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1. Sonsonate Usulut nSonsonateU sulut n Utiliz parcela como garant a de todas las parcelas 7 6 4 94 14 9 Lugar donde solicit el cr dito de parcelas que solicitaron cr dito Banco 45 9 21 050 0 38 0 Caja de cr dito 16 2 2 311 1 13 0 Prestamista 27 2 50 611 8 17 8 No dio detalles 10 7 20 116 015 1 Opin que tener escritura registrada en CNR da 89 3 87 295 993 8 ventajas para obtener cr dito Inversi n en la Tierra Inversiones en la parcela se encuentran entre los beneficios esperados del proceso de regularizaci n de tierras Se ha encontrado evidencia de la existencia de una asociaci n negativa entre la decisi n de invertir en la parcela y la presencia de conflictos sobre la propiedad de la misma Se tiene evidencia que las parcelas cuyos propietarios han realizado inversiones durante los ltimos cinco a os tienen valores por vara cuadrada m s altos que aquellas en donde esta inversi n no ha ocurrido Parcelas Rurales La promoci n de condiciones que resulten en la disminuci n de la degradaci n ambiental es uno de los beneficios derivados del proceso de regularizaci n de tierras En el lado positivo se han registrado cambios favorables a la conservaci n de los suelos reflejado en incrementos significativos en el porcentaje de parcelas que usaron barreras naturales ahoyado y remoci n manual de suelos junto con disminuciones en el uso tractoreo En el lado negativo se han registrado incremen
2. En conclusi n el sistema tradicional de registro basado en la tecnolog a de papel estaba a punto de colapsar al no poder atender una creciente demanda de servicios de registro no obstante de algunas acciones emprendidas para mejorar el sistema como es el caso de la creaci n y funcionamiento del RSI mas sin embargo este fue nada m s que un paliativo por otra parte el catastro que sirve de apoyo a la seguridad jur dica del registro hab a alcanzado un nivel de des actualizaci n severa as como un substancial rezago en el rea tecnol gica 36 Esta situaci n no era m s que el reflejo de la baja asignaci n de recursos presupuestarios que le eran proporcionados a estas instituciones muy a pesar de que interven an en funciones claves para el funcionamiento de la econom a nacional adem s de subsistir la inseguridad jur dica en la tenencia de la tierra al continuar emple ndose m todos de manejo y resguardo de la informaci n registral anticuados y sumamente vulnerables a manipulaciones Todo ello afectaba seriamente el mercado de tierras y la inversi n y por lo tanto un obst culo importante al desarrollo econ mico del pa s 1 4 Cobertura de los Servicios y Metodolog a en la Provisi n de los Servicios La respuesta a la demanda de los usuarios no era satisfactoria llegando a alcanzar niveles sumamente cr ticos durante 1993 fueron presentados para registro a nivel nacional 138 900 documentos de los cuales solamen
3. estas enmiendas fueron aprobadas por la Asamblea Legislativa mediante el Decreto N 348 del 26 de Mayo de 1995 Paralelamente a la etapa preparatoria para la implementaci n del proyecto piloto se cre mediante el Decreto Ejecutivo N 62 del 5 de Diciembre de 1 994 el Centro Nacional de Registros CNR como una dependencia del Ministerio de Justicia y posteriormente la 38 2 Asamblea Legislativa mediante el Decreto N 462 del 5 de Octubre de 1 995 le otorg la autonom a administrativa y la financiera y le transfiri todos los bienes muebles inmuebles y presupuestos asignados a la Direcci n General de Registros al IGN y al RSI que en ese momento eran utilizados en funciones registrales as como la facultad de recaudar y administrar los derechos de registro de propiedad inmobiliaria de comercio y de catastro Con la creaci n del CNR el Gobierno combin las l neas de autoridad y dio los primeros pasos para simplificar los procedimientos y establecer y consolidar la fusi n de los sistema de registro y catastro en una sola instituci n El fortalecimiento y consolidaci n del CNR para convertirla en una instituci n capaz de suministrar los servicios de registro y catastro con calidad y eficiencia fue uno de los mayores retos que enfrent el Gobierno para cumplir con su responsabilidad de garantizar la seguridad jur dica en la tenencia de la tierra y de esa manera promover el desarrollo econ mico y social
4. Institutional strengthening and 10 6 16 7 decentralization Land Data Acquisition 48 7 41 3 Project Administration 8 7 9 4 Project Preparation Facility 2 0 2 1 70 0 69 5 TOTAL 6 Sustainability 6 1 Rationale for sustainability rating Sustainability of the project is highly likely The Project has continually increased the flow of income from user fees collected by CNR which cover CNR s operational and maintenance costs and repayment the Loan both interest and principal The system s financial sustainability will further improve as the volume of transactions continues to increase while staff costs are reduced once the initial systematic registration effort is completed In addition there are windows of opportunity for CNR to increase its income through the diversification of products and services such as the provision of digital geographic information to utility companies and online land transaction services to law firms and mortgage companies The technical and operational aspects of the cadastral and registry system meet high standards The successful efforts made in recent years to develop a decentralized client oriented reliable and high quality service suggest that user acceptance will continue to grow The simplicity of the system and its wide acceptance will contribute to its sustainability Furthermore the contracting out of field surveys effectively contributed to the development of a professional and efficient private s
