensed private surveyors workingBither in survey offices (28 licensed), or as individual surveyors against some7,000 surveyors working in DOL. Until the Private Surveyors Act was passed onFebruary 25, 1992, no private surveyors were licensed to operate in Thailand.The Act now authorizes private surveyors to perform boundary checks, subdivisionsand consolidation of titled land. However, it does not allow them to carry outcadastral surveys for untitled parcels, due to the sensitivity of landadjudication. Nonetheless, private surveyors are already playing an importantrole in providing private surveying services in areas where land titling has beencompleted. This frees DOL resources for other tasks that private surveyorscannot carry out. LTP I and II promoted the development of private surveyors bysupporting the establishment and operation of the survey engineering courses atBangkok Institute of Technology and Chulalongkorn University at diploma anddegree levels.

1.17 Property Valuation. While LTP I and LTP II assisted in initiatingdevelopment of the valuation profession in Thailand, at present the professionis still at a rudimentary stage in both the public and private sectors. Thedemand for qualified valuers far exceeds supply and many large private sectorvaluation assignments for investment or lending purposes must be conducted byqualified international valuers.

Experience under the Land Titling Projects

1.18 The Land Titling Program was initially envisaged to be of four phaseseach of five years covering different geographical regions. The first phase,supported by LTP I (Ln. 2440-TH) with AIDAB grant cofinancing for technicalassistance, education and training, commenced in 1985 and was successfully

completed in 1992 (Project Completion Report No. 11896, dated June 3, 1993).Over 2.1 million title deeds were issued in five provinces in the north and fourprovinces in the northeast. Project urban activities covered most of Bangkok.The project supported cadastral surveying and mapping, issuance of land titles,improving land administration, strengthening CVA, and technical assistance andtraining. The second phase project, supported under LTP II (Ln. 3254-TH),covered an additional 30 provinces and became effective in February 1991. It isexpected to be completed in September 1994 with the issuance of about 2.1 millionparcels, representing 50% of the total parcels in the 30 provinces (the remainingparcels would be completed under LTP III).

1.19 The Project Completion Report for LTP I concluded that the project'sobjectives had been substantially achieved. The emphasis was correctly focusedon technological development to support the project, with institutionaldevelopment aimed for the longer term. A titling rate of 79% of eligible parcelswas achieved, which was considered to be successful by international norms forsystematic adjudication. The remaining 21% of eligible parcels could not bereadily adjudicated due to factors relating to proximity to forest boundaries,inheritance issues, absentee landholders, and inadequate parcel documentation.These parcels are being subsequently adjudicated by branch land offices. Landadministration was successfully decentralized from province to branch landoffice, providing the public with more accessible and timely services.Government revenues from land transactions increased considerably as a directresult of the project.

1.20 Cofinancing of technical assistance and training by AIDAB played acritical role in the successful implementation of the project. The Australianadvisers were very effective in supporting project administration, introducingnew technology and providing on-the-job training to their national counterparts.Training programs in surveying and valuation were specifically designed inThailand and Australia. This successful formula of Bank, AIDAB and RTGcollaboration was extended to LTP II.

1.21 The clear success of technological development in LTP I highlightedthe need for improved administrative and management practices for long termsustainability. Successful systematic title adjudication required theintegration of national land use and classification policies. Administration ofprovincial and branch land offices had to be clearly set within DOL's centralmanagement structure. Parcel statistics had to be improved for better planningof field activities, and parallel institutional changes were needed for thesustainability of technological changes. Also, human resource management anddevelopment was recognized as a key aspect of institutional development andneeded a long term perspective. Incentives for career development andadvancement were an essential step towards increased human resource productivity.

1.22 LTP II emphasizes institutional development, including consolidationof organizational and management changes, while continuing to support titlingactivities. It covers a mix of provinces in the northeast region with thehighest incidence of rural poverty and others with potential for intensivedevelopment on the eastern seaboard. As of December 1993, title issuance was at70Z of total target. A cost overrun of about 31% is expected, due to increasesduring 1991/92 of salaries (up to 30%) and daily field allowances (up to 100%)

to reduce the gap with the private sector, and civil works unit costs (adjustmentfor inflation). Additional RTG funds have been provided to cover the increasedcosts. Land information systems (LIS) and management information systems (MIS)have been introduced and successfully tested. The CVA strategic plan wasprepared.

1.23 Socio-economic studies recently completed for LTP I by KasetsartUniversity (July 1993) have shown that land values, access to institutionalcredit, amounts borrowed per family, use of farm inputs, and cultivated areashave significantly increased due to titling. While values of production and netfamily incomes were increased in the north, there were no significant differencesfor the northeast, probably due to the fact that it is still too early for anytrend to emerge. Similarly, the project's social impact is still not clear. Theproject appears to help reduce land disputes, particularly on boundaries.However, a case study showed instances of land disputes among families due toinheritance problems; the land titling process probably highlighted existingproblems. These studies have confirmed results obtained from previous Bank-financed studies on the direct correlation of land values, farm investment andproductivity with land tenure security. The project has also improved theefficiency of property and transfer tax collection, as evidenced by the 2602increase of DOL revenues between 1986 and 1989 while these did not change between1984 and 1986 (Chart 5). This increase can also partly be attributed to improvedvaluations.

1.24 A review of Bank experience with rural land titling projectsthroughout the world (Environment Department, Research and Policy DivisionWorking Paper No. 1992-35, March 1992) reported that, except for the Thailandprojects, the 12 operations surveyed performed poorly. The main problems were:lack of political support; conflicting bureaucratic priorities; lack ofinstitutional capacity or support; and complex multiple objectives of whichtitling was only an adjunct. By contrast, the Thailand projects were relativelysuccessful, due to: full political and institutional support; Governmentcommitment of adequate resources; single titling objective; and relativelyfavorable land policy environment. The mutual cooperation between DOL, AIDAB,and the Bank must also be considered a factor in the success so far. TheThailand projects have attracted considerable interest in international circlesas they are recognized as being among the best national land titling efforts.

II. THE PROJECT

Oblectives and Summary Description

2.1 The objectives of the project are to:

(a) provide secure land tenure to eligible land owners;(b) develop the long term sustainability of DOL's institutional capacity;(c) improve land administration service delivery; and(d) develop an effective national property valuation function.

2.2 The project would support the third phase of the Goverrment's nationalland titling program, aimed at extending secure land ownership, compiling auniform and complete national cadastral mapping system, and developing landadministration and valuation systems. The granting of secure documented tenureto poor rural landholders (para. 2.5) would facilitate their access toinstitutional credit, thereby promoting investments in the land, and increasingagricultural productivity and family incomes. The completion of a nationalcadastral mapping system would greatly assist the various RTG agenciesresponsible for development planning and administration. Emphasis on DOL's longterm institutional development by strengthening and decentralizing itsoperational capacity is aimed at providing an effective and more efficient landadministration service to the public at the local level. Finally, implementationof the strategic plan for CVA would result in providing more accurate and timelyproperty valuations and tax assessments, which would strengthen the fiscal systemand increase government revenues, particularly in urban areas.

2.3 Project activities would occur mainly in some 19 provinces (Annex 1,Table 3), including ten provinces in the northeast and seven provinces in thenorth to complete titling coverage of these regions, and two provinces in thecentral region. The selection of provinces would be kept under review duringproject implementation to accommodate changes in priority over the life of theproject. Project beneficiaries would be mainly the rural population, composedof farmers on small holdings and including the poorest segments of these groupsin the northeast, which is the poorest region in Thailand (para. 2.5).

Rationale for Bank Involvement

2.4 The project is consistent with the Bank's strategy for Thailand. Thecountry assistance strategy focuses on four areas: infrastructure development;poverty alleviation and improving income distribution; human resourcedevelopment; and environmental and natural resource management. The projectaddresses the last three issues.

2.5 The Thailand Poverty Assessment of June 1993 reported that Thailandwas the only country out of six in East Asia that failed to make significantadvances in reducing poverty in the late 19809, despite the economic boom. Also,95% of employed household heads who are below the poverty line are employed inagriculture, either self-employed or as agricultural workers, and that 28Z offarming families in the country are below the poverty line of US$173 per capita.

Regional differences are also widening, with poverty incidence in the northeastremaining unchanged and highest at 33%. Through provision of secure documentedland tenure to mainly rural families (and over 50% of the project provinces arefrom the poorer northeast region), the project would assist in alleviatingpoverty of the least privileged people in the country by opening access toinstitutional credit and thus increasing farm productivity and income.

2.6 Whereas LTP I and II focused on the introduction of improvedtechnology and laying down the organizational framework for DOL development, themain thrust of LTP III would be to ensure the sustainability of technical andinstitutional capacity by the implementation of human resource and informationtechnology programs. An important challenge for DOL in this phase is to use itshuman resources more effectively. Strategies to upgrade skills, consolidatecareer streams and redeploy staff, and give incentives for career advancement andretention of skilled staff, would be implemented.

2.7 Project support to ground survey and demarcation of forest reserveboundaries in the project area, which includes over 25% of the country'sprovinces, represents the first and most comprehensive initiative by RTG toclearly delineate its forest areas. Clear boundaries agreed by all concerned RTGagencies and marked on the ground, followed by actions to demonstrate that titledeeds will not be issued to encroached parcels, will facilitate forest protectionand discourage forest encroachment.

2.8 Finally, the present restraint on government budgetary expenditures,subject to a ceiling of 2% annual increase, limits the domestic capacity toimplement the rest of the national land titling program. A freeze on new staffrecruitment for the civil service (except for specially approved projects, inwhich this project is included) is also in force since February 8, 1994. On theother hand, the Cabinet has given the highest priority to the completion of thenational land titling program on an accelerated schedule and to the developmentof CVA. In the light of these severe resource constraints, the governmentobjective cannot be achieved without external support. The project will help tofill in the resource gap.

Main Features

2.9 The project would include:

(a) land titling, including rural and urban cadastral survey and mapping,adjudication, and title deed production and distribution (67.8% oftotal base costs);

(b) improving Department of Lands service delivery, focusing ondecentralization and strengthening of central and land officeoperations (9.7Z of total base costs);

(c) strengthenina the Department of Lands, with emphasis on management anddevelopment of human resources and information systems (10.0% of totalbase costs);

(d) developing the Central Valuation Authority (8.6% of total base costs);

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(a) institutional development. including technical assistance and overseastraining (3.6Z of total base costs); and

(f) studies (0.3Z of total base costs).

Land Titling

2.10 Cadastral survey and mapping would include aerial photography, andcadastral survey and mapping of both rural and urban areas. Aerial photographywould be carried out for 92,650 sq km of rural land in the remaining 28 provincesof Thailand and 2,000 sq km of urban land. For rural areas, 26,550 photomaps atscale 1:4,000 would be prepared from up-to-date aerial photography. The rate ofproduction of photomaps of 4,000 mapsheets per year achieved under LTP I andincreased to 6,000 mapsheets per year under LTP II would be consolidated underthe project. Urban mapping activities would include the production of 4,230photomaps at scale 1:1,000 covering about 26 provincial cities and towns.

2.11 Land titling includes three processes: adjudication, conversion andtransformation. The project would support the provision of vehicles, equipment,furniture, materials, and other operating costs of these activities.

(a) Adludication is the process of issuing title deeds for land coveredby NS3 certificates and lesser land documents, and undocumented land.DOL field adjudication teams officially determine the boundaries ofseparately owned parcels and the ownership and other rights held ineach. This is done by reaching agreement with village authorities andneighbors of the parcel holders on the legitimacy of their status andon the parcel boundaries. After the placement of mark stones and tapemeasurement of parcel dimensions, the parcel is either surveyed oridentified on the UTM photomap sheet (and cadastral map), theadjudication of the land rights takes place. Adjudication (by groundsurvey or photo-adjudication) is undertaken in parties of 10adjudication teams, each team consisting of an adjudication staff, asurveyor to adjudicate boundaries, and in the case of the use ofground survey method, a surveyor to survey boundaries. Under theproject, 3.4 million eligible parcels covering an area of about 15million rai would be considered for adjudication by about 500 fieldteams totalling about 2,180 DOL staff and 3,190 temporary workers.

(b) Conversion covers the issuing of titles to landholders with NS3Kcertificates, where possible without adjudication or field survey.It is a technical and administrative process involving the conversionof maps and existing certificates, though up to 30Z of cases mayinvolve a field survey or check. A first step is the transformationof existing NS3K maps onto UTM photomaps using computer techniques.Subsequent steps include the production of title deeds for thesetransformed parcels without any necessary field surveys taken. Thefield and office work would be undertaken by about 60 special NS3Kconversion teams (included in the 500 teams for adjudication above),working at a production rate of about 600 parcels per month. Underthe project, about 960,000 NS3K certificates (included in the 3.4

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million parcels above) covering an area of about 4.3 million rai wouldbe considered for conversion.

(c) Transformation of title deed maps consists of the plotting of oldtitle deeds maps and plans in both rural and urban areas onto the newUTM cadastral mapsheets, including the renumbering of parcels andnoting this on the parcel files. Under the project, about 1.7 millionold title deeds would be remapped.

2.12 Following the provisions of the Land Code, the project will only issuetitle deeds to land parcels located outside gazetted or degazetted forestreserves. To ensure that no parcels inside these forest areas are issued withtitle deeds, the project will support the ground survey and demarcation of forestboundaries. As most of the 18 project provinces include forest areas, thisactivity will be the most comprehensive action ever taken by RTG to demarcate itsforest boundaries on the ground. While this activity will also improve theefficiency of field adjudication, the overriding concern is environmental, asforest protection will be greatly facilitated by agreed and clear boundary linesmarked on the ground. Joint work units of the Royal Forestry Department (RFD),the Land Development Department (LDD) and DOL would carry out this activity.Project funds of US$5.60 million and US$0.58 million have been allocated to RFDand LDD, respectively, for the purchase of equipment and for staff and operatingcosts. It was agreed that, by January 1. 1995. loint survey teams by DOL. RFDand LDD for the demarcation on the ground of forest boundaries will be appointed(para. 6.1). Another measure to improve the efficiency of systematicadjudication is for DOL to implement clear policies to complete survey work andtitle production for parcels with absentee owners, inheritance disputes, or inmortgage even without final adjudication. DOL will. by January 1. 1995.formulate and implement a Policy to address issues pertainina to fieldadiudication (para. 6.1).

Improving DOL Service Delivery

2.13 Decentralizing land administration from provincial to district levelwould be continued under the project. Some 63 new branch land offices, eachresponsible for 3-4 districts, would be established, and district land officeswould be phased out simultaneously. Each branch land office would be responsiblefor about 25,000 title deeds, and would handle all land office businesspreviously handled by the provincial office. This includes the registration ofdealings, transfers, mortgages, subdivisions, production and upkeep of titledeeds, and supporting activities. The provincial office would perform the samefunctions for the central district in which they are located, but would alsosupervise the operations of the new branch land offices. These would be staffedmainly from staff transferred from provincial and district land offices that arebeing phased out and from headquarters. The project would finance theestablishment of branch land offices, staff houses, storage facilities, vehicles,equipment, furniture, and materials.

2.14 Land Records Management. The project would support in the short termthe formulation of a land registration computerization strategy and land officerecords management plan. In the longer term, plans will be developed for thedevelopment and adoption of appropriate legislation and regulations, as well as

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implementation in priority land offices. These activities aim at addressingstorage expansion and manpower difficulties in provincial and branch land officesresulting from the land titling program. Restraints on civil service growth willaffect DOL's present policy concerning retention of paper material. In the shortterm, DOL will benefit by adopting a carefully planned records management programaimed at reducing paper size to universal A4 size, eliminating duplication ofrecord data, and culling redundant file material. Adoption of a recordmanagement program during the project will aid the formulation of a registrationautomation policy consistent with the computerization of land offices and assistthe development (including necessary legislative and regulatory reform) towardsan appropriate automated registration system for Thailand. Both long term andshort term technical assistance in land registration and land law would beprovided. DOL will formulate by January 1. 1995 and thereafter implement aPolicy for improving provincial and branch land office land records management(para. 6.1).

Strengthening the Department of Lands

2.15 The project would concentrate on institutional development of DOL,with particular emphasis on human resource management and development (Annex 4).This activity is aimed at addressing personnel needs through internal re-deployment rather than through external recruitment. In cooperation with theCivil Service Commission (CSC), the project would support the development of along term human resource program to reduce the large number of career paths,redefine and reclassify staff positions, implement appropriate staff deploymentand training programs, and provide adequate incentives for career advancement.The human resource data base would be expanded to assist the Personnel Divisionin more effective human resource management, through upgrading and bettermanagement of skills to facilitate redeployment from headquarters to provincialoffices and to ensure closer fit of skills to positions. A policy would beformulated for the re-deployment of staff presently assigned to the Land TitlingProject Office and the Land Administration Development Team. It was agreed thatDOL will prepare and submit to the Bank by October 1. 1995, and thereafterimplement an appropriate human resource management and development program (para.6.1).

2.16 The project would support the implementation of integrated informationsystems through the establishment of an Information Systems (IS) Center (Annex5). IS will be a key factor in improving DOL service delivery, institutionaldevelopment, and organizational strengthening, and IS technical infrastructureand policy, and management environment would, therefore, be developed. Theproject would build on the development of the land information system (LIS) andmanagement information system (MIS) initiated under the previous phases andemphasize the management of information as a resource need. The IS Center wouldbe amalgamated with the existing Calculation and Data Processing Division to forma single specialist Division (the IS Center). DOL would require external supportto develop policy, data standards, and network strategies, and for overallproject management and systems integration. National/international consultantswould be recruited (para. 2.23) to coordinate and advise on the procurement ofhardware and software, data capture, development and testing of systems,training, and integration and compatibility of systems and services. Substantialskills transfer would be aimed at ensuring long term sustainability.

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DeveloPinft the Central Valuation Authority

2.17 The project would support the implementation of CVA's five-yearstrategic plan (Annex 6) prepared under LTP II. Project activities would includethe opening of a new CVA headquarters building in Bangkok and 6 regional officesthroughout the country, a substantial increase in staffing, establishment of aprofessional career structure for valuers, development of both undergraduate andpostgraduate degree courses in valuation, and implementation of modern mass-appraisal techniques. The project would finance the expansion, construction andfurnishing of 6 regional offices, vehicle and equipment supply, and staff costs.