5. n cartogr fica proveniente del barrido se actualizaron los mapas topogr ficos a diferentes escalas que produce el Instituto Geogr fico y del Catastro Nacional Tambi n se verific por medio de las fotograf as e im genes de sat lite visitas de campo y 41 entrevistas con los propietarios que en un rea donde el proyecto no ha pasado como es el caso de uno de los ex bolsones del diferendo con Honduras resuelto por la Corte Internacional de la Haya Nahuaterique y en donde exist a incertidumbre sobre la tenencia de la tierra con esto se demostr que las personas tend an talar los rboles al tener miedo de perder la parcela A partir de ello podemos concluir que cuando las personas tienen certeza de su tierra y seguridad sobre ella crea confianza en los propietarios y los motiva a cuidar su parcela y los recursos naturales que sobre ella se encuentran Creaci n de la RECCAT Red de Capacitaci n de Centro Am rica en Administraci n de Tierras con financiamiento del Banco Mundial AID y Cooperaci n francesa Participaci n en Guatemala 2003 Costa Rica 2004 Honduras 2004 y Nicaragua 20005 Creaci n del Consejo Registral Inmobiliario de Centroam rica y Panam CRICAP que lo integran los jefes de registros de la regi n y cuya secretar a permanente le corresponde a El Salvador Presentaciones en seminarios internacionales presentando la experiencia salvadore a en seminarios regionales de la Reccat en Guatemala 2003 El Sa
6. respaldo para su realizaci n por parte de los cuatro gobiernos que se han sucedido en los ltimos 10 a os por el contrario no han existido interferencias de ning n tipo especialmente en cuanto a las decisiones operacionales del Proyecto En tal sentido es importante resaltar que en materia de adquisiciones estos se han mantenido totalmente al margen y as como con respecto a la contrataci n de personal profesional t cnico y administrativo al servicio del Proyecto con lo cual se ha conseguido la necesaria estabilidad laboral Por otra parte en la provisi n a tiempo de fondos de contrapartida no han habido problemas ni en materia de pol ticas sectoriales por el contrario la estabilidad macroecon mica que ha 42 mantenido El Salvador en los ltimos 15 a os y que es reconocida internacionalmente ha asegurado un clima favorable para la ejecuci n del Proyecto 3 5 Costos del Proyecto a Por Fuente de Financiamiento El Banco Mundial financio 50 millones de d lares y el Gobierno de El Salvador a trav s del CNR financi 19 5 millones Se ejecut financieramente el 99 3 del monto estimado en el SAR b Por Componentes A Fortalecimiento Institucional y Descentralizaci n US 21 5 Se ha fortalecido la capacidad institucional del CNR para la ejecuci n de su mandato bajo la Ley a trav s de la provisi n de entre otros asistencia t cnica entrenamiento y bienes para esto y el arrendamiento construcci n y reha
7. Identification Preparation 109 8 338 Appraisal Negotiation 15 3 47 Supervision 161 83 473 30 ICR 6 18 Total 292 93 876 231 Annex 5 Ratings for Achievement of Objectives Outputs of Components H High SU Substantial M Modest N Negligible NA Not Applicable Rating Macro policies OH OSUOM ON O Na Sector Policies OH OSUOM ON O Na Physical OH Ge sU OM ON ONA Financial Q H su OM ON ONA Institutional Development Q H OSUOM ON ONA Environmental OH OSUOM ON O Na Social Poverty Reduction OH Ge sU OM ON ONA Gender OH OsuOM ON ONA Other Please specify OH OSUOM ON 0Q NA Private sector development OH SUOM ON ONA Public sector management H OSUOM ON ONA Other Please specify OH OSUOM ON NA 3 Annex 6 Ratings of Bank and Borrower Performance HS Highly Satisfactory S Satisfactory U Unsatisfactory HU Highly Unsatisfactory 6 1 Bank performance Rating Lending OHS 05 OU OHU Supervision Om S OU OHU Overall HS Os Ov OHU 6 2 Borrower performance Rating Preparation Om S OU OHU Government implementation performance O HS ys OU OHU Implementation agency performance O S OU OHU Overall OHS 65 Ov OHU ce Annex 7 List of Supporting Documents 1 Borrower s ICR Informe Final de Implementacion Proyecto de Administration de Tierras LAP 2 LAP SAR Staff Appraisal Rep
8. Ministry of Urban Development Engineers and Notaries Associations which greatly facilitated the decision making process and Project implementation However some operational difficulties were encountered in terms of internal coordination among CNR s units in charge of different aspects of regularization due to the lack of clear division of responsibilities These difficulties were eventually resolved 5 4 Costs and financing At appraisal the total Project cost over five years was estimated at US 70 million to be financed by an IBRD loan of US 50 million and US 20 million from the government The estimated Project cost included a Project Preparation Facility PPF in the amount of US 2 0 million The actual Project cost over eight years is US 69 5 of which US 49 92 million were from proceeds of the IBRD loan and US 19 58 from the government Only about US 80 000 of the loan remained undisbursed Some reallocations among expenditures categories were necessary during implementation Specifically following the Bank procurement unit s recommendation land regularization activities were reclassified as Category 1 works rather than Category 3 consultant services expenses Additionally the approximately 50 percent increase in the cost of Component 1 was due to salaries and operating cost increases resulting from the additional 3 years of implementation 12 Component Appraisal Estimate Actual expenditures
9. Not quantified Sonsonate w project improvement of total 51 2 Owners Usulutan w out project 36 7 Activity Unit of Target Actual Actual plann measurement SAR ed Component 1 Institutional Strengthening and Decentralization 1 Institutional Strengthening Completed Completed 100 Establishment of the integrated cadastre registry system SIRyC 2 Training of staff and service Events Not quantified 350 providers People 2 094 3 Decentralization Establishment of regional offices Offices 4 11 275 Regional offices connected Connections 4 10 250 Municipal offices connected Connections 52 0 0 Support to Municipal offices Cooperation N A 17 agreements Training of municipal users People Not quantified 327 Training of private users People Not quantified 1 087 Component 2 Land data acquisition Mapping Km 400 590 1 147 18 Aerial photography in urban areas Km 19 383 8 116 42 Aerial photography in rural areas Land records regularization Communication campaign Events e Radio spots Events Not quantified 78 504 36 e Press articles Events Not quantified 150 36 Field announcements Not quantified 23 730 Field verification Kn Total area Municipalities 19 383 6 909 66 Municipalities Parcels 246 88 Biscels daban Parcels Not quantified 700 000 Parc lsinrurali reas Parcels Not quantified 300 000 1 600 000 1 000 000 e Total