2.18 Under the strategic plan, the number of staff would increaseapproximately five fold to over 600 to allow CVA to accomplish its goal as anational valuation authority responsible for valuing some 20 million landparcels. Initially CVA would focus on the urban/industrial areas where propertyis more valuable and transfers most active to maximize government revenuecollection. Service delivery would be improved by creating 6 regional centerscloser to the clients. Modern computer assisted valuation techniques would beintroduced to help maximize the efficient use of professional resources whileincreasing the frequency of revaluation cycles to enhance the fairness and equityof the property taxation system. The data administration function would bedeveloped to provide an efficient and effective data base capable of supportingall of the government's valuation needs. This would be part of an overallinformation systems strategy for DOL and would include the sharing of data withexternal agencies. In order to ensure that CVA development would continue afterthe proiect is implemented DOL will. by October 1. 1997, prepare and submit tothe Bank a lonx-term institutional development plan for the continued developmentof CVA from proiect completion to full development (para. 6.1). TORs fortechnical assistance are presented in Annex 7, paras. 15-17.

2.19 The project would support institutional development in the area ofland acquisition and compensation for public purposes. This aspect of thevaluation function is a politically sensitive area requiring professionalvaluation expertise that currently is not available in Thailand.

2.20 An important element in ensuring sustainability is to assist inestablishing both undergraduate and postgraduate degree programs in a Thaiuniversity. There is an urgent need for professionally trained valuers andproperty managers in both the public and the private sectors, and the relativelysmall number of Australian graduates trained under LTP I and II can, at the verybest, only form a nucleus of a profession in Thailand. The project wouldtherefore support the development of relevant domestic degree programs designedto train property professionals generally and land valuers in particular.Initially, these programs would be fostered with linkages to overseasuniversities and designed to meet the urgent needs of the rapidly developing Thailand market economy.

Institutional Development

2.21 Technical Assistance. The technical assistance activities cofinancedby AIDAB under the two previous projects would be continued under the project.The emphasis would shift to a greater focus on the institutional development of

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DOL and concentrate on the core areas of project administration, human resourcesdevelopment, service delivery, and valuation. A total of 290 staff months oftechnical assistance would be provided over the five year period. Terms ofreference and job descriptions are presented in Annex 7.

2.22 The project administration adviser would be responsible for thetechnical assistance team and assist in project management and development of thestrategic policy framework of DOL. Short term assistance would also be providedto assist DOL in reviewing systematic adjudication and registration processes.The human resource development adviser would assist in the preparation andimplementation of a human resource management and development program (para.2.15). The service delivery advisers would assist in strengthening informationsystems (para. 2.16) and in streamlining the system of land registration andrecords management (para. 2.14). The valuation advisers would assist, at astrategic level, the consolidation and future development of CVA (para. 2.18) andin the specialized areas of computerized valuation systems and expropriation.

2.23 In addition, the project would provide an amount of US$2.7 million forthe recruitment of consulting services for information technology development.Some 237 person months of consulting services, preferably under a joint proposalby international/national firms as specialist skills are not available locally,would be required. Broad TORs are presented in Annex 5, and detailed TORs willbe prepared by the long term information systems adviser to be provided underAIDAB technical assistance.

2.24 Training. The project would support a considerable investment instaff training necessary to ensure the sustainability of technological changesintroduced and to improve the efficiency of DOL (Annex 4). RTG and loan fundswould continue to support scholarships for local undergraduate courses in surveyengineering and diploma courses in valuation, and for the establishment andoperation of new degree courses in valuation (para. 2.20). RTG funding wouldalso support short training programs conducted by the Training Division toupgrade staff skills in areas such as management and administration, surveying,adjudication and computing, and to facilitate redeployment of staff. AIDAB wouldcontinue to provide scholarships for postgraduate study in Australia as well asfunding for specialized short term courses, study tours and work experience inAustralia.

Studies

2.25 The project would finance the follow-up socio-economic andenvironmental impact studies (TORs presented in Annex 1, Table 8), for whichbaseline surveys would be undertaken under LTP II for the more commerciallyadvanced provinces in the Eastern Seaboard and for those provinces in the northand northeast. Conducting the evaluation surveys during LTP III would allow moretime for a measurable impact of land titling to emerge. The project wouldprovide US$508,200 under a lump sum contract for about 30 person months ofconsulting services (40% of total costs) to conduct evaluation surveys of thesocio-economic and environmental impact studies.

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III. ORGANIZATION AND IMPLEMENTATION

Proiect Organization and Implementation Arrangements

3.1 DOL is the executing agency for the project. The Project Directorwould be the DG, under the supervision of a Project Executive Committee (PEC)chaired by a Deputy Permanent Secretary of MOI. PEC is responsible for overallformulation of policies and coordination with other RTG agencies. Within DOL,a Project Administration Committee (PAC) chaired by the Project Director overseesproject implementation and monitors progress. Various subcommittees, whichreport directly to PAC, cover specific areas as monitoring and evaluation,valuation, and technical coordination.

3.2 Proiect ManaRement. The Land Titling Project Office (LTPO), underthe Project Manager, is responsible for overall project planning and monitoring.The Project Manager is closely supported by the team of AIDAB advisers whoprovide technical inputs. LTPO is a temporary office of DOL, attachedorganizationally to the Planning Division and, as noted in the PCR of LTP I, theuncertain status of that office has contributed to a high turnover and generallypoor morale in staff. The status of LTPO would be strengthened under the projectto improve its capacity to manage all activities related to the national landtitling program. This will be achieved by restructuring the office and arrangingfor the Project Manager to report directly to the Project Director within theorganizational structure of DOL.

3.3 Land Administration Development Team. To assist DOL in theinstitutional changes envisaged under the project, several task forces have beenset up. A specific full-time task force is the Land Administration DevelopmentTeam, assigned to study and recommend actions for improving land officeoperations. DOL would continue to provide support to the Team.

3.4 Arrangements with RFD and LDD. DOL chairs a subcommittee of PAC(Forest Boundary Subcommittee) for coordination of joint activities with RFD andLDD in demarcation of boundaries between forest lands and private lands. Thesubcommittee, which includes, inter alia, representatives of RFD and LDD, isresponsible for preparing joint budget and staff deployment programs for: surveyand demarcation of common boundaries; monitoring joint activities; and resolutionof operational issues involving jurisdiction boundaries which affect projectimplementation.

3.5 Other Organizational Strengthening. Ongoing efforts to improve theorganizational structure and management of DOL would be continued under theproject. Although CVA will have the most extensive changes, there will also besignificant changes in other areas. The commencement of the IS Center willprovide the corporate management structure for IS policy, planning, standards,and information resource management. The decentralization of land administrationwould continue with the creation of new branch land offices to take over some ofthe work of the provincial land offices, while district land offices in the samedistrict as new branch land offices would be absorbed by the latter. The presentsystem of sharing administration responsibility for provincial land officesbetween the four DDGs would be continued under the project.

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3.6 Staff Recruitment. New staff positions would be created under theproject. However, this activity is closely linked with the human resourcemanagement and development component (para. 2.15), which emphasizes skillsenhancement and staff redeployment. No new staff recruitment would be requiredfor the 63 new branch land offices to be set up under the project, as the 1133new positions would be filled by about 437 staff from closing district landoffices, and the remaining 696 staff would be redeployed from within DOL. The15 new field adjudication parties (690 staff) would only have temporary staff;the adjudication teams would be disbanded at the end of the titling program.Apart from the branch land offices, the creation of new permanent positions underthe project would mainly concern CVA, which would require some 574 new staff.The civil service staff recruitment freeze would not affect the project, asproject approval by the Cabinet exempts the project from the freeze (as for allspecially approved projects). CSC and DOL would work closely to implement CVA'sstaffing requirements.

Monitoring. Evaluation and Reporting

3.7 The Project Administration Committee, supported by LTPO, will continueto coordinate project monitoring and evaluation (M&E), which is beingstrengthened with the introduction and application of computerized projectmanagement systems. The planning and monitoring capacity of staff from LTPO, andplanning and technical divisions is being strengthened under ongoing trainingprograms in this new technology. The MIS established under LTP II will also beimproved so that it can be used more effectively by managers. In its presentform, it aims at achieving too many goals and needs to be redesigned to providemore focus on key data. Feedback from provincial and branch land offices hasalso underlined the somewhat excessive time needed for inputting data.

3.8 Environmental Monitoring. In order to provide adequate monitoring ofselected factors impacting on the environment in the short term, DOL's semi-annual reports would include: (a) reporting on progress of demarcation of forestlands adjacent to private lands being provided with title deeds, including astatement from RFD on the level of encroachment on affected forest lands; and (b)LDD reporting on progress of identifying steeply sloping lands (slope greaterthan 35x) and status of encroachment on affected slopes. The socio-economic andenvironmental studies (para. 2.25) would provide sufficient monitoring of factorsimpacting on the environment over the longer term.

3.9 Proiect implementation reviews would be carried out semi-annually byPAC, and reports would be action-oriented. DOL would send to the Bank its semi-annual reports within three months of the end of each semester, and within sixmonths of final loan disbursement, DOL would prepare an implementation completionreport, incorporating the results of the socio-economic impact studies. Togetherwith AIDAB, the Bank would conduct semi-annual project supervision missions; aschedule is presented in Annex 12.

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IV. PROJECT COSTS AND FINANCING

Proiect Costs

4.1 The total project cost, including price and physical contingencies,is estimated at US$206.8 million, of which US$46.8 million (23%) would be inforeign exchange.

4.2 Project costs, summarized in Tables 4.1(a) and (b) and detailed inAnnex 2, include about US$181.1 million (88Z) in investment costs and US$25.7million (12%) in recurrent costs. Investment costs include costs of civil works,aerial photography, vehicles, equipment and materials, and costs defined as"title development costs", which are costs not financed under contracts forvehicles, furniture, equipment and materials and are defined in economic termsas capital expenditures needed for creating (but not to maintain) assets in theform of a new cadastre and title deeds expected to produce a stream of benefitsover a number of years. These "title development costs" include salaries andwages of temporary staff, travel allowances, vehicle and equipment operation andmaintenance, staff accomodation and office rent. Recurrent expenditures includesalaries of incremental regular staff needed for improving DOL service delivery(at branch land offices), strengthening DOL capacities in project planning andimplementation (at headquarters), and for property valuation (at CVA).

Table 4.1 (a). Projed Cod Summay by Components

Local Foreign Total .......c.. F oegn ToAimproving SaMe. 370.3 07.41. . .. 2. 6 ........Ow.eiQplng OVA 211* 112.4 3843 1-0 4.4 n ¶ .m..

Technic.) Asistan 2,810* 162.4 1,03.4 14 ig70 2. 18.3Si 988l 38 Ovate... Training~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~.. ...Lartdf 'ln W .Wl3l: i:!.,lj 30-4 AI { : 0

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4.3 Cost estimates for civil works (buildings), aerial photography,equipment, vehicles and materials are based on 1993 unit costs and recentcontracts let by DOL under LTP II. Costs of consultant services and overseastraining are based on rates of local firms and AIDAB estimates. Physicalcontingencies of 10Z have been applied to civil works and aerial photography, andof 52 to equipment, vehicles and furniture. Price escalation for both local and

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- 19 -

Table 4Z Financbng Plan (SS lUon)

rrO IBaD AIDAB TOW.l

Civil Works, 2.5 14.0 16.6

Aeridal Photography 9.5 . 9.5

VehkI;hst Fumiture, Equipment, Materials 11.4 27.0 .8.4

Title Devetopment Cosb 39.9 60.9 100.8

IS Consultants 2.7 2.7

Local TraIning 2.6 3.8 6.4

Technioal Assistanoe & Overseas Training . 6.3 8.3

Studies 0.5 . 0.5

Recurrtent Costs 25.7 . . 25.7

Tolw 824 118.1 6.3 £6J

Procurement

4.5 Aerial photography, estimated to cost US$9.5 million, would beprocured through international competitive bidding (ICB) procedures in accordancewith "Guidelines for Procurement under IBRD Loans and IDA Credits" (May 1992).Contracts for vehicles and equipment (estimated to exceed US$ 200,000 each),amounting to US$16.8 million, would be awarded on the basis of ICB. A preferencemargin limited to 15% of the c.i.f. price of imported goods or the prevailingcustom duty, whichever is lower, would be extended to local manufacturers in theevaluation of bids. The Bank's standard bid documents would be used for ICB.Civil works and boundary mark stones supply contracts in the project provinces,totaling US$16.5 million and US$17.0 million, respectively, which would generallybe small and scattered in time and place, would be awarded on the basis of localcompetitive bidding (LCB), in accordance with RTG procedures acceptable to theBank. Other contracts for equipment, furniture and materials, estimated to costUS$200,000 or less and amounting to US$2.6 million, would be awarded on the basisof LCB. To the extent practical, similar civil works, equipment, furniture andmaterials would be grouped together in the same tender for reasons of economy andefficiency. To provide flexibility, prudent shopping with a minimum of threequotations would be applied to small items each costing US$25,000 or less, in anaggregrate amount not exceeding US$2.0 million.

4.6 Title development costs, amounting to US$100.8 million, include costsof salaries, wages, per diems, travel allowances and rental housing for temporarystaff and office rent, for which procurement is inapplicable. Consultingservices for Information Systems (US$2.7 million) and socio-economic studies(US$0.5 million) would be procured under "Guidelines for the Use of Consultantsby World Bank Borrowers" (August 1981), after inviting proposals from firmsshort-listed by DOL and acceptable to the Bank. All bid packages estimated tocost US$500,000 equivalent or more for civil works, and US$200,000 equivalent forvehicles, equipment, and goods, would be subject to prior review by the Bank, aswould final award of contracts in these categories. Prior Bank review orapproval of budgets, short lists, selection procedures, letters of invitation,proposals, evaluation reports and contracts, shall not apply to contracts for the

- - - - -- - - - -- - --- -- ---- - ----- -- - -- ------------- --- -------- ------------- -

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- 21 -

Disbursement

4.7 The proposed Bank loan would be disbursed against eligible

expenditures to cover:

(a) 85% of expenditure for civil works;(b) 100% of expenditure for aerial photography;

(c) 100% of foreign expenditure, 100% of local expenditure (ex-factorycost) and 65% of local expenditure for locally procured vehicles,

furniture, equipment, and materials;(d) 65% for title development costs (excluding regular staff salaries) and

local training; and(d) 100% of expenditure for survey engineering and valuation scholarships,

IS consultants, establishment costs of valuation degree courses, and

socio-economic and environmental studies.

4.8 In order to expedite project start-up, retroactive financing of the

aerial photography contract under category 2 and procured under Bank guidelines

after July 22, 1994, is included. Disbursements in respect of ICB expenditures

would amount to about US$20.5 million equivalent. Disbursements against civil

works contracts costing less than US$500,000 each, against vehicles, furniture,

equipment and materials contracts costing less than US$250,000 each, against

contracts for employment of consulting firms not exceeding US$100,000 each and

of individual consultants not exceeding US$50,000 each, and against title

development, adjudication and training costs would be made on the basis of

Statements of Expenditures (SOE), the related supporting documents for which

would be retained by the implementing agency for periodic review by the Bank.

The project would be physically completed by September 30, 1999, and loan closing

would be on September 30, 2000. An estimated schedule of disbursements is

presented in Annex 10.

Cost Recoverv

4.9 While the costs of title issuance would be recovered directly from

beneficiaries by payment of a fee for the title deed, this fee would not be

sufficient to cover the full costs of the document. DOL would indirectly recover

more than the full cost of the title deed, through the various systems of land

and property taxes levied on the landowner. Delayed cost recovery has been very

effective under LTP I and II (para. 5.8), in terms of revenues collected from

transactions in the form of transfer fees, stamp duties, and taxes on capital

gains. The rate of increase in revenue collections was between 14% and 278%

higher for LTP areas as compared with non-LTP areas, after netting out effects

due to the country's economic boom and the attendant speculation. Land titling

has emerged as one of the most cost effective means of increasing Government

revenues without raising the unit rates of land taxation and transfer.

Accounts and Audits

4.10 DOL would maintain separate project accounts covering all financial

transactions for project activities and would prepare annual statements of

receipts and expenditures based on the project accounts. DOL would also maintain

the accounting and internal control system used under the two previous projects

for loan disbursement against statement of expenditures. Auditors satisfactory

to the Bank would be employed to audit these accounts annually and certified

copies of the audited financial statements and the auditor's report including an

opinion covering withdrawals made against statements of expenditures would be

submitted to the Bank within nine months of the end of RTG fiscal year.

- 22 -

V. PROJECT JUSTIFICATION AND RISKS

General

5.1 LTP I and LTP II have enabled DOL to use new technologies andapproaches to improve the quality and speed of its output (new standardizedcontrol points, photomaps, computerized mapping, cadastral maps, land titles).Also, the preparation of an upgraded property valuation roll in 1988 and 1992 hascontributed to significant increases in Government revenues. Priority fortitling was given to rural areas where absolute poverty was relatively high andthe lack of secure land documentation was considered to be a serious impedimentto productivity improvement. Since rural poverty incidence was worst in thenortheast and the upper north, LTP I and LTP II focused on those regions. Themuch smaller urban program was concentrated in Bangkok and the municipalities ofthe aforementioned rural areas. The emphasis of LTP III would be to: (i)complete the coverage for the whole northeast and northern regions (specificallythe remaining 10 relatively poorer provinces in the northeast and 7 in the north)and start coverage of the central region; (ii) implement human resource andinformation systems programs to promote long term sustainability of landadministration; and (iii) develop CVA to carry out the functions of a nationalvaluation agency.

5.2 These emphases would support RTG's key development objectives andtrends in the economy over the next decade. Government has set as a major goalfor the 1990s the reduction of inter-regional income disparities, with particularattention to the historically poorer northeast region. Expanding andcommercializing rainfed agriculture in this area will be heavily dependent onsuccess in removing the constraints posed by insecurity of land tenure. Securingtenure in the advanced areas would have both employment and income distributionbenefits, as well as substantial budgetary benefits for both central and localgovernment. As Thailand's economic boom fuels speculative pressure on landprices (especially in Bangkok), it becomes increasingly important to upgrade thequality of title issuance and to provide more objective land valuation and astandardized land information system. A significant need for a valuationfunction in Thailand to be of international standard now exists in both thepublic and private sectors. Proper valuation standards are essential if the Thailand economy is to be properly managed so as to attract international investmentand provide the Thai economy with the revenue it needs from property taxation ona fair and equitable basis.

Benefits

5.3 The project would consider some 3.4 million eligible land parcels fortitling. Project benefits are derived from these title deeds and other "outputs"of the project (e.g. aerial photomaps, cadastral maps), the improved systems ofland valuation and land information which can be developed from them, and moreaccessible, efficient and timely land administration service to the public.While they do not lend themselves to conventional economic rate of return

- 23 -

analysis, some of these benefits have been quantified. The main thesisunderlying this analysis is that agriculture in Thailand has to move from theextensive to intensive mode, and that increased security of tenure is a crucialpre-condition for effecting the needed land improvements. LTP I and LTP II werejustified primarily on the basis of the benefits expected to arise from issuanceof title deeds, i.e. the security of tenure which would lead to: (i) increasedaccess to institutional credit; (ii) increased input use and on-farm investments;(iii) higher productivity and beneficiary incomes; (iv) more efficient landmarkets; and (v) reduction of land conflicts.

5.4 The socio-economic baseline surveys of LTP I undertaken in 1984-1986and the follow-up surveys undertaken in 1990-1991 1(3-4 years after the issuanceof land titles) and the baseline and follow-up case studies undertaken in 1986and in 1989 respectively, mainly in the northeastern and northern provinces, haveshown the following positive impacts, after netting out the differences in landquality, agro-climatic and government infrastructure support:

(a) the greatest motivation for obtaining land title is the increaseddemand for and access to institutional credit. Farmers having titlesincreased their borrowing from institutional credit sources by about27% and decreased their borrowing from informal credit sources ininverse ratio. The case study also indicated that the number ofmedium and long-term loans in the project areas increased by 20%.Finally, borrowers providing land collaterals received 75Z-123% moreinstitutional credit than those without;

(b) farmers with land titles (as compared to those without such documents)used inputs (including labor, draft power and other farm inputs) moreintensively by 10Z-30%; the agricultural output value was higher by8%-27%, the rate of capital formation by 28Z-67%, and the rate of landimprovements by 37Z-100%;

(c) legal title is the most significant factor in explaining thedifferences in land prices. Title-equivalent land was between 75%-192% more valuable than undocumented land, and between 113Z-195Z morevaluable than state land occupied by squatters 2. Assuming that onlyabout one-third of the net increases in land values is attributableto "true economic benefits of the project", the improvement is stillsignificant. The reason for partially deflating the differentialbetween titled and untitled land values is that other distortions tendto be reflected either in the over-valuation of titled land (e.g.credit subsidy effects) and/or in the undervaluation of the non-

Center for Applied Economics Research, Faculty of Economics, Kasetsartuniversity, July 1993.

2 See: (i) Feder et al (1988), Land Policies and Farm Productivity in Thailand,Johns Hopkins press; and (ii) Chalamwong and Feder (1988), The EconomicImplication of Land Documents in Rural Thailand, Agriculture Administrationand Extension, pages 123-133.

- 24 -

documented land below the value that can be attributable to trueenterprise risk (e.g. farmers' fear of eviction); and

(d) the direct costs of providing full title were equivalent to only 0.6%-5.6% of the market value of untitled land. The resulting benefit/costratios of providing titles to occupants of undocumented state landranged from 4.5 to 12. Even if such ratios were discounted by half,benefits still substantially outweigh costs.

5.5 The main social benefits relate to prevention and reduction of landdisputes. The results of the socio-economic surveys indicated that land disputeswere reduced from 4% to nil in the north and from 5% to 1.7% in the northeast(Table 5.10 of the socio-economic baseline and follow-up surveys in projectareas). A negative aspect, however, was that inheritance disputes tend to behighlighted in the titling process, although this may not necessarily mean thatthe number of disputes was actually increased. A positive impact of titling,which cannot easily be quantified, relates to those benefits associated with thedignity, security and sense of well being derived from land ownership, especiallyfor occupants of formerly undocumented land.

5.6 Since the rate of issuance of land titles achieved under LTP I(335,000 per year) and LTP II (525,000) would be significantly increased underthe proposed project (680,000 per year), it is reasonable to assume that theincidence of the associated benefits discussed above would increase similarly.

Fiscal Impact

5.7 Revenues. Although the unit cost of title preparation and issuancehas been rising3, in 1993 terms from Baht 582 under LTP I, to Baht 629 under LTPII, and an estimated Baht 856 under LTP III, the expected benefits to RTG wouldbe substantial. Under LTP I and II, the fiscal impact turned out to be largerthan expected and is expected to be of at least similar magnitude under LTP III.Land titling has emerged as one of the most cost effective means of increasingGovernment revenues without raising the unit rates of land taxation and transfer.DOL collects revenues from transactions in the form of transfer fees, a stampduty, and an income tax (a form of capital gains tax). The increase incollection is summarized in Table 5.1.

5.8 The rate of increase in revenue collections was between 142 and 278%higher for LTP areas as compared with non-LTP areas, after netting out effectsdue to the country's economic boom and the attendant speculation. Of DOL's totalrevenues, collections from transfer fees account for about 55%, followed byincome tax (40%) and stamp duty (5%). About a half of the total revenues comefrom collections in Bangkok and its metropolitan areas. During 1986-1990, thenumber of transactions increased by 20Z-90Z, from 6.3 million in 1986 to 7.5million in 1987. It peaked at 11.8 million in 1990. During the same period,

3 This is due to : (i) substantial increases in salaries (30%), per diem. andallowances (100%) in 1993 to align them more closely to conditions in theprivate sector; and (ii) NS3K conversion has proved to be more complex andrequiring more field work than anticipated.

- 25 -

total DOL revenue collections increased by 44% in 1987 and 480% in 1990, in 1986constant terms over 1986. These can be mainly attributed to: (a) an increasedissuance of title deeds resulting from improved technical support, expansion inbranch offices and improved organization and management; and (b) adoption in 1988of a more up-to-date and more realistic (higher) property values for taxationpurposes.

Table 5.1. Tax Receipts of Depambnt d Lans ml

No, df AmTourioleedkdofClsos %Year: t....ion -___ (BaAi iM7( 1.

___ Tranfer Inkm" ftamp. Total TiaXufe kloome Stm TtF.. Ta Duty Fee~~~4!0 Tax ut

- -'1984" 5976 . ... : 2,117 1,461 199 3,777 19 0 S i e1985 6,521 2,144 1,583 226 3,953 108 117 109 . .112

1986 6,290 2,009 1,391 213 3,613 100 100 100 100

1987 7,479 2,870 2,151 305 5,326 137 153 146 144

1988 8,926 5,775 5,115 620 11,510 273 342 188. 30

1989 8,295 7,585 6,117 870 14,572 339 389 401 362

1990 11,751 13,136 : 9,997 1,499 24,632 558. 614 0:1 i-2

19g1 8,840 11,37 6,921 1,183 19,421 453 .9 40 43i

1992 7,146 11,260 - 6,515 1,456 19,231 425 .: 355.. ..... .....

1993 8,030 11,5X 7,950 1,590 21,040 413 412 8 :'4 _A:

a/ Actual 1984-1992 and provisional 1993.

5.9 The slower economic growth during 1991-1992, resulting from localpolitical instability and a change of Government, significantly reduced thenumber of transactions in 1991 (25%) and 1992 (42%) over the 1990 level, andaffected total revenue collections (25% and 30%, respectively). The smallerimpact on revenue collection in 1992 was due partly to the increased base forproperty tax valuation, mainly in Bangkok metropolitan area and municipalitiesthroughout the country. This compensated for the impact of a reduced number oftransactions. Although the revised property valuation roll more realisticallyreflects market value, it is still significantly low. More importantly, in termsof property tax revenue, there are still properties not on the valuation roll andmany sanitary districts in the country which have not adopted the updated versionof the property roll. Addressing these two areas would significantly increaseGovernment revenues from property taxation. For example, a small increase in theproperty valuation bases by 10% would increase alone the transfer fee collectionby Baht 1.4 billion annually, which are more than sufficient to cover the annualcosts of the project estimated at Baht 1 billion.

5.10 Improved land titling and land valuation capabilities can haveimportant benefits for local development, especially when coupled with the

- 26 -

implementation of the property tax system creating a more realistic value baseupon which to levy the tax and a variable tax rate to be determined by Governmentdepending on budgetary demands. Revenue collection by DOLA through localmunicipalities, sanitary districts and provincial administrative offices has,however, been less impressive. This is because the land related authority taxes(e.g. the land and building tax and the local development tax) are not specificto title holdings and, more importantly, their rates and bases for assessmenthave not changed for at least 12 years. Although they are supposed to be basedon market appraisal, in practice the land and building tax (more important formunicipalities and sanitary districts) is based on rental value for 1978 insteadof annually and the local development tax is based on 1978 land values insteadof the professed medium price of land every four years. A lack of systematicproperty valuation bases in Thailand and limited funding for the expansion ofCVA's activities were additional constraints. Under its Sixth and SeventhDevelopment Plans, RTG has emphasized greater local government autonomy, alongwith decreased central budget transfers in favor of greater reliance on localtaxation.

5.11 By strengthening the valuation function in Thailand, particularly inthe areas of land expropriation and mass appraisal for property taxationpurposes, the project would help ensure that:

(a) property taxes based on fair market value would provide an equitabledistribution of the property tax burden by progressively taxing themore wealthy;

(b) the property taxation policy of Government can be carried outeffectively and efficiently;

(c) fair payment of compensation for land acquired for public purposeswould not only benefit dispossessed land owners but would also provideproper accountability for community projects; and

(d) the data base created to support the national valuation function.would provide the basic data and machinery needed for povertyprograms.

5.12 Savings. Substantial Government savings have been achieved under theprevious titling projects by expanding the uses for the new technology introducedto produce more efficiently the technical outputs, such as survey controls,aerial photography/maps and cadastral maps. Another source of potential savingswould result from the reduction and elimination of duplication among Governmentagencies. The pilot LIS developed for Bangkok under the ongoing LTP II, forinstance, has significantly reduced duplication in the production of base andland use maps, road building and waterway information, between the agenciescooperating in that project. Reduction of duplication through the use of DOLaerial photographs for the production of base maps have also saved the CityPlanning Division of BMA annual costs. However, a generalized LIS for DOL hasyet to be established but is one of the main objectives of the project.

- 27 -

Beneficiaries

5.13 An estimated 1,100,000 4 rural landholding families from amongst thepoorest sections of the population would directly benefit from the project. TheThailand Poverty Assessment (June 1993) reports that 95Z of employed householdheads who are below the poverty line are employed in agriculture, either selfemployed or as agricultural workers. About 28% of farming families nationallyfall below the poverty line (Baht 440 or US$173 per capita); regionaldifferences are widening, with poverty incidence in the northeast regionremaining unchanged and the worst at 33%, as compared to the south at 21% and thenorth at 19%. As 10 of the total 19 project provinces are from the northeast,this ensures that the poorest provinces in the country receive priority attentionunder the project. In the more advanced areas covered by the project (i.e. urbanareas in the lower north and central regions), improved security of tenure andstability would support the growing industrial and service industries, therebyproviding some employment of migrants from the poverty areas, especially thenortheast.

5.14 For all project beneficiaries, the issuance of the title deed willincrease the value of their land and open the door to medium and long termcredit. Security of tenure fosters land markets and promotes investments in theland and its sustainable use, increasing productivity, raising incomes, andproviding employment opportunities. The project would also help to strengthenthe fiscal system through more timely and equitable land property taxation whichwould result in increased Government revenues.

Women

5.15 Approximately 12% of all rural landholders are women and they wouldsecure title through the normal project process. Since the proportion of femalelandholders in urban areas is over 20%, even more women would benefit from urban-oriented components. Furthermore, bringing more land titles into the landregister and the Civil and Commercial Code would ensure that women are betterprotected from husbands selling land without their consent. It is now notpossible to register the transaction in DOL Land Offices without the otherspouse's approval by signing the transaction document. Because women alreadyplay an active role in land transactions when they do have title, no specialeffort would be needed to ensure their participation in the project. Women wouldalso benefit as staff members of DOL. In 1991, about 40% of all DOL staff werewomen and 15% of the middle-level management positions were held by women. Womenalso make up a significant percentage of the field adjudication teams.

5.16 Employment. Net additional permanent positions under the projectwould include mainly some 500 positions for CVA, which would be filled byredeployment of staff from within DOL or by new recruitment. A few additionalpositions would be created for the IS Center. The 1133 positions for the newbranch land offices would be filled by 437 staff from closing district land

4 Average of 3 parcels per landholder family, based on the Socio-economicEvaluation of the Land Titling I Project.

- 28 -

offices and 696 staff to be redeployed from within DOL. Some 690 incrementalstaff for field adjudication teams will be employed on a temporary basis untilcompletion of the titling program, when the teams will be disbanded. At thelocal level, the project should help create new employment and help family laborto become more productive through increased access to investment and credit.

Effect on the Environment

5.17 An environmental analysis of the project is presented in Annex 8. Theproject's impact on the physical environment is expected to be positive, whilethe PCR of LTP I did not identify any negative environmental impact.Sustainable natural resource management is a high priority of Government, and thestrategy for sustainable land resource management is based on ensuring landownership security to legitimate owners of private land and protect customaryrights of land occupiers in land which is now classified as public land. Thestrengthened land administration standards and procedures established to givesustainability to the project would of necessity create information systems whichwould have additional benefits to Government in the areas of land use managementand environmental planning.

5.18 Secure tenure in the form of a freely transferable title deed providesthe incentive to capitalize on the asset through land improvements and to protectit from degradation through unsustainable land use practices. The efficient landmarkets promoted by the project will ensure ready recovery of the asset value atmarket rates. In addition, the project will support, in over 25% of thecountry's provinces, the ground survey and demarcation of forest areas, whichwould be the first and most comprehensive action to be taken by RTG in forestboundary demarcation. The marking of clear boundaries agreed by all concernedRTG agencies will provide a sound basis for the implementation of enforcementmeasures against forest encroachment.

Risks

5.19 There are no project risks, as the project would be the third phaseof a successful national titling program. Government and its agencies arestrongly committed to support of this program, and the necessary experience hasbeen gained under the first two phases to address adequately any unforeseeableimplementation problems.

-29-

VI. AGREEMENTS REACHED AND RECOMMENDATION

6.1 The following agreements were reached during negotiations:

(a) By January 1, 1995, DOL, RFD, and LDD would appoint joint surveyteams to carry out these activities (para. 2.12);

(b) DOL would, by January 1, 1995, formulate and implement a policy toaddress during the field adjudication process issues of deceased andabsentee landowners and parcels held in mortgage (para. 2.12);

(c) DOL would, by January 1, 1995, formulate and implement a policy forimproving provincial and branch land office records management (para.2.14);

(d) DOL would, by October 1, 1995, submit to the Bank an appropriate humanresource management and development program (para. 2.15); and

(e) DOL would, by October 1, 1997, prepare an implementation plan for thecontinued development of CVA from project completion to fulldevelopment (para. 2.18).

6.2 With the above assurances, the proposed project would be suitable fora Bank loan of US$118.1 million, repayable in 17 years, including a grace periodof five years, at the Bank's standard variable interest rate. The Borrower wouldbe the Kingdom of Thailand.

l:

- 31 -

ANNEX ITable 1

THAILAND

LAND TITLING III PROJECT

Land Use in 1986 a/

Agricultural Landm rai X

Paddy 84.3 26.3Upland Crops 51.4 16.0Para Rubber 10.5 3.3Perennial Crops and Others 5.8 1.8

Subtotal 152.0 47.4

Other

National Forest Reserve 136.2 42.5Urban 2.7 0.9Water Bodies 3.1 1.0Vacant (swamp, beach, pasture, etc.) 26.6 8.3

Subtotal 168.6 52.6

Total 320.6 100.0

a/ Source: Thailand Development Research Institute, Thailand NaturalResources Profile (1986).

- 32 -

ANNEX 1Table 2

THAILAND

LAND TITLING III PROJECT

Land Ownership In Thailand a/

Number of AreaParcels (million('000) rai)

A. State Land

Forest b/ I 146.9Land under NSL c/ 76 16.1Government Real Estate - 6.9Vacant Land - 12.6

Subtotal 76 182.5

B. Private Land

Title Deeds (NS4) 9,590 34.8Certificates of Utilization (NS3K) 7,803 49.5Certificates of Utilization (NS3) 2,104 19.0Preemptive Certificates (NS2) 388 4.1Undocumented d/ 2,948 30.7

Subtotal 22.733 138.1

Total 22,809 320.6

a/ DOL statistics (1993).b/ Including prereserved forest.c/ Nor Sor Lor (title deed for government-owned land, registered with DOL).d/ Estimated by subtraction.

- 33 -

ANNEX 1Table 3

THAILAND

LAND TITLING III PROJECT

Main Provinces in Proiect Area

Northern Region Central Region N o r t h e a a t Southern RegionReiion

Kamphaeng Phet Nakhon Sawan [hon Kaen PrachuabTak Suphan Buri Chaiyaphum Khirikhan*Phetchabun Lop Buri * Sakhon Nakhon Ranong *Phichit Sing Buri * Nong Khai Chumporn *Phitsanulok Angthong * Udon Thani Phuket *Sukhothai Saraburi * Roi Et Phang Nga *Uttradit Nakhon Nayok * Mahasarakham Krabi *

Samut Sakhon * [alasin Surat Thani *Nakhon Pathom * Nakhon Phanom NakonKanchanaburi * Loei Srithamarat*Ratchaburi * Trang *Petchaburi * Phattalung *

Satun *Songkhla *Phattani *Yala *Narathiwat *

* Mainly aerial photography

-34 - Table 4

THAILAND

LAND TITLING III PROJECT

Standard Staffing for Field Adludication Parties 1/

Position No. of Staff PC Level

A. Office Staff

Superintendent 1 6Asat. Superintendent for Investigation 2 5Asst. Superintendent for Survey 2 5

Land Right InvestigationLand Staff 5 1-3

SurvevinRSurveyor 1 2 - 4Surveyor 4 1 - 3

B. Field Staff

Land Right InvestigationLand Staff 10 1 - 3

Boundary AdiudicationSurveyor 2 2- 4Surveyor 8 1 - 3

Detailed MappinaSurveyor 2 2 - 4Surveyor 8 1 - 3

Permanent Employee (Driver) 1

Total staff in an Adiudication Party 46

Total staff in 15 Adiudication Parties 690

[I There are 10 adjudication teams in an adjudication party. Eachadjudication team consists of one land right investigator, 1 boundaryadjudicator (surveyor) and 1 detailed mapping officer (surveyor).

ANNEX I-35 - Table 5

THAILAND

LAND TITLING III PROJECT

Optimum Staffing for a Branch Land Office

Position No. of Staff PC Level

A. Officials a/

Head, Branch Land Office 1 7Land Administration Officer 1 6Surveyor 1 5Land Administration Officer 1 5Land Technician 2 3 - 5Surveyor 1 5Surveyor 2 2 - 4Land Staff 1 4Land Staff 3 1 - 3Surveyor 1 1 - 3Finance and Accounting Officer 1 1 - 3

B. Permanent EmDlovees b/

Janitor 1 -

Assistant Draftsman 1 -

Driver 1

a/ Eligible for salary increases and all benefits.h/ Not eligible for salary increases or benefits.