10. a modernizar los registros p blicos y del catastro e inmuebles del prestatario y b establecer las bases para la regularizaci n de tierras en El Salvador El CNR fue creado en octubre de 1995 con el soporte del Proyecto Piloto financiado bajo el Proyecto de Reforma e Inversi n Agr cola PRISA Pr stamo 3576 ES El Proyecto en su Fase I ha fortalecido la modernizaci n del Sistema de Registro y Catastro en El Salvador y ha creado unidades especializadas responsables de diferentes actividades relacionadas con la regularizaci n de tierras Tambi n ha apoyado la capacidad nacional en diferentes reas 48 especializadas Tambi n el Proyecto ha establecido las bases para la regularizaci n de tierras en El Salvador si bien el proyecto ten a como meta principal regularizar el registro de tierras en El Salvador estimado en 1 6 millones de parcelas urbanas y rurales logr levantar 827 696 parcelas urbanas y 411 869 rurales totalizando 1 239 565 parcelas es decir 76 8 de la meta del proyecto 4 4 Rendimientos por componentes y subcomponentes El proyecto comprendi tres componentes A Fortalecimiento Institucional y Descentralizaci n i Fortalecimiento Institucional Se moderniz las oficinas del CNR Creado previamente en 1995 y cre unidades especializadas responsables de diferentes actividades relacionadas con la regularizaci n de tierras Se estableci un sistema inform tico de registro y catastro El CNR ha mejorado l
11. compared to the target of 4 specified in the SAR were opened and connected through the SIRyC covering about 90 percent of the total population of the country Installation of the SIRyC has been accompanied by a satisfactory reorganization of the local offices where a one stop shop for property registration consultation of the cadastre and consultation of the commercial registry has promoted greater efficiency In response to cost benefit analyses carried out during implementation instead of decentralizing through the establishment of 52 municipal offices cooperation agreements were signed with 17 municipalities for the exchange and maintenance of cadastral information Ten of these municipalities have been connected to and trained in the management of the SIRyC that has become the basis for the local government land planning and tax revenues Further the installation of remote terminals has greatly facilitated access to land related information such as the generation of land records certification bringing the services closer to and reducing the transaction costs for users The consolidation of the institutional framework for land regularization and administration was further supported through the strengthening of the legal framework Under the Project through a consultative process that involved all key stakeholders CNR supported the drafting of five laws that are key for the long term sustainability of the institution and for the maintenance
12. compared with other international experiences Direct beneficiaries are the property owners who obtain secure property rights and also realize significant savings on transactions costs associated with registering real estate transactions Indeed the main immediately quantifiable benefit is the reduction of the time needed to register a real estate transaction from typically 38 days to 16 days Benefits further derive from improved access to the formal credit market which offers better rates than the informal sector 13 4 4 Financial rate of return As part of the financial analysis of the Project a cash flow analysis was prepared during preparation It was estimated that the additional revenue directly attributable to the Project would total US 12 2 million between 1996 and 2003 and at least US 2 6 million each year thereafter As explained below the actual results were double that amount 12 Cost per ha is calculated dividing total project cost by total project area 13 The detailed economic analysis see annex 3 carried out during the preparation of LAP II confirms these outcomes 10 In 2004 a historical analysis of the financial sustainability of CNR was carried out which showed that a positive cash flow of about US 0 5 million was generated in 2000 when repayment of the LAP I began The positive cash flow increased to about US 5 million in 2002 and 2003 for a total of about US 24 million between 1996 and 2003 Additionally the fi
13. component planned to produce base maps for field verification at scales of 1 5 000 for rural areas 1 2 000 for peri urban areas and 1 1 000 for urban areas ii Land records regularization This sub component was planned to finance information campaigns training the field verification of geographic boundaries and legal rights as well as the completion of the Sonsonate pilot program It also financed activities required to initiate the process for the conversion of the real estate files of CNR from the system of folio personal grantee based files to the system of folio real parcel based files including the identification of the legal status of each parcel The updating of this information after regularization was expected to be ensured by legislative changes that would make registration by notaries compulsory and universal iii Alternate dispute resolution mechanisms This sub component aimed at providing technical assistance on mechanisms for non judicial resolution of real estate related disputes and at developing and implementing new judicial and administrative procedures Component 3 Project management US 8 7 or 12 4 percent of total project cost including contingencies and excluding PPF funds The component aimed at strengthening and expanding the Project Executing Unit PEU that was created during the pilot program under the PRISA funded pilot The component planned to finance the project s management including vehicles and equipment
14. costs 0 00 0 00 4 0 00 4 6 PPF 0 1 2 0 2 1 0 1 1 9 2 0 Total 16 8 1 9 51 8 0 00 70 14 0 1 2 34 8 0 00 50 0 Note Row and columns may not add due to rounding Project Costs by Procurement Arrangements Actual Latest Estimate US million equivalent Procurement Method Expenditure Category ICB NCB Dina N B F Total Cost 1 Works 28 2 0 0 2 5 30 22 5 1 2 7 23 7 2 Goods 2 3 0 3 5 1 p 2 0 0 2 3 8 6 0 3 TA consultants and 18 1 18 1 studies 11 2 11 2 4 Training 1 2 1 2 1 2 1 2 5 Miscellaneous salaries 9 7 9 7 and operating costs 5 7 5 7 6 PPF 2 1 2 1 2 1 2 1 Total 30 5 0 3 38 7 69 24 5 0 2 25 2 5 49 9 21 Project Financing by Component in US million equivalent ACTUAL LATEST COMPONENT APPRAISAL ESTIMATE ESTIMATE PERCENTAGE OF APPRAISAL Bank Govt Bank Govt Bank Govt 1 Institutional Strengthening N A N A N A N A and Decentralization 12 1 4 6 a Institutional Strengthening F X b Decentralization d i 2 Land data acquisition N A N A 29 8 11 5 N A N A b Land records regularization A 2d c Alternate dispute resolution f mechanisms 3 Project Administration N A N A 5 9 3 5 N A N A Project Preparation Facility PPF N A N A 2 1 0 0 TOTAL 50 20 49 9 19 6 99 8 98 0 The SAR did not inc
15. for i the identification and mapping of areas affected by Hurricane Mitch in 1998 ii the assessment of homes destroyed as a result of the 2001 earthquakes iii the mapping of areas affected by the 2002 drought and iv the redefinition of the boundaries between Guatemala Honduras and El Salvador in 2003 2005 4 2 Outputs by components Component 1 Institutional strengthening and decentralization US 21 5 million or 3196 of total actual project cost including contingencies and excluding PPF funds This component is rated Aighly satisfactory The Project developed procedures designed to address some of the fundamental weaknesses in the land administration system largely a result of the absence of 1 a complete and up to date picture of all existing land parcels ii an appropriate legal and institutional framework and iii strong managerial capacity It was very successful in establishing a nation wide mechanism for mapping and land registration CNR created in 1995 by legislative decree has become a modern institution that consolidates the activities of regularization of land registration within El Salvador Before the Project although coordination between the registry and the cadastre was required by law formal links between these two functions institutions were inadequate and outdated With CNR these key responsibilities were integrated in one single agency thereby facilitating simultaneous access to juridical and cadastral information
16. for each parcel and increasing security by avoiding overlaps Within CNR specialized units responsible for a variety of land regularization services such as geodesy aerial photography mapping etc have been created and are fully functioning CNR staff and external users notary publics have been fully trained and CNR offices have been equipped with modern cartography and other necessary equipment and are operating effectively A new integrated and automated land information system SIRyC that identifies legal rights geographic location and boundaries for each parcel has been established Historic data have been transferred into the SIRyC including 1 property records from various departments and ii the older electronic property databases These transfers have ensured more efficient and accurate archiving and effective operation of the SIRyC The system keeps track of all supporting documentation required to establish change or extinguish real rights Service standards have been greatly improved with response times to client requests sharply reduced Registration of standard real estate transactions takes between 15 to 17 days compared to 30 to 45 days in 1997 under the old system In addition to the central CNR office modernization the Project supported the decentralization of land services provision through the establishment and strengthening of regional offices By the Project s closing date 10 out of the 11 planned regional offices
17. inicios del proyecto se desconoc a la demanda real de servicios lleg ndose a determinar que sta no permit a operar oficinas rentables y que la mejora incremental de los servicios era significativa Se ha informado a cada beneficiario el estado catastral y registral de su parcela por medio de la notificaci n de resultados del levantamiento de la informaci n de tierras Se ha creado un sistema inform tico y de comunicaci n lo que ha permitido que diez oficinas departamentales que atienden a los 14 departamentos del pa s se encuentren operando interconectadas acercado los servicios a los usuarios adem s de tener acceso a la consulta mediante terminales remotas 49 ii B Levantamiento de Informaci n de Tierras Cartograf a Elaboraci n de de Fotograf a A rea a escala 1 15 000 en reas rurales y 1 5000 en reas urbanas produciendo ortofotografia a escala 1 5000 en reas rurales y restituci n a escala 1 1000 en reas urbanas Elaboraci n de Mapas Catastrales y Topogr ficos Regularizaci n de los Registro de Tierras incluido Facilidades para la Preparaci n del Proyecto iii Se titularon y registraron y se realizaron actividades para la distribuci n de tierras a los desmovilizados del ejercito y Ex Combatientes derivados de los Acuerdos de Paz atendiendo a 36 272 copropietarios en 3 253 propiedades con una extensi n total de tierra de 141 238 manzanas cuya distribuci n fue de 7596 para Ex Combatientes y
18. n and Santa Ana was delayed as well as the bidding process for the contract for works in the Departments of San Salvador and La Libertad 5 2 Factors generally subject to government control The Government placed very high priority on this Project Government s support 1s further evidenced by its commitment to the second phase of the Project However even with this support the necessary regulatory measures and key laws were not always enacted expeditiously In terms of financial support the provision of counterpart funds was prompt This was facilitated by the fact that CNR became financially sustainable 5 3 Factors generally subject to implementing agency control The fact that CNR is the sole agency responsible for the full array of land administration functions has greatly facilitated Project implementation and adjustments at the working level CNR management has demonstrated a very keen interest in the Project implementation responding rapidly to issues that arose Recommendations on improving technical and procedural aspects of operations were carefully considered and if agreed to effectively implemented Suggestions concerning improvement of information and communication systems transfer en masse of information into the automated system and legal reforms were all accepted and implemented In addition CNR s Board of Directors includes representatives of major stakeholders such as the Ministry of Economy the Ministry of Finance the Vice