- 36 -

ANNEX 1Table 6

THAILAND

LAND TITLING III PROJECT

Staffin for New Branch Land Offices

Government Officials Non-Establishment Positions

Thai New Total Transferred From Transferred From TotalFiscal Branch No. of from Amphur DOL from Amphur DOL FromYear Land Staff Land Office Land Office DOL

Offices

1995 16 288 90 150 16 32 182

1996 4 71 24 35 4 8 43

1997 17 306 117 138 17 34 172

1998 20 360 129 171 16 44 215

1999 6 108 20 70 4 14 84

Total 63 1133 380 564 57 132 696

- 37 -

ANNEX 1Table 7

THAILAND

LAND TITLING III PROJECT

Costs of Production of Title Deed Under Land Titling Proiects(Baht '000)

LTP I a/ LTP II b/ LTP III b/

Base Cadastral Mapping 387,551 405,869 561,131

Ground Survey 347,768 824,755 2,235,904

NS3K Conversion 73,389 51,764 28,399

subtotal 808,708 1,282,388 2,825,434

Depreciation of Capital Cost Items

Major Control 4,933 - -Minor Control 4,680 - -Aero Triangulation 13,153 - -Photomap Production 1,938 - -Printing 1,298 - -NS4 Adjudication 962 - -

subtotal 26,964 38,470 84,760

Total 835,672 1.320.858 2.910.194

Number of Title Deeds: 2,010,764 2,099,219 3,400,800Cost Per Title Deed (B) current prices: 416 629 856

1993 constant prices: 582 639 856

a/ Actualb/ Actual 1991-1993 and estimate 1994.

- 38 - ANNEX ITable 8

THAILAND

LAND TITLING III PROJECT

Socio-Economic and Environmental Impact Studies

Terms of Reference

Backaround

1. Under LTP I, baseline surveys were carried out between 1985 and 1989in Chiang Mai and Lampang Provinces in the north and Nakhon Ratchasima, Buriramand Roi-Et in the northeast to assess the socio-economic impact of the project.Follow-up surveys were carried out in 1991-92, and the analysis of data and finalreport were completed in July 1993. These studies also included a number of casestudies to highlight certain socio-institutional aspects of LTP I in specificlocations. More details on the results of the studies are presented in the maintext of this report in para. 5.4. Continued evaluation of the socio-sconomicimpact is envisaged in 1993-94 under the follow-on LTP II Project in order to alonger term perspective of the socio-economic impact.

Obiectives and Scope of Study

2. The study, which has two components, aims at evaluating the impact on:

(a) Land value(b) Access to credit and input use(c) Improvement in productivity(d) Incomes and expenditures(e) Land use practices and the environment

3. Additional Surveys in the North and Northeast. Because of therelaitvely short time since titles were issued in the north and northeast,further surveys will be carried out in these areas to enable the long termeffects to be better assessed. Follow-up surveys will be conducted in the aamehouseholds as those used in the baseline and 1991 follow-up surveys. Thequestionnaire and other procedures will be amended to ensure that the results ofthis additional study will address the long term environmental issueseffectively.

4. Impact on Commercially-Oriented Areas of Eastern Seaboard. As LTP IIwill include the more commercially advanced areas, baseline surveys will bestarted using these selected provinces of the eastern seaboard (Rayong orChanthaburi) to lay the foundations for assessing the impact in the urban areas(tourism, manufacturing, agro-processing) as well as the rural areas (especiallyon tree crops like rubber and fruit trees which are commonly found in the easternprovinces). For the urban areas, assessments would be made of the impact oftitle issuance: (a) land/property values; (b) location of land/buildingsinvestments; (c) investor incomes and spillover effects on employment andpoverty. For the rural areas, evaluation similar to that of LTP I will becarried out. Higher capital investments, associated with higher value tree crop

- 39 -

production, which could include sophisticated investments like sprinklerirrigation (for durians) are more likely than in LTP I areas.

5. Baseline surveys would be started in 1993/94 and follow-up surveyscarried out in 1997. In addition to the parameters under para. 2 above studiedunder LTP I, the survey will evaluate the impact on:

(a) borrowing for long term investment(b) output to local, Bangkok and overseas markets(c) investment in real assets, particularly for productive purposes,

and plans for further investment(d) employment created and origin of labor force to detremine whether the

project is reaching poverty groups(e) revenues for RTG agencies and local authorities(f) land and property values

6. Data will also be collected on the environment, regarding:

(a) near forested areas, encroachment and deforestation(b) near upland areas, soil erosion, crop diversification, and vegetative

cover(c) adjacent to streams and rivers, level of siltation and destructionof

water courses(d) in coastal areas, encroachment into mangrove forests and beaches, end

impact of aquaculture ponds and shrimp raising(e) on-farm use of organic and inorganic soil additives(f) conversion of lands for livestock ranches and pastures(g) number of freshwater fish ponds and their hydrological impact(h) occurrence of soil salinity

Study Teams

7. Six field teams will be involved:

North and Northeast : 2 teams for rural areasEastern Seaboard: 2 teams " 1

2 teams for urban areas

Study Team Leader: 9 person monthsAssist. Study Leader: 9Environmentalist: 3Field Supervisor: 9

30

Average unit cost: Baht 16,000 per person monthEst. Staff Costs (including field staff) : Baht 500,000Estimated Operating Costs : Baht 800.000

1.300.000

Total Budget : Lump Sum of Baht 13 million (about US$0.5 million)

THAILANDLAND TITLING liI PROJECT

BAHT

PROJECT COMPONENTS BY YEAR

BASE COSTS TOTAL1995 1996 1997 1998 1999 BAHT USS

A. Land Titling1. Aerial Photo & Production 164599.40 115294.00 9891.20 6546.80 4552.90 300884.30 11799.382. MaJor, Minor & GPS Control 49770.10 57771.20 49544.70 48928.70 48928.70 254943.40 9997.783. Printing 16626.00 849.00 849.00 849.00 849.00 20022.00 785.184. Computing & Map Transformn 4020.90 12390.90 3999.40 3996.40 3990.90 28398.50 1113.675. Adjudication & NS3K Conv. 343392.80 486252.20 468896.70 470081.20 467281.20 2235904.10 87682.516. Urban Mapping 40718.00 40718.00 40583.00 35140.50 35140.50 192300.00 7541.18Sub-total 619127.20 713275.30 573764.00 565542.60 560743.20 3032452.30 118919.70

B. Improving DOL Services1. Land Registration 4251.20 6452.20 2856.20 1401.20 2851.20 17812.00 698.512. Changwat & Amphur Land Off. 98680.10 22989.40 99870.60 137017.90 57384.80 415942.80 16311.483. Map Control 630.00 720.00 810.00 900.00 900.00 3960.00 155.29Sub-total 103561.30 30161.60 103536.80 139319.10 61136.00 437714.80 17165.29

C. Strengthening DOL1. Supply Division 14514.40 7995.40 8511.60 8894.10 9381.60 49297.10 1933.222. Personnel Division 661.70 181.70 181.70 181.70 181.70 1388.50 54.453. Policy & Planning 1059.00 851.00 624.00 526.00 528.00 3588.00 140.714. Finance 1027.20 817.60 934.60 866.60 858.00 4504.00 176.635. Training Division 35990.50 14828.30 9660.90 11560.40 10935.90 82976.00 3253.966. Public Relation 2864.50 1177.50 1297.50 1702.50 1907.50 8949.50 350.967. Land Titling Project Off. 6214.90 3452.10 3569.00 3452.10 3452.10 20140.20 789.818. Information System 38793.90 44662.90 50782.20 51422.60 26871.00 212532.60 8334.619. Scholarships 9458.20 13633.20 14083.20 13033.20 13483.20 63691.00 2497.69Sub-total 110584.30 87599.70 89644.70 91639.20 67599.00 447066.90 17532.04

D. Development of CVA 56949.10 79151.30 66456.00 78903.00 102873.30 384332.70 15071.87E. Technical Assistance 35750.30 49614.70 34091.20 21578.60 18340.40 159375.20 6250.01F. Studies 0.00 3240.00 3240.00 3240.00 3240.00 12960.00 508.24

TOTAL BASEUNE COSTS 925972.20 963042.60 870732.70 900222.50 813931.90 4473901.90 175447.13Physical Contingencies 30297.90 15577.30 9979.80 13200.40 4869.50 73924.90 2899.02Price Contingences 59725.50 104334.60 141010.20 198490.60 224247.90 727808.80 28541.52

TOTAL PROJECT COSTS 1015995.60 1082954.50 1021722.70 1111913.50 1043049.30 5275635.60 206887.67Taxes 64144.30 41161.70 44059.40 51235.80 38468.70 239069.90 9375.29Foreign Exchange 364907.00 305582.90 189415.70 182049.60 153775.20 1195730.40 46891.39

Values Scaled by 1000.0

THAILANDLAND TITLING IlIl PROJECT

BAHT

SUMMARY ACCOUNTS BY YEAR

BASE COSTS FOREIGN EXCHANGE1995 1996 1997 1998 1999 TOTAL % AMOUNT

1. CAPITAL COSTSA. Buildings 107372.20 13347.00 73875.00 101628.00 30787.00 327009.20 10.00 32700.92

B. Equipment 143127.50 63820.60 40167.60 46607.90 30434.00 324157.60 85.00 275533.96

C. Vehicles 30760.00 9686.00 5849.00 6666.00 2121.00 55082.00 65.00 35803.30

D. Fumiture 10327.80 4351.90 5829.10 7479.00 3260.60 31248.40 5.00 1562.42

E. Aerial Photography 103499.40 103497.30 0.00 0.00 0.00 206996.70 70.00 144897.69

F. IS Consultant Services 11651.80 21261.00 21261.00 8560.40 6506.60 69240.80 90.00 62316.72

G. Technical Assistance 31692.70 40207.10 30273.60 18921.00 16082.80 137177.20 90.00 123459.48

H. Survey Eng. Scholarship 4300.00 4975.00 5425.00 5875.00 6325.00 26900.00 0.00 0.00

I. Valuation Scholarship 0.00 0.00 0.00 0.00 0.00 0.00 0.00 0.00

J. Valuation Degree Establ. 2000.00 7000.00 7000.00 7000.00 7000.00 30000.00 20.00 6000.00

K. Local Training 9786.80 12805.60 7793.30 9692.80 9068.30 49140.80 20.00 9829.36

L. Overseas Training 1800.00 7150.00 1560.00 400.00 0.00 10910.00 82.60 9011.66

M Studies 0.00 3240.00 3240.00 3240.00 3240.00 12960.00 0.00 0.00

TOTAL CAPITAL COSTS 456318.20 291341.50 202273.60 216070.10 114825.30 1280828.70 54.70 701115.51

II. OPERATING COSTSN. Incremental Salaries 113926.80 200720.80 215256.00 230417.70 244803.90 1005125.20 0.00 0.00

0. Per Diem 105403.60 144632.70 146225.00 147020.60 148769.20 692051.10 0.00 0.00

P. Accommodation 75056.60 98312.60 99127.70 98336.60 99257.60 470091.10 25.00 117522.78

Q. Travel Allowance 5714.40 8036.40 8036.40 8036.40 8036.40 37860.00 60.00 22716.00

R. Transportation 26396.10 26370.90 28224.50 30271.70 32504.70 143767.90 75.00 107825.93

S. Vehicle 0 & M 1320.00 1938.00 1938.00 1938.00 1938.00 9072.00 50.00 4536.00

T. Equipment 0 & M 12400.20 13400.20 13198.20 13211.20 14522.20 66732.00 80.00 53385.60

U. Survey & Mapping Material 67039.50 96502.90 95873.20 92562.50 91142.00 443120.10 8.10 35892.73

V. Other Operating Costs 60139.40 79529.20 58322.70 60100.20 55875.20 313966.70 10.00 31396.67

W Administrative Support-TA 2257.60 2257.60 2257.60- 2257.60 2257.60 11288.00 0.00 0.00

TOTAL OPERATING COSTS 469654.20 671701.30 668459.30 684152.50 699106.80 3193074.10 11.70 373589.67

TOTAL BASEUNE COSTS 925972.40 963042.80 870732.90 900222.60 813932.10 4473902.80 24.00 1073736.67

Physical Contingencies 30297.90 15577.30 9979.80 13200.40 4869.50 73924.90 45.20 33414.05

Price Contingencies 59725.50 104334.60 141010.20 198490.60 224247.90 727808.80 12.10 88064.86

TOTAL PROJECT COSTS 1015995.80 1082954.70 1021722.90 1111913.60 1043049.50 5275636.50 1195215.59

Taxes 64144.30 41161.70 44059.40 51235.80 38468.70 239069.90 0.00 0.00

Foreign Exchange 364907.00 305582.90 189415.70 182049.60 153775.20 1195730.40 100.00 1195215.59

Values Scaled by 1000.0

THALANLAND TITLNG IN PROJECT

FINANCING PLAN BY DISBURSEMENT CATEGORY

LIS$

LocalIBRD AIDAB Government TOTAL Foreign (Exdi. Duties

Amount % Amount % Amount % Amount % Exchange Taxes) & Tax.A. Buildings 14030.40 85.00 0.00 0.00 2476.00 15.00 16506.40 7.98 1562.80 13292.90 1650.60B. Equipment 9473.70 65.00 0.00 0.00 5101.20 35.00 14574.90 7.04 12368.50 475.10 1733.40C. Vehicdes 1590.30 65.00 0.00 0.00 858.30 35.00 2448.60 1.18 1590.30 0.00 856.30D. Fumiture 974.80 65.00 0.00 0.00 524.90 35.00 1499.70 0.72 71.00 1323.80 105.00E. Aerial Photography 9613.50 100.00 0.00 0.00 0.00 0.00 9613.50 4.65 6658.30 2955.10 0.00F. Local Training 0.00 0.00 0.00 0.00 2252.50 100.00 2252.50 1.09 428.40 1711.50 112.60G. Survey-Eng, Val Degree 2149.00 96.31 0.00 0.00 82.40 3.69 2231.40 1.08 235.30 1913.70 82.40H. Overseas Training 0.00 0.00 427.80 100.00 0.00 0.00 427.80 0.21 353.30 74.50 0.001. IS Consulting Services 2715.30 100.00 0.00 0.00 0.00 0.00 2715.30 1.31 2443.80 271.50 0.00J. Technical Assistance 0.00 0.00 5379.50 100.00 0.00 0.00 5379.50 2.60 4841.50 538.00 0.00K. Studies 508.20 100.00 0.00 0.00 0.00 0.00 508.20 0.25 0.00 508.20 0.00L. Incremental Staff Salary 24453.20 52.00 0.00 0.00 2257220 48.00 47025.40 22.73 0.50 47024.80 0.10M Per Diem 17071.00 52.00 0.00 0.00 15757.90 48.00 32828.90 15.87 0.00 32828.90 0.00N. Accommodation 11335.00 52.00 0.00 0.00 10463.10 48.00 21798.10 10.54 5151.40 14483.00 2163.700. Travel Allowance 875.50 52.00 0.00 0.00 808.10 48.00 1683.60 0.81 996.30 266.40 420.90P. Transportation 3311.70 52.00 0.00 0.00 3057.00 48.00 6388.70 3.08 4727.90 876.50 764.20Q. Vehicle 0 & M 212.80 51.99 0.00 0.00 196.50 48.01 409.30 0.20 198.50 169.90 40.90R. Equipment 0 & M 1533.80 52.00 0.00 0.00 1415.80 48.00 2949.60 1.43 2337.20 405.80 206.50S. Survey & Mapping Matetial 10742.50 52.00 0.00 0.00 9916.10 48.00 20658.60 9.99 1560.00 18873.70 224.80T. Other Operating Costs 7531.30 52.00 0.00 0.00 6951.90 48.00 14483.20 7.00 1368.40 12100.90 1013.80U. Admin. Support-TA 0.00 0.00 526.50 100.00 0.00 0.00 526.50 0.25 0.00 526.50 0.00

TOTALDISBURSEMENT 118122.00 57.09 6333.80 3.06 82431.90 39.84 206887.70 100.00 46891.40 150620.70 9375.20

Values Scaled by 1000.0

17nw

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ANNEX 3

THAILAND

LAND TITLING III PROJECT

Improvement in DOL Delivery

Background

1. DOL is responsible for all aspects of land registration, includingcadastral survey, mapping, land valuation and registration of private land rightsthroughout Thailand. Operations are extensive. Services are provided to thepublic in some 75 provincial and 600 land offices throughout the country staffedby approximately 8,500 of the 13,000 total staff of DOL (para. 3.2). The numberof branch land offices will increase during the project.

2. All provincial land offices have historically reported through the DOLOffice of the Secretary, which has been responsible for passing correspondenceto the appropriate head office division and communicating responses to individualrequests for information and instructions from head office divisions to theprovincial offices. Key divisions in head office that relate to the operationsof the land offices include Planning Division, Legal Affairs Division and LandRecords Division. However, there is no one division in head office that isresponsible for the land registration function. In 1992 the Director Generalassigned the overview of groups of land offices to himself and the DeputyDirectors General although the nature of this overview activity was not definedin detail. Administratively, the land office has a number of monthly reportingobligations, including MIS which is sent to the Planning Division.

3. DOL has introduced a number of initiatives that will result inimproved service delivery. In 1990 a pilot scheme to demonstrate the use ofcomputers in support of land office operations was commenced in the Phra Khanongland office. This pilot study was successfully completed in 1991/92. An aresult computer systems have been installed in other Bangkok land offices, andan IS Center is being established in headquarters to facilitate the introductionof computers in DOL. In 1992, with the assistance of AIDAB advisers, DOLestablished a Land Administration Development Team, reporting to the DeputyDirector General responsible for LTP, and charged with the task of conductingresearch into matters of land registration policy and the provision of advice tothe DG.

4. To date DOL headquarters has placed an emphasis upon adherence toregulations and the prevention of fraudulent practice while increased workloadand responsibility generated by titling processes and decentralisation policyunder LTP II remains the concern of individual land offices which are now facedwith the result of RTG plans to stem the growth of the civil service. Thedivision of responsibility for land offices among each of the Deputy DirectorsGeneral represents an effort by DOL to address government policy to improveservice to the people. However, further steps will need to be taken during theproject if land office services are to continue at a satisfactory level.

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Issues

5. In the past registration procedures have been controlled byinspectorial methods in an endeavor to maintain correctness and integrity of thecivil service. This has led to an introversive approach in land officemanagement. There are indications that the RTG policy is moving away from thisattitude and towards a policy of good service to the people through the agencyof the civil service. Present government policy also calls for a "transparent"civil service which means that departments like DOL will be required to simplifyand publish their procedures so they are comprehensible to the population.Emerging government initiatives also include reporting of interests, adoption ofan administrative appeals system and appointment of an office of ombudsman.These represent a change in emphasis that will tend to discourage self servingattitudes in the civil service and encourage, instead, attitudes of service. Insome cases the present regulations will operate to place undue emphasis uponprocedural matters and to restrict the exercise of reasonable discretion anddelegation of authority by land officials, which would result in a slowresponsiveness to RTG policy. In order to cope with additional responsibilitiesand to make timely response to RTG policy, there will be a need to reviewregulations and procedures in the land office during the project.

6. There will also be a need to conduct a planned system of land recordsmanagement. Increase in land office files under LTP I and II gave rise tostorage expansion and manpower difficulties within provincial and branch landoffices. These offices will be affected by the outcome of RTG plans to stem thegrowth of the civil service to the extent that, ultimately, it will beimpracticable for DOL to continue its present policy concerning retention ofpaper material. DOL will benefit by adopting a carefully planned recordsmanagement program aimed at reduction of the number and type of land registrationforms to be generated, reduction of paper size to universal A4 size, eradicationof duplication of record data and culling and destruction of spent file materialas outlined in para. 2.13.

7. In the past DOL records have been kept in a manner convenient todepartmental needs. Little attention has been required concerning the need forland related information by outsiders, including other government departments andagencies and the public and there has been no requirement to consider thequestion of cost recovery by DOL for the access to such information. There willbe increasing need for data exchange, data sharing and data integration betweenthe various parts of DOL and also between various RTG agencies during theproject.

8. During the project DOL will need to consider the cost effectivenessof its computer programs and as a result DOL will need to review the land law andlaw of evidence if the considerable advantages of an automated registrationsystem are to be fully realised (para. 2.14).

9. At present computing programs in land offices cover in the mainadministration functions such as calculation of fees, issuing accounts andreceipts and activity records. DOL will need to plan carefully for automationof the land register and adopt a strategy for the implementation of this planduring the project.

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Internal Service Delivery

10. In the past, DOL divisions have operated with a reasonable level ofautonomy and with little need for coordination. The commencement of LTP I andII, and their emphasis on the accelerated issuance of title deeds, has underlinedthe need for good planning and coordination between the various divisions thatsupport the processes involved in the titling program. Current RTG emphasis onimproved service delivery will increase the importance of internal coordinationand the adoption of practices that consider other divisions in the process asinternal "customers" deserving improved service.

External Service Delivery

11. DOL future services need to be based upon customer need. Issues likethe privatization of surveying that has recently been introduced will effect amarked change in emphasis upon the product and process of DOL. Adoption of theseinitiatives will influence customer demand for DOL service such as land recordsearch and warranty of information which were formerly of little significance.

12. In the past whenever it has been possible for DOL to increase landoffice staff to meet increased demand, there has been less need to adoptindicators for planning purposes. DOL will need to develop productivity measuresbased upon time spent per dealing in order to monitor productivity. The datawill need to be managed so as to achieve consistent statistical results acrossindividual land offices. Similarly, there will be a need to monitor service tothe public and to gauge how the service is actually perceived by the public.Methodologies might be developed to enable assessment of change in performanceover time. Surveys could result in major revision in DOL procedures andoperations in areas such as fee structure, notification precedures, publicinformation in registration and land adjudication matters, procedures used inregistration, layout of the land office and facilities to be provided in publicareas etc.

Initiatives

13. During the project, DOL will need to implement the followinginitiatives:

(a) Conduct an ongoing research of customer requirements(b) Simplify land registration form design and registration procedures

within DOL(c) Commence a program to rationalize DOL regulations(d) Publish DOL forms and registration procedures(e) Introduce a program to encourage customer self-help in registration

form completion and registration procedure(f) Devise a legislative scheme to indemnify land officials from legal

suit(g) Devise a legislative scheme to guarantee DOL land registration

services in favor of contracting parties(h) Adopt a mission statement concerning the status of the land register

to permit a logically phased introduction of computer technique to theland office registration function

(i) Prepare a design for automation of the land office registrationfunction

- 4 6 -

(j) Commence a legislative update program that will facilitate ultimateregister automation

14. Each of the above initiatives shall require long term deliberation.Some will benefit from acceptance testing pilot studies. Initiatives (a) to (a)inclusive require an ongoing developmental approach over periods of time.Implementation should follow an integrated approach. The initiatives should becommenced in approximately the order in which they are set out above and the planshould provide for completion of initiatives (b), (c), (h), (i) and (j) duringDec. 1998, Dec. 1995, July 1996, Dec. 1997 and Dec. 1998 respectively. Researchfor the initiatives should be conducted by special task teams staffed by personsof appropriate background and appropriate levels. Planning for mobilization ofthese teams and their co-ordination could be assisted by the Land AdministrationDevelopment Team. Team members will need to be released from normal DOL dutiesto permit their participation and some members will need to work on a full-timebasis. DOL will need to provide an appropriate budget for staff (includingsecretarial services), equipment (including P.C.) and pilot studies. Theactivities in this component would be supported by a technical adviser for thefirst four years of the project.

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ANNEX 4THAILAND

LAND TITLING III PROJECT

Human Resource Management and Development Programs

Background

1. Strengthening of DOL to better cope with fundamental technological andinstitutional changes and service delivery improvement has continuously been animportant aim of the overall land titling project. Underlying the success of LTPI and II is the critical linkage with organizational and human resource aspects.

2. Implementation of LTP I in 1985-90 focused on technologicaldevelopment, especially in rural and urban mapping, land titling, landadministration and land valuation methodologies. The PCR noted that the projectsuccessfully established a decentralized land administration capacity supportedby a cadastral framework and titling program. The education and training programunder the project produced trained personnel to sustain the wide range oftechnical skills developed. LTP II focused more on organization and managementimprovements, due to the more complex work systems, increased interdependenceamong work units, and the relatively high increase in both operational andsupport service programs in DOL.

3. Under LTP I, staff increased by about 1760 positions, with 1438, 244and 144 positions, respectively, in technical operations, land administration,and general service support functions. Under LTP II (1991-94), the total staffincrease amounted to 1217 positions, with increases of 520, 638 and 60 positionsin the corresponding areas. As a whole, LTP I and LTP II resulted in anincreased of 31% in DOL personnel.

4. In addition to the increase in staff, LTP I and LTP II alsocontributed continuously to the development of staff skills in the various DOLoperations through both overseas and local training programs in cadastraldevelopment, valuation, planning and implementation, personnel management,computer and project management. It became clear that the sustainability ofimprovements in technology, operational productivity, and organizationaldevelopment was critically dependent upon improving the quality of DOL humanresources. There was also strong support to the regular training and developmentactivities of the Training Division.

Human Resource Issues

5. The advances made by DOL in land administration and CVA development,central service support, and land office service delivery are beginning to sufferfrom inadequate human resource development support. Human resource deficienciesare clearly reflected in both human resource management and development practicesin DOL.

6. Efficient Use of Trained Personnel. The training programs under LTPI and II have produced personnel with scarce technical skills in areas like land

- 48 -

valuation and land information systems and in some specialized managerialfunctions such as personnel management, training, and project implementation.In many cases, DOL has made inadequate use of these trained staff at the end ofthe training period. Also the existing 52 career streams in DOL place morerestrictions on staff in the planning, development and advancement of theircareers. As a result, some specialist staff, especially those trained intechnical and professional fields, seek other careers with more advancement andpromotion opportunities.

7. Retention of Specialist Staff. DOL's institutional framework includesthe development of such new professional disciplines as survey engineers,valuers, computer specialists, and land information specialists. To date, dueto poor career prospects and incentives, DOL has retained only a small number ofthese specialists, the majority of whom have joined the private sector.

S. Systematic Training and Development. Coordination between thePersonnel and Training Divisions under the previous projects has been inadequate.Institutional support to these Divisions in terms of trained staff and physicalresources has also been lacking. Thus, the Training Division was unable toperform its duties effectively. has faced serious problems and constraints inperforming HRD functions. A systematic human resource training and developmentprogram which is based on the needs of DOL has not been defined.

9. Management Development. The institutional changes in DOL haverequired managers who can effectively oversee these changes in such areas ascentral technical support, general service support, and land officeadministration. However, there has been inadequate attention to theimplementation of management development programs, especially for middlemanagement level staff.

10. Development of the Training Division. The Training Division wasinitiated under LTP I and, in spite of its important role, has not reached fulleffectiveness. It has been constrained by a lack of support for a trainingpolicy in DOL, and inadequate staff skills, budgetary and physical resources.

11. Staff Redeplovment. Under the present constraint of the RTG policyto freeze manpower for the civil service, DOL must redeploy its staff in a moreeffective way to satisfy its staffing needs for its new activities. So far, DOLhas implemented the redeployment of its human resources in a narrow andunstructured way. In the long run, DOL needs to expand this redeployment programonto a more comprehensive base, involving cross-career boundaries.

12. Human Resource Management Policy. Due to the large staff and complexwork systems, improved management of DOL's human resources is a fundamental partof organizational strengthening. There are presently no clear policy directionsand guidelines to guide such functions and operations as personnel selection andplacement, reward, evaluation and development.

Human Resource Development Obiectives and Avyroach

13. Obiectives and Approach. To ensure that the institutional changes inDOL are sustainable, DOL's human resource development program should focus on themajor areas of individual, career and organizational development. It should aimat:

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(a) improving individual and corporate productivity and work standards;(b) improving and developing DOL staff quality, skills and competencies;(c) organizing pfanned efforts to promote more suitable career planning

and development in DOL; and(d) increasing morale and work motivation among DOL staff.

14. It is necessary that DOL:

(a) obtains the full support of DOL top management;(b) establishes a clear human resource development policy;(c) integrates human resource development programs within the long range

organizational plan;(d) encourages closer coordination and cooperation between related key

functions.(e) develops and maintains closer collaboration with CSC; and(f) uses external technical assistance in planning and implementing human

resource development programs, including auditing of programeffectiveness;

Development ProQrams

15. Human Resource Policy and Strategic Plan. DOL will prepare a human

resource development policy and strategic plan that reflects long range futureneeds in human resource areas. Key program activities may include: humanresource skills audit, needs assessment, training and development program design,development and planning, and program evaluation.

16. Career Planning. Development and Management. Together with CSC andwith the support of the Human Resources External Adviser, DOL will appoint ajoint training and personnel task force to review the existing career structurein DOL. A job evaluation study and management survey will be conducted tointroduce a new career pattern and identify criteria for skill requirements indifferent career ladders. The new career structure will be also be implementedand evaluated by DOL.

17. Training Program Development and Implementation. DOL will also reviewthe structure of its training programs and make necessary changes to respond toits needs for human resource development. The improved programs may cover suchareas as clerical development, technical and professional development, managementdevelopment, and organization development and change.

18. Institution Development. This program will focus on developing theTraining Division's capacity to provide improved training services for itsclients, through the development of training facilities and technologies.

19. Information System Development. As part of the Management InformationSystem, a data base on human resources will be designed to support human reourcedevelopment programs. Cooperation between Personnel and Training Divisions inthis activity will receive more emphasis.

THAILAND

LAND TITLING III PROJECT

Long Term TraininQ Program

Project Year

PrograkActivitY Official Lhiit 1 2 3 4 5 TotaL

A. Trainina Courses

Senior Land Adfin officer 7 course/person 1/40 1/40 2/80Introdcwtion to Survey 1* course/person 10/375 10/375Surveying 1-3 course/person 2/80 2/80 4/160 4/160 4/160 16/640Land TechnicaL Officer 5-6 course/person 1/40 1/40 2/80 2/80 2/80 8/320Land Right Investigator 1-4 course/person 1/40 1/40 2/80 2/80 2/80 8/320Valuation 1-5 course/person 1/40 1/40 2/80Computer 1-5 course/person 2/40 5/100 5/100 5/100 5/100 22/440Aduin Psychology Seminar 6-8 course/person 1/40 1/40 1/40 3/120Train the Trainer 5-6 course/person 2/40 2/40 4/80 4/80 4/80 16/320Introduction to Training 5-7 course/person 2/60 2/60 2/60 6/180 LnService to PubLic 1-6 course/person 15/600 15/600 30/1200 oProject and Plan 4-6 course/person 1/25 1/25 2/50Effective Tea Building 7-8 course/person 3/120 3/120 6/240Adjudication Party Superintendent 5-6 course/person 1/200 1/275 1/275 1/275 1/275 5/1300SeminarNew BLO Staff Training 1-6 course/person 4/60 4/160 4/160 4/160 4/160 20/800Orientation (for Lard Right Cert new staff 16/675Issuance Division) course/person 16/675

B. Develomient of Training StaffSocial/Developaent Research 3-7 person 2 2 2 2 2 10Recruitment of new staff 1-5 person 34 34

C. Evaluation and Monitoring time/province 5/20 5/20 10/40of Training (field work)

tD X(D X

- 51 -

ANNEX 5THAILAND

LAND TITLING III PROJECT

Information Systems DeveloDment

Background

1. Technical computing for survey control, photogrammetry, digitizing,and transformation was introduced in LTP I and is now well established.Administrative computer systems for Finance, Personnel, Training, Supply, andmanagement information, were developed in LTP II, all based on the mini computerpurchased as part of the LTP project. Also, as part of LTP II, a very successfulLIS pilot project was undertaken and further work is continuing. There has alsobeen a pilot project for matching property valuation data.

2. A separate but complementary initiative by DOL is to computerize theland office registration function by installing computers in 50 land offices.This program, which will continue under this project, will provide furtheropportunities to improve operational practices and records management in landoffices and needs to be integrated into the overall IS strategic plan.

3. Organizational arrangements have been improved by the development ofa policy framework and the creation of an executive committee and 3subcommittees. Also a new structure for Computing Division has been formulatedwhich includes 2 new subdivisions for IS management, and IS development (UserSupport). The development of computing staff has been enhanced through theprovision of AIDAB sponsored post graduate studies and short term training, andparticipation in group study tours. However, a significant issue will continueto be the lack of sufficient experienced management level staff.

4. An IS strategic plan will be developed during the final 12 months ofLTP III that will reflect the needs of the organization through the activeparticipation by DOL management.

Proiect Oblectives for IS

5. DOL's core responsibilities involve the management of several layersof land related information, and DOL will need to play a key role in sharing ofinformation with other agencies. DOL is now at a critical point in thetransition from a number of successful computerization activities to theimplementation of corporate-wide integrated information systems.

6. The scope of work for the project includes:

(a) implementation of computers in 29 land offices;(b) development of LIS systems in at least four land offices(c) creation of 1 central system for CVA, and possibly 6 regional systems;(d) acquisition of an additional mini computer to meet the growth in the

central administrative systems;(e) development of local administrative systems in land offices;(f) integration of possibly several hundred personal computers; and

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(g) building the technical infrastructure particularly in the area ofcommunications and networking.

7. It will be necessary to develop and implement appropriate policy,planning, standards, and data administration. Areas to be covered include:

(a) Policv

Determine responsibilities for Managers, Users, and Data CustodiansInformation Resource Management for Corporate Data; Storage and Back-up; Security; and PrivacySystems IntegrationProject ManagementData QualityEquipment maintenanceProvision of data to other agenciesAsset Management

(b) Planning

Applications Project PlanTechnology PlanTelecommunications PlanCapacity PlanDisaster Recovery Plan

(c) Data Administration

(d) Monitoring and Evaluation

organization and Imlementation

8. The organizational environment will be dependent on finallyestablishing the expanded Computer Division (the IS Center) which includes thenew subdivisions for IS Management and IS Development. Recruitment of staff forthese new functions is vital, and the continuing commitment of DOL executivemanagement to achieve this objective is required. The above arrangement willprovide DOL with a core group to concentrate on the policy, planning, andmanagement issues. However, there will be a lack of experience in these areas,which will be addressed by the engagement of international/local consultants toprovide expertise to develop policy, standards, plans, and strategies, and foroverall project management, and systems integration.

9. Another key success factor will be the overall coordination of budgetexpenditure so that the equipment and services being funded separately by theWorld Bank and RTG are administered as one, in line with the overall IS strategicplan. A commitment by DOL executive management is required to authorise theDirector IS Center to seek approval from the IS Executive Committee foracquisition and implementation of all IS activities throughout DOL, based on therecommendation of the consultants.

Costs under Prolect

10. The investment costs for equipment would amount to Baht 90 million

- 53 -

(approx. US$3.65 million), and Baht 70 million (approx. US$2.7 million) for

technical assistance (to be provided by international/local consultants). A

further Baht 3.5 million (approx. US$140,000) is to provide a complementaryseries of management and technical training.

Im=acts. Benefits, and Risks

11. The most significant impact will be in developing a corporate ethos,

a collegiate style management framework, policy and planning initiatives, and

implementation of an integrated technical infrastructure, which together will

provide DOL with the facilities of a modem organization. The accomplishments

in this project ensure that DOL will not only be capable of supporting RTG policy

and initiatives for information technology in Thailand, but should enable DOL tobe a model for other agencies.

12. The major area of risk is that DOL does not have sufficient numbers

of skilled staff and lack experience in policy, planning, and in the general area

of strategic management. The engagement of international consultants is vital

to ensure success of this project, as well as build partnerships and skills

transfer for future sustainability. It will also be essential that DOL obtain

independent advice and expertise during this phase from international consultants

on preparation of specifications, contract conditions, engagement and ongoing

supervision of monitoring and evaluation.

Terms of Reference of IS Consultants

13. These TORs only present the frame of activities to be provided by the

consultants, and an estimate of the scope of each individual consultant's

services is presented in the table to this annex. Detailed TORs will be prepared

by DOL, with the assistance of the IS long term adviser during project year 1.

A single firm will be selected, one already established in Bangkok or an

international which is committed to locate to the city. It would already employ

highly skilled Thai staff or would have existing or well advanced plans for jointventures or partnerships with local companies. The detailed TORs will specify

the following services to be provided during project years 2-5:

(a) procurement of hardware and software;(b) data capture;(c) development and testing of systems;(d) support to ensure the integration and compatibility of all systems and

services (administration, CVA, land offices, LIS);(e) preparation of standards and methodologies;(f) preparation of a telecommunications master plan;

(g) review of LIS progress;(h) preparation of a master plan for the phase 4 project; and

(i) training.