19. of the parcel based registry Two of these laws were approved namely 1 the transitory law on the proindiviso property rights whose main objective was to facilitate the regularization of properties in the proindiviso regime and 2 the law on new fees which enabled CNR to increase its service fees by 27 7 percent in 2002 However three other key pieces of legislation namely 1 the law for the autonomy of the CNR which would ensure further CNR s financial sustainability 2 the law on the maintenance of the integrated cadastre and registry system and 3 the law on the Appeal Tribunal which would give property registry users the opportunity to appeal CNR s registration decisions have yet to be approved 9 Similarly legislative changes that would make registration by notaries compulsory and universal as proposed in the SAR were not achieved An additional law on the harmonization of registration procedures was approved in 2003 which has provided common standards and procedures for registration throughout the country Other institutions have also benefited from the Project For instance useful maps and property information were provided to the Ministry of Public Works the Ministry of Agriculture and the Ministry of Environment to determine areas damaged following Hurricane Mitch the 2001 earthquakes and the 2002 drought Further the National Police were trained in the use of cartography necessary to develop an emergency system and the
20. project design stage were in the order of US 200 ha and US 80 ha respectively given the higher urban land composition in those countries The Project estimated a cost of US 40 ha for El Salvador 4 which later was found to be unrealistic as it did not take into consideration that rural areas in the country are densely populated 4 Cost per ha is calculated dividing total project cost by total project area 4 Achievement of Objective and Outputs 4 1 Outcome achievement of objective Overall the outcome of the Project is rated satisfactory and the development objectives were achieved The Project had substantial impact on the overall modernization of land administration in El Salvador and was largely responsible for the observed improvement in institutional efficiency and enhanced tenure security More specifically the achievement of the project objectives should be examined from the perspective of the realization of each of the Project s objectives The Project s first objective was to regularize land registration of rural and urban land in the country The Project established a target of regularizing the registry of 1 6 million parcels thereby covering 100 percent of the country s territory However given that regularization costs were higher than predicted only about 1 million parcels of land or 66 percent of the original target were actually completed Additionally the Project completed the regularization of the Sonsonate pilot
21. promedio Elaboraci n de diferentes documentos Manual de Verificaci n de Derechos y Delimitaci n de Inmuebles Manuales de Geodesia Manuales de Fotogrametr a una serie de documentos para la restituci n fotogram trica y una para la ortofotograf a Manual de Supervisi n 1 y un Sistema de Control de Calidad en base a normas internacionales y manejable con la Web Manuales 3 de Aseguramiento de la Calidad elaborados por los Contratistas Toponort Kampsax Inypsa Manual del Usuario del SiRyc y Manuales de capacitaci n en Topograf a Geodesia Cr dito El acceso al cr dito se ha facilitado apoyando a la Banca en dar respuestas m s r pidas a sus clientes Por otra parte se demostr que los beneficiarios del proyecto lograron un mayor acceso al cr dito formal derivado de la seguridad en la tenencia de la tierra Por ejemplo en el departamento de Sonsonate cubierto ya por el proyecto el 7 6 de los propietarios urbanos utilizaron su parcela como garant a para acceso al cr dito hipotecario comparado con el 4 9 de los propietarios en Usulut n donde todav a no ha pasado el proyecto El 50 de los propietarios de parcelas rurales que solicitaron cr ditos en el Departamento de Sonsonate lo hicieron a trav s de la banca sector formal contra un 38 en el Departamento de Usulut n Caracter sticas del Uso de Cr dito Hipotecario Porcentaje de Parcelas seg n rea y Departamento Urbano Rural 45
22. regularizing about 100 000 parcels 5 It has to be further pointed out that following the establishment of the integrated automated system countrywide new land transactions relating to property not yet surveyed are also entered in the new system and by doing so automatically regularized and publicly accessible at no cost Property owners whose real estate has been regularized and registered in the cadastre and registry system have fully secure property rights As a result of secure tenure preliminary studies 6 carried out upon the Project s closure indicate that owners in both urban and rural areas have had better access to the formal credit market such as a bank or caja de credito As shown in Table 1 access to the formal credit market was higher in the Department of Sonsonate than in the Department of Usulutan which was not covered by the Project While 7 6 percent of Project beneficiaries in urban areas used their property as collateral 4 9 percent of property owners did so in Usulutan Of those that requested credit Project beneficiaries did so mostly through a financial institution 62 1 percent in urban areas and 61 1 percent in rural areas while in Usulutan owners did so mostly through the informal sector only 27 percent in urban areas and 51 in rural areas had access to the formal credit market Similarly the amount of time needed to process a credit request in Sonsonate was reduced from 2 months to 22 days These data show