THAII.AN-D

LAND TITLING III PROJECT

IS Consultant Services(Baht '000)

Person months Unit Cost Costs

YRI YR2 YR3 YR4 YR5 TOTAL YR1-5 YR1 YR2 YR3 YR4 YR5 TOTAL

Project Manager 10 12 12 12 6 52 328 3289 3946 3946 3946 1973 17102

Senior Syst. Integr. 10 12 12 0 0 34 316 3162 3795 3795 0 0 10752

Land Information 5 12 12 0 0 28 278 1252 3339 3339 0 0 7931

Admin. System 5 0 0 0 0 5 278 1252 0 0 0 0 1252

Technicat Standards 5 4 0 0 0 8 278 1252 1113 0 0 0 2365 1TechnoLogy Specific. 5 8 0 0 0 13 278 1252 2226 0 0 0 3478 4,TeLecom nications 0 8 0 0 0 8 278 0 2226 0 0 0 2226

Data Administration 0 12 12 0 0 24 278 0 3339 3339 0 0 6679

MethodoLogies 0 4 0 0 0 4 278 0 1113 0 0 0 1113

Contigency Plan 0 0 8 0 0 8 278 0 0 2226 0 0 2226

Capacity PLanning 0 0 8 0 0 8 278 0 0 2226 0 0 2226

Monitoring & Evat. 0 0 8 0 0 8 278 0 0 2226 0 0 2226

Strategic Planning 0 0 0 16 0 16 278 0 0 0 4452 0 4452Auditing 0 0 0 0 16 16 278 0 0 0 0 4452 4452Secretary 10 12 12 12 6 52 13 134 160 160 160 80 696

Secretary 5 0 0 0 0 .5 12 56 0 0 0 0 56

TOTAL 11651 21261 21261 8560 6506 69240 P 0

Mm X

H w

- 55 -

ANNEX 6

THAILAND

LAND TITLING III PROJECT

Development of the Central Valuation Authority

BackQround

1. CVA was established in 1984 with the main mission to provide acomprehensive and independent property valuation service to determine impartialand timely market values as the basis for all land and property tax revenues, forequitable compensation to owners of land and property required for public

purposes, and for economic development planning throughout the Kingdom ofThailand.

2. RTG policy for CVA is to expand its capacity, proficiency andproductivity, and to create a separate, independent public body to coordinate allvaluation functions undertaken for government purposes. In accordance with theFifth, Sixth and Seventh National Economic and Social Development Plans, therehave been established a series of institutional, financial and technical policy

goals which provide the strategic plan framework for the development of an

expanded and independent valuation authority.

3. Initially, CVA was a very small organization of less than 100 peopleand very little expertise. The early focus of LTP I was in the provision ofvaluation training. This was achieved, first by awarding scholarships enablingThai students to complete undergraduate degrees in valuation overseas, and

second, by the establishment of an undergraduate diploma course in Thailand,which produces graduates for both the public and the private sectors. Later in

LTP II, the focus was on the production of a strategic plan for the developmentof CVA into an organization capable of supporting the government's valuationneeds in a rapidly developing land market economy. This project aims at the

implementation of the expansion of CVA as laid out in the strategic plan.

Constraints to CVA Development

4. Staffinn. Currently, CVA has a total staff of approximately 160people. Approximately 60 of these are used as valuers of which only 8 haveformal valuation qualifications to undergraduate degree level. In addition to

this there are approximately 44 graduates with a two year diploma from the

Bangkok Institute of Technology. The size of the jurisdiction is some 20 million

parcels which, by international standards, may be one of the larger jurisdictions

in the world. Experience from overseas jurisdictions would appear to indicate

that a staff of the order of a few thousand rather a few hundred would berequired to complete the task to a satisfactory standard.

5. Professional Training. The public sector demands a high level ofprofessional expertise if the citizens of Thailand are to receive a fair andequitable determination of compensation in land acquisition matters and a fair

and equitable basis for property taxation both recurrent and otherwise. RTGincreasingly depends on the public sector property professional to assist in

- 56 -

achieving its economic goals. The Valuers Association of Thailand (VAT) hasrecently drafted a set of international valuation standards, by which valuationsfor public purposes must comply. This has created an urgent need for a propertyprofession trained to achieve and maintain these international standards, whichcan only be attained in a sustainable manner by establishing a four yearundergraduate degree program together with a postgraduate program as part of theThai university system. Initially, these programs should be fostered withlinkages to overseas universities to help facilitate the establishment of suchprograms in a reasonable period of time.

6. Career Structures. Career structures within CVA need to be revisedin order to give the two year diploma graduates a satisfactory career structureas assistants to the degree graduate. Currently, on the completion of thecourse, a diploma graduate has little hope and no assurance of working in avaluation position as there is no valuation career structure through which toprogress. This is acting as a deterrent to DOL staff undertaking this area ofstudy in spite of scholarships being offered and hence the overall performanceof CVA.

7. Mass Appraisal. The mass appraisal function is the essentialvaluation technique to provide an updatable valuation base that is necessary forthe implementation of the Government's property tax policy. Abvout 180,000parcel valuations would be undertaken in the first year of the project (includingrevaluations), increasing to 970,000 in the final year of the project (includingrevaluations). Currently, individual parcel valuations are only carried out inthe metropolitan area of Bangkok and in some regional centers with the lessaccurate block system of valuation covering the rural areas. Revaluations areonly carried out on a four year cycle which in a dynamic land market economycauses inequities especially as there are no real quality controls in place tomonitor the situation. Modern information systems and land informationmanagement techniques need to be urgently developed to support this aspect of theprofessional valuation function.

8. Land Acguisition. A major issue with land acquisition program is thealmost total lack of professional staff to undertake this important function.On average there are approximately 10,000 valuations per year which need to beperformed and currently this can only be achieved using the value for propertytax purposes as the basis for compensation. As this value is usually well belowmarket value inequities are present which need to be addressed. Currently, thereare major infrastructure projects which are being delayed by the inability tosatisfactorily conclude the acquisition process.

9. Decentralization. Currently, all of CVA's activities are centered inBangkok. In order to increase their efficiency and effectiveness the valuationfunction should be decentralized to at least a few of the larger regionalcenters.

Proposed Prolect Activities

10. The project aims at establishing a properly managed and developedgovernment valuation system. This can make a positive contribution towardsalleviating poverty and providing government with the basic data and machineryfor implementing land reform measures. It would, therefore, support theimplementation of the five year strategic development plan prepared as part of

- 57 -

LTP II and designed to increase the capability of CVA to be more fully able toprovide a satisfactory valuation service to Government.

11. Project Investments. The project would provide US$2.75 million forthe construction of six regional offices and office equipment, vehicles, andfurniture to support the operation of the offices. Also included is the purchaseof a computer assisted mass appraisal (CAMA) system and the concomitant hardwareand software, and GIS equipment to interface with other DOL and Governmentmapping products.

12. Under the strategic plan staffinq levels would be increased from thepresent level of about 160 to over 600. This increase is based on the maximumyearly increment that can be productively absorbed into CVA's activities. A newcareer structure would be created for the diploma valuation graduates tocomplement that created for the professional valuer. This would enhance theprofessional capacity of the organization and enable the more efficient andeffective use of human resources. The project would also include furtherdevelopment of the strategic plan of CVA beyond the project to full development.

13. The project would support the development of both undergraduate andpostgraduate degree courses as part of the Thai university system. Initially,these programs would be fostered with linkages to overseas universities anddesigned to meet the urgent needs of the public and private sectors to supportand manage the ever growing land market economy.

Valuation Education and Training Costs(Baht '000)

A. Valuation SchoLarships Unit YR1 YR2 YR3 YR4 YR5 Total Unit TotalCost Cost

BIT program support p.y. 300 300 300 300 300 1500 300 1500

S.A. (4-yr) p.y. 0 5 10 15 20 50 45 2250

B.A. (2-yr dip) p.y. 0 5 10 15 20 50 45 2250

Postgraduate (1-yr) p.y. 0 5 5 5 5 20 45 900

Subtotal 300 315 325 335 345 1620 6900

B. Valuation Courses

Univ. program support p.a. - - - - - - - 1500

MateriaLs, equipment p.a. - - - - - - - 7550

Feasibility study p.a. - - - - - - - 500

Curriculun deveLopment p.a. - - - - - - - 4350

Program implementation p.a. - - - - - - 16100

Subtotal 30000

Total Costs 36900

p.y. = person year; p.a. = per annum

- 58 -

14. Emphasis would be placed on the development of data manacement expertiseessential to achieve the establishment and maintenance of a data base necessary to performa wide variety of valuation services by CVA. This would be developed in accordance withthe broader DOL IS strategy, to support:

(a) computer assisted mass appraisal techniques for revaluing, on a parcel basis,the whole country on a regular revaluation program;

(b) valuation work required for land acquisition and compensation by government andother special valuation services; and

(c) planning and land administration studies undertaken by Government.

15. Service delivery would be imvroved by decentralizing the valuation function intosix regional centers in targeted economic development areas allowing closer contact withthe clients.

Imvlementation

16. Implementation would depend on staffing and career structure requirements beingmet by Government. Staffing requirements are important not only in terms of numbers butmore particularly in terms of skills. The training of enough people with the right skillsis a factor limiting the growth of the valuation function. It would be managed and itsprogress monitored with the development of basic management information systems, whichwould be continually developed throughout the project.

17. Planning and budgeting would follow a top down approach driven by functionalrequirements of the organization instead of by middle level management perception ofresources available. This would be an important step forward and one which would greatlycontribute to the success of the project.

59 ANNEX 6Table 1

THAILAND

LAND TITLING III PROJECT

Strategic Plan for First Five-Year Phase of CVA Development

OBJECTIVES STRATEGIC ACTIONS PHYSICAL TARGETS

1. Undertake regular cycLe of (a) Complete new valuation rolls Parcels:land and property for all provinces by Jan. 1, - base mapping : 3,203,000valuations for revenue 1996 - valuation : 3,076,000purposes (b) Use CVA valuations for all - val. adjustment: 4,334,000

DOL and DOLA revenue - valuation rolls: 4,324,000purposes

(c) Increase use of massappraisal methodologies

(d) Complete plan for revisionof valuation rolls onregular cycLe

2. Implement computerized land (a) Ensure quality and security Comptete installation ofvaluation system with of data in data base computer equipment in all 6quality data and allowing (b) Ensure coordination with DOL regional officesexchange of data with other land offficessystems (c) Obtain technology services

from private sector

3. Provide valuation service (a) Ensure high quality - Special valuations of 288,000for special projects to standards parcelsGovt. and private sector (b) Improve quality of - New valuations for 470

valuations for expropriation condominium projects in Bangkokand compensation and 450 in provinces

(c) Standardize use of CVA -Adjust valuations for 680valuations for all RTG condominium projects in Bangkokpurposes and 600 in provinces

4. Create an organizational (a) Establish staffing pLan - Create organization with 615structure and obtain the (b) Provide adequate resources officialsresources necessary to for CVA as a natonal - Establish 6 regional officessustain a national authorityvaluation authority (c) Progressively establish

regional offices in areas ofeconomic development

5. Attract, develop, and (a) Establish career paths for - Complete 9.5 units of in-housemaintain a competent and goverrnent valuers training of 120 s.w. eachprofessional valuation (b) Conduct in-house training - Increase diploma staff to 90staff Cc) Establish degree valuation - Degree training to 12 diploma

courses in-country staff(d) Increase staff's - Enrol 30 staff in local degree

international exposure valuation courses- Provide 276 s.w. of overseasvaluation training- Provide 732 s.w. of Englishtraining for overseas study

6. Inform property owners, (a) Design and implement a - Provide 9 units of 130 s.w.clients and Government formal public relations of technical training and publicabout the role of a program seminarsnational valuation (b) Expand program of CVAauthority and the benefits workshops and seminarswhich flow from itsfunction.

Total Costs : Baht 715,179,100 (US$28 million equivalent)

- 60 -

ANNEX 7

THAILAND

LAND TITLING III PROJECT

Technical Assistance

Technical Assistance

1. DOL has received considerable technical assistance from AIDAB underLTP I and II. This assistance was concentrated on achieving the technicalobjectives of the projects through technology transfer and measures to improveproductivity. However, in order to consolidate and sustain the improvedtechnical capacity of DOL, further TA will be required to address theinstitutional strengthening objectives of the project. The requirements for thisphase have been identified as: project administration; human resource management;valuation; and service delivery.

2. It is recognized that the process of institutional change is a longone, and therefore TA would provide a core of long term advisers. However, inorder to ensure that DOL takes control of the process of change, the adviserswould be phased out over the last two years of the project, leaving DOL toimplement accepted strategies and recommendations with assistance from theManager TA. The composition of the adviser team and the planned phasing out ofadvisers would be subject to review after two years of project implementation toexamine achievements, future work programs, problems encountered and any changeto inputs which may be required within the approved allocation of staff months.

3. In Proiect Administration, assistance is required to ensure theeffective management and coordination of the technical assistance program, toassist DOL in overall project management and to assist DOL in liaison with otherRTG agencies, the Bank and AIDAB. In addition, this component would include astrong element of assistance in setting the strategic policy framework requiredto support the institutional changes which will be essential for the long termsustainability of the project within DOL.

4. In Human Resource ManaQement, the objective would be to assist DOL tomake the most effective and efficient use of its human resources. Assistancewould be provided to support the RTG policy of improving the level of service inthe public sector while at the same time containing present staff levels. Thedevelopment, management and effective deployment of staff will be a basic elementin implementing this policy in DOL. A key aspect of TA will be to assist DOL inthe preparation of a human resource management and development strategy.

5. In Valuation, the objective would be to assist CVA to consolidateitself as the national valuation authority. Assistance at a strategic level isrequired to undertake the expansion contained in the master plan completed underLTP II. Specific assistance is also required in the specialist areas ofcomputing and expropriation.

-6 1 -

6. In Service Delivery, the objective would be to strengthen DOL'scapacity to provide a stable and effective system of land administration toensure maximum benefit to the community as a sustained return from the project.In particular, TA would be provided to strengthen the Information Systems Center,and to assist in streamlining the system of land registration and recordsmanagement.

7. A total of 290 staff months of long and short term assistance wouldbe provided as detailed in the TORs below, and summarised in Table 1.

Training

8. Under LTP I and II, there was a substantial AIDAB funded trainingprogram of fellowships for long term training in Australia, specialized shortterm training and group study tours. Further focused training is required tosupport the change of emphasis towards the institutional strengthening objectivesof the project. To this end, long term fellowships will be provided in the areasof human resource management/development and information systems. Short termstudy tours, training and work experience in Australia will be provided to seniorDOL officials in a range of management, policy and planning areas. In addition,to support the development of an undergraduate valuation program in Thailand inconjunction with an Australian university, a masters fellowship in valuation willbe offered t the Thai university. A total of 7 person years of postgraduatetraining and 410 person weeks of short term training and group study tours wouldbe financed by AIDAB. Other training will be funded directly by RTG and the Bankloan; this is shown in Table 3 for specialized short courses conducted by theTraining Division of DOL. In addition 40 scholarships per year will be fundedunder the Bank loan for studies in Survey Engineering at Chulalongkorn Universityand 30 awards per year will be provided for DOL staff to undertake a Diploma inValuation at the Bangkok Institute of Technology (BIT).Administrative Support

9. Provision is made for administrative support and would include thefollowing as required:

(a) communications;(b) local staff(secretarial, translation etc.);(c) equipment (word processors, fax, photocopier)(d) project related travel;(e) seminars and promotion; and(f) printing and stationery.

10. In summary, the indicative budget for TA, training and administrationin phase III is as follows:

Technical Assistance: 5,380,000Training 455,000Administration 415,000

Total US$6.250.000

Note: the budget is presented in US dollars and using exchange rates ofAUD1.00 = Baht 17.85 and AUD1.00 = US$0.70. This equivalent of the actual amount

- 62 -

(AUD 7.2 million) will depend on prevailing exchange rates and the contractnegotiated in AUD between AIDAB and the successful tenderer.

Terms of Reference for Consultants

(a) Proiect Administration ComDonent

11. Director, Technical Assistance (12 staff months) . The consultantshould have an appropriate tertiary qualification and substantial managementexperience in the direction of large projects involving high levels of planningand coordination. Familiarity with World Bank and AIDAB procedures is desirableand an awareness of the cultural environment of the project is essential. Theposition is Australia based and part-time over the duration of the project. Bi-annual project visits would be undertaken. The main responsibilities would be:

(a) direction and overall management of all advisers and coordination ofinput from the various consultants and government departments inAustralia;

(b) assisting the Manager (Technical Assistance) with Project management,including planning, coordination, monitoring and evaluation;

(c) financial management and reporting to AIDAB;(d) management of the AIDAB funded training program; and(e) liaison with DOL, other RTG agencies, AIDAB and the World Bank.

12. Manager. Technical Assistance (60 staff months). The consultantshould have an appropriate tertiary qualification and substantial directexperience in the management of a large multi disciplinary project. Team andrelationship building skills and an understanding of the cultural environment ofthe project is essential. Familiarity with AIDAB and World Bank operations andreporting practices would be desirable. The main responsibilities would be :

(a) management of the adviser team and all other aspects of the technicalassistance program;

(b) assisting DOL in overall strategic planning and project management;(c) assisting DOL in the implementation of organizational and procedural

changes and strategies recommended by project advisers;(d) coordination of in-country and overseas training;(e) preparation of project reports; and(f) liaison with other RTG agencies, AIDAB and the World Bank.

13. Systematic Land Adiudication Specialist (6 months in PY1, followed by2 months in PY2). This specialist would have a degree in surveying, land law orother land related discipline, and have at least 10 years experience in thesupport of land administration systems, with particular experience in thesystematic adjudication and registration of rights in land. The specialist shouldhave international experience, preferably in countries in South East Asia anddesirably in Thailand. Also the specialist should have analyzed large complexadjudication and registration systems, particularly where the register isdistributed rather than centralized. The main responsibilities would be to:

(a) working closely with the Land Document Division, review theadjudication, survey, mapping, title production and distributionprocedures and, as a result of this review, develop options to stream-

- 63 -

line each key of the procedures. This review would consider thefactors that must be addressed in implementing the various options,including technical, legal, regulatory, human resource, organizationalplanning/coordination and administrative, and should provide estimatesof costs and benefits.

(b) on the basis of the review mentioned in (a), make recommendations toDOL for improvements to the system, categorizing the recommendationsinto short term, medium and long term measures supported by apreliminary implementation plan.

(c) assist DOL in reviewing the recommendations and developing a fullimplementation plan.

(d) during a subsequent two month assignment in Thailand, assist DOL inreviewing the status of the work being undertaken under theimplementation plan prepared in (c).

(b) Human Resource Management Component

14. Human Resource Management Adviser (42 staff months). The consultantshould have appropriate tertiary qualifications and considerable consultingexperience at senior level in human resource management and development in alarge public sector agency. An in-depth understanding of the Thai public sector,and ability to coordinate with the relevant RTG policy making agencies andprograms is essential. The main responsibilities would be:

(a) in close cooperation with the Civil Service Commission, assisting DOLin the preparation of a human resource management and developmentstrategic plan;

(b) advising DOL on HR issues resulting from the impact of reorganization,organizational innovations and changes,and manpower redeployment;

(c) in close cooperation with the Civil Service Commission, assisting DOLin establishing appropriate staff development plans and career pathsin DOL;

(d) through the Training Division, assisting DOL in formulating andimplementing management development programs to improve bothheadquarters and provincial administrative and managerialcapabilities;

(e) assisting the Personnel Division in identifying a HR data base anddeveloping HRM information in the MIS framework in DOL; and

(f) providing appropriate advice and technical inputs related to HR issuesin other areas in the technical assistance program.

(c) Valuation Component

15. Principal Valuation Adviser (60 staff months). The advisor should haveappropriate tertiary qualifications and preferably ten years experience at seniormanagement level. Eligibility for corporate membership of a recognizedprofessional valuation institute is desirable. Cultural awareness and ademonstrated ability to implement change within a large public sector valuationorganization is essential and have desirably The main responsibilities include:

(a) assist in the organizational development of the Central ValuationAuthority (CVA);

(b) help facilitate and implement strategic planning objectives of theCVA;

- 64 -

(c) advise on the facilitation of links between an Australian universityand a Thai university for the development of a tertiary valuationprogram as part of the Thai university system;

(d) assist in identifying areas requiring additional assistance and in theprocurement of appropriate consultancy support;

(e) provide advice on valuation systems and expropriation matters asrequired;

(f) generally assist CVA in liaison with the private sector and in thedevelopment of the valuation industry.

16. Valuation Systems Adviser (12 staff months). The adviser should haveappropriate tertiary qualifications, eligibility for corporate membership of arecognized professional valuation institute, and have a demonstrated ability andexperience in designing and implementing computer based valuation systems as partof an overall land information system. The main responsibilities include:

(a) assist CVA in establishing the data base and information systemsnecessary to support all the valuation functions required bygovernment as part of the governments overall land informationsystems.

(b) assist CVA in establishing appropriate computer assisted massappraisal systems.

(c) assist CVA in its liaison with the IS centre and itsnational/international consultants.

17. Valuation Expropriation Adviser (18 staff months). The adviser shouldhave appropriate tertiary qualifications, eligibility for corporate membershipof a recognized professional valuation institute, and a minimum of five yearsexperience in expropriation procedures, legislation and information systems. Themain areas of responsibility include:

(a) advise on land expropriation valuation principles and practice thatwould be appropriate for Thai circumstances.

(b) advice on systems and procedures, both within the office and betweenthe office and its various clients.

(c) advise on data administration issues that will help establish theexpropriation function as part of the government's overall landinformation system.

(d) advise on training matters , both external and internal.(e) advise on legislative matters.

(d) Service Delivery Component

18. Information Resource Adviser (36 staff months) . The consultant shouldhave appropriate tertiary qualifications and work experience in informationresource management at a senior management level within a large organisation,preferably a land related agency in the public sector. The main responsibilitieswould be :

(a) assisting DOL in the organisational change process from technicalcomputing to information resource management;

(b) assisting in implementing the IS Strategic Plan and in selection ofnational/international consultants who will be responsible for

65 -

preparing strategies, plans and policies, to ensure total integrationand compatibility of all IS systems and services across DOL.

(c) providing direct support to the Director, Information System (IS)Centre, particularly in the areas of policy development andinformation management and in supervising the national/internationalconsultants;

(d) assisting in evaluating progress and in identifying areas requiringadditional assistance; and

(e) closely cooperating with the adviser team with special emphasis on ISstaffing and training matters.

19. Land ReQistration System Adviser (42 staff months) . The consultantshould have tertiary qualifications in business studies, law or other appropriatedisciplines with considerable experience in land registration practice andrecords management techniques, a demonstrated ability to implement change withina large traditionally oriented organization, an aptitude for the conduct ofcomparative legal studies and a sympathetic awareness concerning Asian culturalattitudes. The main responsibilities would be:

(a) fostering an ongoing review of land office forms and procedures;(b) assisting in preparation of a uniform and simplified system of land

registration and records management and where necessary advising onthe requirement for primary and secondary legislative reform toachieve this goal;

(c) providing assistance to and working in close cooperation with the DOLLand Administration Development Team;

(d) assisting in training and guiding DOL staff in new practice andprocedure; and

(e) closely cooperating with other advisers in identifying areas requiringfurther assistance and assisting DOL in the procurement of appropriateconsultancy support.

- 66 - ANNEX 7

Table 1

THAILAND

LAND TITLING III PROJECT

Technical Assistance

YEAR

COMPONENT ACTIVITY HONTHS 1 2 3 4 5

PROJECT ADMINISTRATIONDirector, Technical Assistance 12 2.4 2.4 2.4 2.4 2.4Manager, Technical Assistance 60 12.0 12.0 12.0 12.0 12.0Syst. Land Adjudic. Specialist 8 6.0 2.0 - - -

Subtotal 80 20.4 16.4 14.4 14.4 14.4

HUMAN RESOURCESHuman Resources Development 42 12 12 12 6 -

Subtotal 42 12 12 12 6 -

VALUATIONStrategic Valuation 60 12 12 12 12 12Information System 12 - 12 - - -Expropriation Specialist 18 12 6 - - -

Subtotal 90 24 30 12 12 12

SERVICE DELIVERYInform. Resources Management 36 12 12 12 - -Land Registration 42 12 12 12 6 -

Subtotal 78 24 24 24 6 -

TOTAL 290 80.4 82.4 62.4 38.4 26.4

- 67 -

ANNEX 8

THAILAND

LAND TITLING III PROJECT

Environmental Analysis

Environmental Baseline Data

1. DOL has engaged the Center for Applied Economics Research, Faculty ofEconomics, Kasetsart University (KU), to collect socio-economic baseline data,conduct periodic benchmark surveys, and to undertake data analysis to determinethe impact of the Land Titling Projects. KU collected baseline data at asampling of villages in project areas and in control areas in northern andnortheastern Thailand in 1987, prior to issuance of land title deeds under LTPI. This data is comprehensive as it relates to social and economic factorslinked to land tenure and land use. Only a portion of the data is relevant,however, for measuring environmental impacts of the granting of land title deedsto farmers.

2. KU conducted the first benchmark survey in 1992 in provinces coveredby the project, and in control areas or non-project provinces, in both northernand northeastern Thailand. A socio-economic benchmark study (December 1992) wasprepared on the findings of the survey. The principal objective of the study wasto "assess the impacts of the Land Titling Project on the recipients of securedland titles. Primary data was collected in Chiangmai province as representativeof provinces in the project area in the north, and Lampang province asrepresentative of provinces in the control or non-project area in the north. Inthe northeast, Buriram was selected as the province in the project area, and Roi-Et as the non-project or control area. The KU study analyzed the impacts of theissuance of land title deeds on agricultural credit, investment, productivity,land price, and social organization.1 A socio-economic baseline survey wouldbe conducted under LTP II in the eastern region of central Thailand, in provinceswith more urban development and in which portions of the LTP III would beimplemented.

Maior Gavs in Existing Data

3. The existing socio-economic baseline data for both project and non-project areas in the north and northeast is sufficient to enable preparation ofsubsequent socio-economic benchmark studies. Data is lacking however, forprovinces in central (eastern and western) and southern Thailand, where nobaseline survey work has been undertaken against which socio-economic impact canbe measured. A baseline survey is scheduled by DOL for east central Thailandduring 1994. Also, baseline data on environmental indicators (identified below)will be necessary in all regions. This will require returning to project and

Center for Applied Economics Research, Faculty of Economics andBusiness Administration, Kasetsart University, Socio-EconomicEvaluation of the Land Titling Project, Final Report (Bangkok:Department of Lands, Ministry of Interior, 1992), p. 3.

- 68 -

non-project provinces in northern and northeastern Thailand (originally surveyedin 1986), as well as modifying the questionnaire to be used in central andsouthern Thailand, to include a survey of selected environmental factors thatwill be used to measure environmental impact of granting land title deeds.Sampling should be modified and/or expanded to include data collection in thefollowing areas:

- close to forested areas (to determine encroachment and deforestation)and upland areas (to determine soil erosion, crop diversification, andvegetative cover)

- adjacent to streams and rivers (to determine level of siltation anddestruction of water course buffer zone)

- coastal areas (to determine encroachment into mangrove forests andbeaches)

4. Additional data should be collected related to the following:

- on-farm use of organic and inorganic soil additives- conversion of lands for livestock ranches and pasture- occurrence of soil salinity

Areas at Risk of Being Impacted

5. Coastal Lands. As the land titling program expands to provinces withsea coasts in central, eastern, and southern Thailand, coastal lands may be atincreased risk of being impacted by the granting of land titles. In manylocations along Thailand's coasts, sandy beaches have been encroached anddegraded through construction of ponds for shrimp and other aquacultureproduction. Lack of a timely program to register land occupants and issue landtitle deeds will be addressed and corrected through LTP III. As land titling hasnot yet operated in coastal areas, the impact of issuing land title deed on landsadjacent to these areas is not seen as a serious problem.

6. Forest Lands. The clear demarcation of forest lands by RFD is anindirect positive environmental benefit derived from the land titling projects.Most forest lands in Thailand have been demarcated only on 1:50,000 scale maps,but not on the ground. Due to this situation, DOL has taken the positive actionof refusing to issue land title deeds to occupants of private lands adjacent todesignated national forest reserves, national parks, and wildlife sanctuaries.DOL has remained a safe one-half kilometer away from the boundary of forest landsand by being over-cautious, has not issued to legitimate land owners title deedsto which they are entitled.

7. Through LTP III, DOL, RFD, and LDD have agreed to work together tohave RFD carry out ground demarcation of forest boundaries on the ground,allowing DOL to issue land title deeds up to the official demarcation line of thedeclared forest area. Granting of secure title up to demarcated forestboundaries may result in increased encroachment on to forest lands. In the past,forest boundary markers were sometimes moved by land owners to increase the sizeof private holdings at the expense of state forest lands. Land clearing,logging, and expansion of crop production usually followed, resulting inpermanent loss of forest cover. The secure knowledge that, after fielddemarcation of forest boundary lines secured by boundary stones with coordinatesclearly identified on UTM maps, DOL will not issue title deeds to parcels beyondthese boundary lines will be a strong discentive to further forest encroachment.Modern surveying techniques to precisely define these boundary lines would be a

- 69 -

powerful tool under the project.

8. Steep Sloped Lands. Based on a Thai Cabinet resolution of December3, 1985, land with a slope greater than 35Z is forest land and cannot be issuedwith a land title deed. DOL has been diligent in following this Cabinetdirective in its accelerated program of granting secure title to land holders.Continuation of this practice in LTP III is a positive step and will beenvironmentally beneficial overall. LDD reported that DOL has requested itsassistance on several occasions to determine if individual parcels of land wereeligible for title. While LDD would not examine individual pieces of privatelyclaimed property, it would agree to evaluate an area of several squarekilometers, covering numerous parcels of land. Providing a technical opinion onindividual parcels of land placed LDD's personnel in danger from incriminationby locally influential persons. Several constraints were pointed out by LDD inbeing able to provide this service to DOL, specifically:

- Due to the geography of northern and southern Thailand, LDD is facedwith hill and mountainous areas that consist of slope complexes.Although one portion of a slope complex may have a slope of greaterthan 35%, a portion just above or below it may be flat. When LDDevaluates an area, it reports to DOL the percentage of an area thathas a slope greater than 35%, and indicates on a map of 1:50,000 scalethe area that is affected. If an individual's land has a small areathat has a slope greater than 35%, DOL will issue a title deed for theportion of the parcel that has a slope less than 35 percent, but notfor the area with a slope greater than 35%. If an individual's landhas a large area with a slope greater than 35Z, DOL will not issue atitle deed for the small portion of the parcel that has a slope lessthan 35Z.

- DOL provides aerial photos to LDD to analyze regarding slope but thephotos are dated. Maps provided by DOL have a scale of 1:50,000 whichhas to be expanded by LDD to a scale of 1:4,000 for accurate slopeanalysis; this expansion causes maps to be distorted and analysis tobe incorrect.

Environmental Impacts

9. Overall, the project on the physical environment would be insignifi-cant. The findings of KU's 1992 socio-economic evaluation indicate that issuingof land title deeds to farmers has had a positive impact on land and soilmanagement, and therefore on the environment in general. Farmers have begun toinvest in their land, knowing that their title is secure. Also, as their landis now a "tradeable" asset, farmers realize that any investment in land improve-ments can be recovered should the land be sold. This positive change in land usebehavior and attitude is seen as important environmental enhancements.

10. The intensification and diversification of agriculture, incentivizedby the granting of land titles, likely will have an impact on local environmentalconditions. Capital investment in infrastructure (irrigation and drainage works,improvements to minimize soil erosion, fish pond construction, etc.) generallywill have a positive impact and lead to use of more advanced and environmentallyfriendly farm management practices.

- 70 -

11. Negative impacts on the environment may result, however, if farmersdo not adopt improved crop production technologies, or if those technologies arenot effectively transferred through agricultural extension systems. Mismanage-ment of irrigation water and lack of sufficient drainage in irrigation systemscan lead to increased soil salinity; expansion of crop production to uplands andsloped areas can lead to increased soil erosion and siltation of streams;increased use of pesticides and soil additives may cause contamination of waterand soils; and, a concentration of fish ponds can compound salinity problems.

Indicators to be Monitored

12. The socio-economic surveys conducted by KU in 1987 and 1992 coveredmany factors that can be used to analyze the environmental impact of the LandTitling Project. The 1992 evaluation report points out that: "...possession ofland title will lead to greater security in land holding, and this will inducefarmers to invest in order to raise their incomes through more efficient use oftheir land resources." The relevant factors that are already being monitoredthat can be used as measures of efficient land use as well as of environmentalimpact include the following:

- Expansion of land area for agriculture production: increased landpurchases by farmers; size of average holding

- Land improvements: removal of stumps and roots, and land levelling- Investment in capital assets: machinery, tools, materials, livestock- Use of agricultural inputs (chemicals, soil additives, labor)- Crop yields and efficiency of production- Land use intensity; changes in cropping patterns; new crops- Land prices- Changes in migration and occupational structures and diversity

Relationships between Indicators and Environmental Protection Obiectives

13. KU's 1992 report on the "Socio-Economic Evaluation of the Land TitlingProject" show the following impacts of the Land Titling Project:

- Expansion in area cultivated. Farmers increased their borrowing topurchase additional land for cultivation, with the number of farmersexpanding their land area in project areas significantly higher thanin non-project areas. This is likely a result of the security oftitle on any land purchased, the farmers' ability to access institu-tional credit to expand production, and their change of attitude fromshort-term to long-term perspective, with a willingness to moresustainably manage their land holdings as a result of having securetitle. Increased land purchases by good land stewards is a trend thatenhances environmental protection.

- Land improvements. The removal of tree stumps and roots, landlevelling, and construction of wells for irrigation, have increasedsignificantly in project areas. Land levelling, which allows for moreefficient management of irrigation water and increased rice yields,increased 770% in project areas in northeast Thailand, but only 2072in non-project areas of the same region. These types of improvementsare seen as enhancing the environment and making more efficient useof land resources.

- Increased investment in Production assets. Investment in production

- 71 -

assets includes expenditures on farm tools and machinery. The projectimpact in the northeast is not yet clear, but farmers in the north areinvesting more in capital assets (67%) than those in non-project areas(42%). The principal item in which capital was invested was the two-wheeled tractors and trailers to carry produce. The tractors aremulti-functional, being used for ploughing, (the engines) for pumpingwater for irrigation, and for transporting agricultural commodities.The use of such tractors to improve land preparation techniques isseen as a positive environmental trend, in that less chemicalfertilizer will be required to sustain yields.

Increased use of farm inputs, specifically seeds, pesticides, andchemical fertilizer. The study found that investment in agriculturalinputs is higher among farmers in project areas than in non-projectareas. The amount of cash used to purchase agricultural inputs in thenortheast decreased less (31%) than in the non-project areas (33%).A similar situation was reported in northern Thailand, with less ofa decrease in project areas (25%) than in non-project areas (60%).The use of inputs decreased in general during 1992, as a result ofunusually dry weather, leading to generally lower farm production.The lower decrease in investment in farm inputs in project areas isindicative of more concern by the farmer in the maintenance ofsustainable yields. Farmers are more willing to invest in land thathas secure title, knowing that such investments will improve the soilsfrom which he and his progeny will benefit.

-Increased yield and value of farm production. The study found thatprovision of land titles contributes significantly to an increase inthe total value of all crops produced, measured in terms of net incomeand rice yield per rai. The value of agricultural yield of all cropsproduced in project areas in the northeast increased by 248%, whilethe increase in non-project areas was 71%. Similar results werereported for project and non-project areas of northern Thailand, butdifferences were smaller for northeast Thailand. These results areindicative of farmers' willingness to invest in agricultural inputsto maintain production levels. An expansion of the socio-economicsurvey should examine more environmentally positive technicalpractices such as the use of organic soil additives, and the operationof integrated pest management techniques.

Farm income. Although the KU report indicates that project effectson income are not yet clear, land titling is expected to affect onlyfarm income directly. Thus, the impact will be more significant ifincome derived from on-farm sources is a higher proportion of ahousehold's total income. In northern Thailand, the project is havinga significant effect on farm incomes, as farm income from cropsdecreased by only 15% in project areas, but decreased by 47% in non-project areas during 1992, a year of unusually dry weather in northernThailand.

The report further indicates that the provision of title contributesto a decline in poverty. The report states that in the project areasof both the north and northeast, the number of households declined inall income groups of less than B 12,000 per year, while the number ofhouseholds with incomes greater than B 12,000 annually rose. In non-project areas, the study reports that the number of households atlowest income levels increased, while the number of households in thehighest income groups also increased. This shows that the LandTitling Project not only contributes to increasing income levels, but

- 72 -

tends to decrease income differentials.

Factors related to reducing the incidence of poverty are important inthe still heavily forested northern region. Farmers who can expectto earn increased on-farm income will not find it necessary to selltheir labor for logging and/or poaching in national forest reservesand protected areas. The result should be a decreased dependence onincome from forest resources and a reduction of deforestation.