23. servicios de esas oficinas y por lo tanto el atraso de documentos sin inscribir se habr a incrementado a n m s Solo considerando el a o 1993 la demanda de proyectos de vivienda gener aproximadamente 32 000 inscripciones las cuales fueron atendidas eficientemente por el RSI La utilizaci n de t cnicas modernas y de procesamiento electr nico de datos ofreci agilidad confiabilidad y eficiencia en el tr mite de los registros Despu s de casi cuatro a os de operaci n el n mero de inscripciones del RSI lleg a alcanzar el 40 del total del pa s con solamente un tercio del personal con respecto al registro tradicional y en tan solos 3 oficinas regionales lo que signific un avance 22 Fuente Investigaci n del Programa de Naciones Unidas para el Desarrollo PNUD 1 3 Problemas y Dificultades No obstante el avance alcanzado persist a muy poca relaci n funcional entre el catastro y el registro Los registros de tierras eran realizados por el Registro de la Propiedad Ra z e Hipotecas RPRH y el Registro Social de Inmuebles RSI los cuales depend an del Ministerio de Justicia y los servicios catastrales eran realizados por el Instituto Geogr fico Nacional IGN el cual depend a del Ministerio de Obras P blicas El arreglo institucional entre RPRH y el IGN para suministrar y verificar la informaci n no funcionaba esta insuficiencia institucional y legal a tambi n lleg a ser un factor cr tico en el tr fico de inmuebles
24. technical assistance and training and incremental recurrent costs In addition to and as part of the regular project implementation unit tasks the PEU was entrusted with managing information and communication campaigns expanding the M amp E system established under PRISA contracting out work in each region and supervising the firms and their implementation of the Project 3 4 Revised Components There were no revisions in component objectives or content However formal reallocations among disbursement categories were made and the Project closing date was extended twice for a total of three years The reasons for the two extensions were difficulties encountered with the procurement of three large land regularization contracts and the occurrance of several natural disasters one hurricane and two earthquakes during the 1998 2001 period see section 5 1 3 5 Quality at Entry Quality at entry was satisfactory There was no assessment by the Quality Assurance Group Peer reviewers and Bank management considered the project objectives consistent with the 1993 Country Assistance Strategy which focused on 1 modernizing the public sector 11 enabling private sector growth iii reducing poverty and iv strengthening environmental and natural resource management The key project design issues were based on experience gained in similar successful projects in other countries Thailand and Kenya and lessons learned from the first phase of implemen
25. the operation since they focused on physical and financial outputs and the PEU failed to establish a comprehensive and adequate baseline 7 2 Supervision The Bank s performance during the implementation of the Project was satisfactory Supervision missions were carried out regularly and included comprehensive teams with key specialists participating throughout supervision However during the life of the Project four task managers were responsible for the Project which at times created some difficulties in continuity of supervision efforts This did not compromise the quality of advice and technical inputs including lessons from other countries which were provided in a timely manner to improve CNR s operational efficiency technical competence and client orientation In fact all task managers were land administration specialists and had worked together in several similar projects within and outside the region The Bank attempted to minimize project delays resulting from difficulties in the procurement process by increasing supervision efforts and putting pressure on the procurement agent so that it provided CNR with the necessary assistance to execute the large work contracts The Bank also showed flexibility in meeting CNR s needs following i the impact of natural disasters by approving the reallocation of funds for emergency civil works and ii the difficulties in the procurement process by approving in a timely manner an extension of t
26. x is a set of explanatory variables The hypothesis investigated is that the degree of land tenure security has a positive significant impact on the property value at the time of purchase sale One of the explanatory variables is an indicator of regularized land tenure Other two explanatory variables are included as control variables These variables are one compound indicator for education and one explanatory indicator for rural areas The analysis was based on data available in SIRyC and on municipal poverty indicators available through the website of the Social Investment and Local Development Fund FISDL The sample size is 41 observations The reduced form property value function 1s estimated at the following linear equation Value of Property BO B1 Regularization B2 Education B3 Rural e The results of the model are as follow Constant Regularization Education Rural Coefficient 41 54 6 98 0 59 0 30 Standard Error 2 81 0 78 1 66 4 81 N 41 R2 40 and adjusted R2 35 The model predicts an additional property value at the time of sale purchase attributable to regulation of 17 These percentage is calculated by dividing the coefficient for the regularization variable by the coefficient for the constant This increase in property value is calculated for the average property prices in the new departments and it is multiplied by the number of properties to be regularized under LAP II The total in