Decrease in average land holding size. The study points out thataverage land holding size in project areas decreased, likely from thedivision of holdings among family members when title deeds are issuedthrough the project. The average houseplot size in the northeastproject area decreased by more than 302, and 25Z in the north. Nosimilar significant changes in land holding size had occurred in non-project areas. The reduced size of land holding may enhance theenvironment as labor input will be more intense on smaller plots, thusensuring maximum attention is given to maximizing output from theplot, while sustaining agriculture production.

Farm production systems. At the time the most recent KU benchmarksurvey was carried out (1992), the land titling project had notaffected cropping patterns, not induced the introduction of new crops,nor had any impact on land use intensity. These factors should bemonitored carefully in the future as they have the potential to impactsignificantly on the environment. A change in cropping patterns tocrops that require high levels of pesticides (e.g., cotton); or theintroduction of new crops (e.g., Eucalyptus spp.); or, more intenseuse of land (as a result of investment in irrigation works), have thepotential of introducing factors that may have environmental impacts.

Changes in farm technoloxv. According to the KU report, changes intechnology are attributable indirectly to implementation of the landtitling project. Adoption of new technologies, such as use ofimproved rice seed, two-wheel tractors, fertilizer and chemicalinputs, is a result of the granting of land title deeds, that are thenused to obtain institutional credit, which is mobilized to invest inthese technical changes. Such technical changes should be monitoredcarefully in the future as they have the potential to impact signifi-cantly on the environment. The use of more advanced technology thatresults in increased farm income will be a positive factor that willenhance the environment, although any significant increase in the useof chemical fertilizer and pesticides will likely have a negativeimpact on environmental conditions.

Structure of occupations. The analysis found that there was no changein basic occupational structure in either project or non-project areasin both the north and northeast. Farming is mostly a wet seasonoccupation, while off-farm employment in urban areas continues to bethe principal source of dry season income. Less migration is evidentin the north, where crop production continues the year-round onirrigated farm land. Monitoring of rural occupations in project areasis necessary to determine off-farm income opportunities that mayimpact on the environment. of particular interest is the establish-ment of agro-industrial facilities in rural areas that may result inwaste management and environmental pollution problems, as well as theexpansion of plantation crops for processing.

- 73 -

- Wealth of farmers. The KU report indicates that the project may becontributing to the creation of social stratification in projectareas. The survey data indicates a significant increase in the wealthof farmers who have sold their lands. Although they likely would havesold their land anyway, they were able to sell some or all of theirland at a better price as a result of gaining secure title. Thisgroup of wealthy farmers should be monitored to determine if theyevolve into locally influential persons who may engage poor farmersto undertake illegal destruction of forest resources.

Opportunities for Environmental Enhancement

14. Implementation of LTP III will lead to several opportunities forenhancing the environment where land title deeds are issued to farmers. Theseinclude, but are not limited to the following:

- Protection of forest areas. No land title deeds will be issued forparcels that encroach on forest lands. DOL insists that forest landsadjacent to private lands must be definitively demarcated prior to theissuance of any land documents to the privately held parcel. DOL hasproceeded to define an arrangement to support RFD through the project,to accelerate the demarcation process, specifically around nationalforest reserves and protected areas that are adjacent to privatelands. The inducement seen here is that potential encroachers willhesitate to invest in land expansion and clearing activities, knowingthat they will never have an opportunity to gain title to the en-croached land. This is an environmental enhancement.

- Protection of sloped areas: No land title deeds will be issued forparcels or portions of parcels that are occupy land that has a slopeof 35% or greater. DOL required that LDD prepare a detailed analysisof any slope complex area to ensure that the 35% directive is upheld.This procedure contributes to environmental enhancement.

- Development of land use codes and local zonint ordinances. Theacceleration of issuance of land title deeds for lands adjacent toprotected forest areas, coastal resource areas, and steep sloped landswill likely lead to the need to develop land use codes. These codescan be enacted by Parliament, the Cabinet, or through regulationsprepared and enforced by the Ministry of Interior. Local zoningordinances currently can be issued by district officers (Ministry ofInterior officials), but will in the future likely be instituted bylocal sub-district councils (the lowest level legislative body inThailand), as these councils are strengthened. The issuance of landtitle deeds will facilitate enforcement of such codes and ordinances,as registration of land owners has been regularized.

Analysis of Alternatives

15. Without Proiect Scenario. In the without project situation, it islikely that the following conditions would arise in terms of impacts on theenvironment:

- Forest lands adjacent to private lands likely would be encroached,resulting in forest destruction.

- Steep sloped lands (slope greater than 35%) likely would be degradedand vegetative cover and watersheds destroyed, resulting in serioussoil erosion, increased silting up of streams and rivers, and changes

- 74 -

in hydrology patterns.

- Farmers would invest less in their land, making farming activitiesless productive and generating less on-farm income. This would leadto increased poverty and likely an increased dependency on naturalforest resources.

- Registration and legalization of private land holdings would bedelayed, resulting in additional delays in the lack of understandingof the need for land use management through land use codes and localzoning ordinances.

Proiect Environmental Monitoring Activities

16. Soclo-Economic and Environmental Impact Studies. The monitoring planproposed for measuring the environmental impact of the LTP III has requiredmodification and expansion of the socio-economic survey work and evaluationstudies currently operating through the Land Titling II Project. The terms ofreference for Kasetsart University have been modified to include references tomonitoring and evaluating data that will indicate the environmental impact ofissuing land title deeds to private land holders. KU will expand its question-naire to include questions related to factors related to monitoring environmentalimpact. It will also be required to provide the services of an environmentaleconomist to analyze the data from an appropriate perspective.

17. The monitoring of factors indicative of environmental impact would beundertaken at the same time that the socio-economic surveys are being conducted.Additional costs would be incurred through the addition of an environmentaleconomist; the need to return to northern and northeastern provinces to collectbaseline environmental data; and, the need for survey teams to spend slightlylonger time collecting data in the field as a result of the addition of specificquestions related to environmental factors. The monitoring objectives would beto:

- Determine the impact on environmental conditions of issuing titledeeds for lands adjacent to urban areas

- Identify trends in changes of land use- Identify changes in social and economic conditions that were not

predicted- Identify and measure direct and indirect benefits from land titling

18. Monitoring of Titling Operations in Forest and Watershed Areas. Underthe regular project activity for ground survey and demarcation of forestboundaries, RFD and LDD will submit six-monthly reports to DOL on theseactivities. The reports will include information on progress of these activitiesand on the impact of titling operations on parcels inside and outside of forestand watershed boundaries.

- 75 -ANNEX 9

THAILAND

LAND TITLING III PROJECT

Key Performance Indicators (1995 through 1999)

Unit Year

1 2 3 4 5 Total

(a) Rural Mapping

AeriaL Photography sq km 33,540 61,240 - - - 94,780(ruraL & urban)Photomap Production mapsheets 5,200 5,200 5,300 5,400 5,450 26,550(ruraL maps)

(b) Urban Mapping mapsheets 650 850 900 910 920 4,230

(c) Land Titling

Ground Survey parcels 252,000 408,000 408,000 408,000 408,000 1,884,000Photo-Adjudication parcels 96,000 115,200 115,200 115,200 115,200 556,800NS3K Conversion parcels 192,000 192,000 192,000 192,000 192,000 960,000

Total 540.000 715.200 715.,200 715200 715.200 3.400.800

:S4 Transformation parcels 463,500 309,500 307,300 319,000 272,300 1,671,600NS3K Transformation parcels 145,000 148,000 148,000 148,000 148,000 737,000

Total parcels 608.500 457.500 455.300 467.000 420.300 2.408.600

(d) Land Administration

New Branch LOs units 5 - 4 6 1 16Expansion LOs units 15 5 16 20 9 65New Strong Rooms units 17 4 17 22 7 67Staff Houses units 51 12 51 66 21 201

(e) Valuation

New Regional Offjces units - 1 1 2 2 6Trained Valuers / staff 50 0 30 35 40 155Valuations parceLs 545,000 584,000 557,000 880,000 1,087,000 3,653,000

(f) Staffing units

New Adjudication Teams staff yrs - 690 - - - 690New CVA Staff staff yrs 65 81 128 143 157 574

(g) Technical Assistance

Long Term Advisers staff mns 60.0 60.0 60.0 36.0 24.0 240.0Short Term Advisers staff mns 20.4 22.4 2.4 2.4 2.4 50.0

TotaL 80.4 80.4 62.4 38.4 26.4 290.0

th) Training

Long Term staff/mns - 5/72 1/12 - - 6/84Short Term staff/mns 17/33 30/57.5 13/9.5 15/12.5 10/5 85/117.5

1/ t of new Diploma/Degree Graduates per year

- 76 -

ANNEX 10

THAILAND

LAND TITLING III PROJECT

Estimated Schedule of Loan Disbursements

IBRD Fiscal Year Cumulative Disbursements Proiects Disbursements (S)and Semester (US$M) (Z) LTP II a/ Thailand

FY95 1 - - 4 02 5.9 5 12 2

FY96 1 24.8 21 22 52 30.7 26 30 9

FY97 1 43.7 37 38 152 54.3 46 46 24

FY98 1 66.1 56 60 322 77.9 66 98 b/ 41

FY99 1 89.8 76 100 b/ 502 101.6 86 - 58

FY00 1 112.2 95 692 118.1 100 78 c/

a/ Actual for Loan 3254-TH (Land Titling II Project)b/ Estimatedc/ Full disbursement in 8 years

Thailand: Land Titling III ProjectProject Implementation Schedule

1994 1995 1996 1997 1998 1999 20

ID Start Finish Ql I Q2 I Q3 I Q4 Ql 22 |13 I Q4 Ql 1 Q2 I Q3 I Q4 Ql I Q2 I Q3 I Q4 Ql 2Q2 Q3 Q4

1 Project Prepartion 4/1/94 10/1/94

2 loan Effediverms 10/3/94 10/3194

3 AeFidlPhoto Procuremnt 4/1/94 12/2/94 Aerida Photo P ruent

4 Specify Area 4/1/94 4/1/94 * Completed

5 Specifications 4/1/94 4/1/94 Comnpleted

6 WB Approval 4/1/94 5/3/94

7 DG Approval 5/3/94 5/24/94

8 Bids 5/24/94 8/23/94

9 Select Supplier 8/3/94 9/20/94 I

10 WB Approval 10/3/94 1 1/294

I I MOI Approval 8/23/94 10/4/94

12 Prqare contract 10/4/94 10/25/94

13 Issue Contract I 1/2/94 12/294

14 Acrial Photo Flying 125/94 4/5/95

15 Aerial Trimgulation 5/3/94 91/94

16 Changwat Implentation 10/3/94 12/3/97 i Changwat Implementation

17 Nakhon Sawan Province 10/3/94 12/3/97 1_ Nakhon SawanNahnSwnProvinc

I1 Changwat Activities 10/3/94 12/3/97 Changwat Activities

19 Photo Map Production 4/5/95 126/95

20 Foreat Bounday Reaohin 12/6/95 3/6/96

21 Urban 12/6/95 7/5196 |Uron

22 Documet Search 12/6/95 1/5/96

23 Field Surny I/396 4/5/96

24 Survny Pb 4/3/96 6/5/.6

25 Map Pard Inda 653/96 7/5/96

12/Rural (NS4) IV6/95 12/3/97 . | . _ Rural (NS4)

27 NS4 Transfonnalion 12V6/95 12/3/97

28 RurW (NS3K) 12/695 U1u97

3/8/94 Page 1

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- 81 -

ANNEX 12

THAILAND

LAND TITLING III PROJECT

Supervision Schedule

ProjectYear Date Duration Skills Area of Concentration

(m/yr) (weeks)

1 11/94 2.5 Task Manager Loan effectiveness; review continuity wlth LTPHuman Resources 11, FY95 work programs and budgets; aerialLand Registration photography procurement; NS3K transformation

action plan; CVA development.

1 2/95 2.5 Task Manager Branch land office operations; NS3KLegal transformation; CVA development; informationInformation Systems systems; training.InstitutionsValuation

2 8/95 2.5 Task Manager Computerization of tand records; branch andHuman Resources district land office operations; training andLand Registration career development; review of FY96 work programs

and FY95 progress reports.

2 2/96 2.5 Task Manager Socio-economic studies; human resourceEconomist development; CVA development; DOLInformation Systems decentralization; information systems.VaLuation

3 8/96 2.5 Task Manager FY97 work programs and FY96 progress reports;Land Registration Information systems.

3 2/97 2.5 Task Manager Progress of studies; information systems; CVAEconomist and DOL development; staff training andHuman Resources promotion.Valuation

4 8/97 2.5 Task Manager FY98 work programs and FY97 progress reports;progress reports; progress of studies; landregistration.

4 2/98 2.5 Task Manager CVA and DOL development.InstitutionsVaLuation

5 8/98 2.5 Task Manager FY 99 work programs and FY 98 progress reports.Land RegistrationVaLuation

5 2/99 2.5 Task Manager Preparation of completlon and lnpact evaluationHuman Resources reports.

- 82 -

ANNEX 13

THAILAND

LAND TITLING III PROJECT

SELECTED DOCUMENTS AND DATA AVAILABLE IN THE PROJECT FILE

WORKING PAPERS

1. Detailed Phase Three Project Implementation Plan, February 1994.

2. LTP III Preparation Notes, August 1993.

3. Final Report of the Socio-Ecoomic Evaluation of the Land TitlingProject by Center for Applied Economics Research, Faculty of Economics, RasetsartUniiversity, July 1993.

4. The World Bank's Experience with Rural Land Titling by the World BankEnvironment Department, Policy and Research Division, March 1992.

5. Draft form P for Land Titling Project Phase III - TechnicalAssistance.

6. Project Completion Report for Thailand Land Titling Project (Loan2440-TH), June 1993.

7. Strategic Information for Development of Central Valuation Authority,Kevin Copeland, February 1992.

8. Urban Mapping Report, L. Haley, Sep. 1990.

9. Cadastral Adviser Final Report, B. Cross, Dec. 1989.

10. Photogrammetric Adviser Final Report, K. Wilson, Dec. 1989.

11. Project Cost Tables.

THAILAND

LAND TITLING III PROJECT

ORGANIZATION CHART OF MINISTRY OF INTERIOR

* I Z~~~~~~~INISTER |

|DEPUTY NtHISlER | DEPUTY MINISTER | ELT INISTER | DEPUTY MINISTER

OFFICE OF THE COMPItMITY TOW HAD COUNTRY

_ T1HE SECRETARY _ DEVELOPNEHT _ OFFICE OF POLICY Z PLANNING PLANNING CORRECTIONS

70 THE MINISTER DEPARTNENT DEPARTNENT DEPARTMENT

OfFICE OF THE OFFICE OF

_ THE PER4ANENT _LtANDS _ PU4LIC UELFAAE DEPARTNENT ACCELERATED RURAL LABOR

SEcRETARr DEPARTMENT DEVELOPMENT DEPARTMENT

THE LOCAL THE NATIOAL

ADMINISTRATION PUBLIC HORKS METROPOLITAN ELECTRICITY PROVINCIAL UATER OUING 0

DEPARTMENT DEPARTMENT AUTHORITY UORKS AUTHORTYIT

1 M | NETROPOLITAN BAIGKOK

THE POLICE WATER UORKS PROVINCIAL ELECTRICITY MARKETING METROPOLITAN

DEPARTMENT l AJTNORITY A UTNOtITY ORGANIZATION AOHISTRATION

THE PUBLIC jPROSECUITIONl

DEPARTHENT

THAILAND

LAND TITLING III PROJECT

ORGANIZATION OF DEPARTMENT OF LANDS

|DIRECTORt GENERAL

_ t ~~~~~~SPEC I AL I ZED

|DEPtiT DG DEPUTY OGDCPU r DG DEPUtTY DG DEPUTY DG

LAND KSIHESS LAND TITLE CALCLATION

_ f I LMICE PLANNING COCTRttOL DATA PROCESSING

DIVISltDIO DIVISltDIIODIVISl8ll DIV NDIVISION DIVISIO

LEGA&L

g PRINTING l l LAND DOCUMENT AFFAIRS LAND RECORDS PIIOTOGRAIIETRY

- | DIVISION l | DIVISION DIVISION DIVISION DIVISION

l LAND LAND RIGHT LAND ALLOCATION PUBLIC DCM_AIN

MANAGEMENET CERTIFICATE CGUISSION SURVEY * CONTROL MAP TRANSFORMATION

I | DIVISIOII ISSUANCE DIVISION DIVISION DIVISION DIVISION

1 . CENTRAL PRIVATE SURVEYOR StRVEYING

. TRAINING LAND TITLING VALUATION COMITTEE a

DIVISIO MPROJECT OFFICE AUTNOITY OFFICE MAPPING DIVISION

g WPPLY SLAND OFfICES EXPR IATION I|A|OK LAND

l DIVISION l AREAS 5-7 OFFICE OFFICES

f LAND OFFICES L LAD OFFICES

| AREAS 1-4 JAREAS 8-10 AREAS 11-12

THAILAND

LAND TITLING III PROJECT

LAND TITLING PROJECT OFFICE

PROJECT DIRECTOR(DIRECTOR GEVERAL)

DEPUTY PROJECT DIRECTOR(DEPUITY DG)

PROJECT NMAAGER

MONITORING FINANCE £ FOREIGN

PLANNING EVALUATION PROCUEMENT WDGET ADMINISTRATION RELATIONS

SECTION SECTION SECTION SECTION SECTION SECTION

THAILAND

LAND TITLING III PROJECT

Issuing of Titles

Aerial PhotographyFlight nn Tender eodetic Survey Satellite Data

P taming

Aerial Photographyflying (Contractor) Control Surveys

Aerial Triangulation:Ptock Adjustment

Production of Photompsa

Forest BoundariesDemarcatlon J

r Urb n > | Rural (iS4) t r Rural (1130) | |Rural (lUrdocmented) 0\

| Dcusnt earch --------- Autoeated Iransformation |---- ------- Adjudication

a a~~~~~~~ Transformation

I

! Fleld Survey hS4 (old) to Field Checks: Survey and (2) Survey and Map

HS4 (UTH) Hape Adjudication Compilation

compilation of

I

Survey Plens Docusent Conversion: --- itle Deed

(Controt From Title Deed Preparation

Preparation

I ~~~~Photom ps nd_

Field Survey

I

F Checking of Title Deed

Map Paurcel

I

rIndexes

I

Hndling Over of Cadastral Maps/Deeds/Indexes to Land

_ I Offikce-Continual Update d p

Issuing of Title Deeds

THAILAND

LAND TITLING III PROJECT

REVENUES OF DEPARTMENT OF LANDS

20

/ -

0~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~1

5

20-/_ i *

1984 1985 1986 1987 1988 1989 1990 1991 1992 1993

|Transfer Fee 1l Income Tax Stamp Duty

Ln

100- . 104-

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