27. 24 de Noviembre de 1 993 mediante el Decreto N 718 la Asamblea Legislativa aprob dicho convenio Una vez de aprobado el pr stamo el Ministerio de Agricultura y Ganader a MAG tuvo problemas para la ejecuci n de algunos componentes del programa por lo que no iba a utilizar una parte de los recursos del pr stamo En vista de lo anterior el Banco Mundial comenz a buscar un uso alternativo de esos recursos en otro programa que de alguna manera estuviese relacionado con el Sector Agr cola En ese mismo tiempo el Vice Ministerio de Vivienda Desarrollo Urbano VMVDU 44 A trav s del Programa Nacional de Vivienda Popular PRONAVIPO y el Instituto Libertad y Progreso ILP dependencia de la Presidencia de la Rep blica estaban promoviendo un proyecto de modernizaci n del registro inmobiliario de El Salvador tomando como punto de referencia los resultados positivos logrados por el Registro Social de Inmuebles RSI aprovechando esa coyuntura lo sometieron a consideraci n del Banco Mundial en Abril de 1 994 como un proyecto piloto lo que condujo finalmente a que se firmaron las enmiendas correspondientes al Convenio de Pr stamo N 3576 ES el 6 de Septiembre de 1 994 por medio de las cuales se introdujo el Componente C Mejoramiento de los Registros de Tierra y Servicios de Catastro Proyecto Piloto que inclu a el levantamiento de informaci n de registro y catastro en el Departamento de Sonsonate conocido como barrido
28. 2596 para desmovilizados del Ejercito Se termin el Barrido del Proyecto Piloto de Sonsonate completando el levantamiento catastral y recital de 114 785 parcelas correspondientes a 1 266 Km2 Se defini un proceso sistematizado de Barrido registral y catastral obteniendo el estado legal de cada parcela actual e hist rico as como la informaci n catastral f sica actualizada y trasladando esa informaci n al sistema creado al efecto Se levantaron 1 239 565 parcelas de las cuales 827 696 correspond an a parcelas urbanas y 411 869 a rurales es decir el 76 8 de la meta del proyecto A efectos de divulgar los resultados del Barrido se estableci un proceso para comunicar a los propietarios especialmente en casos de conflictos o discrepancias de linderos ofreciendo asesor a y apoyo jur dico para su soluci n Se llev a cabo campaf as de informaci n p blica por medio de radio peri dicos perifoneo afiches folletos para promover la regularizaci n de tierras Se cumplieron las actividades requeridas para iniciar el proceso de conversi n de los archivos de propiedad inmobiliaria del CNR del Sistema de folio personal basado en archivos de escrituras al sistema de folio real basado en archivos de parcelas incluyendo la identificaci n del estado legal de cada parcela Se escane y se cre una base de datos de im genes del 100 de los libros y folios reales para facilitar la consulta registral y para trasladar la inform
29. El Proyecto de Administraci n de Tierras 2 1 Objetivos Los objetivos del proyecto tal y como se establecieron en el Convenio de Pr stamo 3982 ES fueron a modernizar los registros p blicos y del catastro e inmuebles del prestatario y b establecer las bases para la regularizaci n de tierras en El Salvador El Plan Nacional de Modernizaci n del Registro Inmobiliario y del Catastro en su Fase I constituy una continuaci n del Proyecto Mejoramiento de los Registros de Tierra y Servicios de Catastro Proyecto Piloto de Sonsonate por lo tanto el problema que se ha propuesto solucionar se mantiene En tal sentido contribuir a la seguridad jur dica en la tenencia de la tierra en el pa s contin a siendo un objetivo primordial 2 2 Componentes El proyecto comprendi tres componentes A Fortalecimiento Institucional y Descentralizaci n Fortalecimiento Institucional li Descentralizaci n Institucional B Levantamiento de Informaci n de Tierras L Cartograf a li Regularizaci n de los Registro de Tierras incluido Facilidades para la Preparaci n del Proyecto lii Resoluci n Alternativa de Conflictos C Administraci n del Proyecto 2 3 Arreglos Institucionales en la Ejecuci n del Proyecto El CNR fue creado en octubre de 1995 con el soporte del Proyecto Piloto financiado bajo el Proyecto de Reforma e Inversi n Agr cola PRISA Pr stamo 3576 ES por medio del cual se logr la integraci n en una sola in
30. LIC OF EL SALVADOR CENTRO NACIONAL DE REGISTROS CNR Other Partners STAFF Current At Appraisal Vice President Pamela Cox Shahid Javed Burki Country Director Jane Armitage Edilberto Segura Sector Manager Mark E Cackler Michael Baxter Team Leader at ICR Frederic de Dinechin Cora Melania Shaw ICR Primary Author Anna Corsi 2 Principal Performance Ratings HS Highly Satisfactory S Satisfactory U Unsatisfactory HL Highly Likely L Likely UN Unlikely HUN Highly Unlikely HU Highly Unsatisfactory H High SU Substantial M Modest N Negligible Outcome S Sustainability HL Institutional Development Impact H Bank Performance S Borrower Performance S QAG if available ICR Quality at Entry S Project at Risk at Any Time 3 Assessment of Development Objective and Design and of Quality at Entry 3 1 Original Objective The major objectives of the Project 1 were to a regularize land registration for El Salvador s estimated 1 6 million parcels 2 of rural and urban land and b create an efficient streamlined and financially self sustaining nation wide cadastral mechanism for mapping and land registration the new National Registry Center CNR The successful execution of the Project according to the Staff Appraisal Report SAR was expected to provide land owners particularly the vast majority of smallholders who lack clear tenure with the security that would enable them to sell or rent their
31. Ministry of Economy is using CNR geographic data to carry out the national census Component 2 Land Data Acquisition US 36 4 million or 52 4 of actual total project cost including contingencies and excluding PPF funds This component is rated satisfactory It aimed to undertake the survey and mapping works required for systematic regularization of land registration Before the start of the regularization activities intensive information dissemination and communication campaigns were conducted in 6 Departments to promote land regularization through the Project As a result of this component 100 percent of the country has a new geodetic network and 45 percent of it has been provided with a new large scale cartography and cadastre a useful public good The pilot program in the Department of Sonsonate was successfully completed with the regularization of all parcels Of the estimated remaining 1 6 million parcels in the country to be regularized at the start of the Project about 1 million were completed and transferred into the integrated SIRyC corresponding to 66 percent of the Project s target In fact although the SAR indicated that 100 percent of the country would be covered due to costs overruns the target was lowered to 60 percent of the territory Costs overruns were partly the result of difficulties encountered in the field verification of legal rights and the delimitation of buildings due to i the lack of adequate experience and capa
32. Public Disclosure Authorized Public Disclosure Authorized Document of The World Bank Report No 34698 IMPLEMENTATION COMPLETION REPORT SCL 39820 PPFB P2640 TF 26533 ON A LOAN IN THE AMOUNT OF US 50 MILLION TO THE EL SALVADOR FOR A LAND ADMINISTRATION PROJECT December 12 2005 CAS CNR GEF ICB ICR LAP I LAP II M amp E PEU PPF PRISA RPRH SAR SIRyC UNDP CURRENCY EQUIVALENTS Exchange Rate Effective Currency Unit US 1 FISCAL YEAR July 1 June 30 ABBREVIATIONS AND ACRONYMS Country Assistance Strategy Centro Nacional de Registros National Registry Center Global Environmental Fund International Competitive Bidding Implementation Completion Report Land Administration Project Phase I Land Administration Project Phase IT Monitoring amp Evaluation Project Execution Unit Project Preparation Facility Agricultural Sector Reform and Investment Project Registro de la Propieded Raiz e Hipotecas Land and Mortgage Registry Staff Appraisal Report Sistema de Informacion Registro y Catastro Property Registry and Cadastre Information System United Nations Development Program Vice President Pamela Cox Country Director Jane Armitage Sector Manager Mark Cackler Task Team Leader Task Manager Frederic de Dinechin EL SALVADOR Land Administration Project CONTENTS Project Data Principal Performance Ratings Assessment of Development Objective and Design and of Q
33. T 1 PROCUREMENT SPECIALIST 1 GOV REP 5 UNDP PROCUREMENT EXPERT 1 TASK MANAGER 1 LAWYER 1 TASK MANAGER 1 AGRICULTURAL ECONOMIST 1 CONSULTANT 1 TASK MANAGER 1 PROCUREMENT SPECIALIST 1 CONSULTANT 2 AGRICULTURAL ECONOMIST 1 PROCUREMENT ASSISTANT 1 AGRICULTURAL ECONOMIST 1 URB amp REGIONAL ECON 1 AGRICULTURAL ECONOMIST 1 URB amp REGIONAL ECON 1 LAND 208 INFORMATION SPEC 1 PROCUREMENT SPECIALIST 1 12 11 1998 LAND INFORMATION SPEC 1 TECHNICAL SPECIALIST 1 05 07 1999 TEAM LEADER 1 LAND INFO SPECIALIST 1 CONSULTANT 1 02 19 2000 LAND SPECIALIST 1 06 30 2000 PROCURMENT SPECIALIST 1 SOCIAL INSTITUTIONAL 1 TASK MANAGER 1 FINANCIAL CONSULTANT 1 12 02 2000 TASK MANAGER 1 04 07 2001 TASK MANAGER 1 SECTOR LEADER 1 SENIOR ECONOMIST 1 10 22 2001 TASK MANAGER 1 03 18 2002 TEAM LEADER 1 ITC SPECIALIST 1 PROCUREMENT ANALYST 1 11 09 2002 TM LAND ADMIN SPECI 1 YP LEGAL INST SPECIA 1 03 28 2003 TTL 1 CONSULTANT ENV ESP 1 CONSULTANT FINANCE M amp E 1 10 03 2003 SR LAND ADM SPECIALIST 1 06 29 2004 TASK MANAGER 1 ENV SPEC 1 FM SPEC 1 OPERATIONS ANALYST 1 TEAM ASSISTANT 1 07 13 2005 TASK MANAGER 1 ENV SPEC 1 ICR 04 11 2005 OPERATIONS SPECIALIST 1 b Staff Stage of Project Cycle Actual Latest Estimate No Staff weeks US 0000
34. This sub component aimed at consolidating and strengthening the CNR so that it would have the capacity to implement its mandate through a the provision of technical assistance training equipments and other goods b the leasing construction and rehabilitation of office facilities for CNR as needed and c the establishment of an automated Land Information System LIS by expanding the one developed under the PRISA pilot ii Institutional decentralization The objective of this sub component was to support decentralization of the legal and cadastral services of CNR into at least four regional offices and about fifty two municipal offices Component 2 Land Data Acquisition US 48 7 million or 69 6 percent of total project cost including contingencies and excluding PPF funds The component s aim was to acquire land data for cadastral purposes verify and regularize land rights on identified parcels consolidate the data for input into the Land Information System and establish mechanisms to resolve conflicts The component had three sub components i Mapping This sub component aimed at carrying out mapping activities including aerial photography and field surveys to establish a parcel based database of the Borrower s territory The mapping activities included aerial photography at scales of 1 20 000 for rural areas and 1 4 000 for urban areas using a Global Positioning System GPS Using the photogrammetric digital information this sub
35. a change in the producer s timeline causing him to adopt a long term strategy with regard to the productivity of his parcel and creating the basis to achieve greater acceptance of the adoption of conservation oriented practices and investments in soil conservation works Through such practices and works especially in areas of erosion an increase is expected in soil productivity as well as a reduction in the required amount of agrochemical products Consequently higher yields reduced production costs and a reduction in or elimination of the soil erosion rate are expected With regard to protected areas delimitation and marking activities are expected to contribute to production in these areas III Financial Analysis A cash flow analysis of the CNR was carried out for the 1996 2015 period to determine the agency s capacity to continue financing the modernization process and assume a new project loan A baseline scenario was developed and a sensitivity analysis was made to calculate the CNR s likely surplus The results are shown below in Figure 1 262 Figure 1 Probable Surplus of the CNR 10 0 8 0 6 0 4 0 US millones 2 0 2005 2006 2007 2008 2009 2010 2011 2012 2013 2014 2015 The scenario is a Bank loan of US 40 2 million and a counterpart contribution of US 15 6 million for the execution of a 6 year project with a 6 year grace period and a repayment period of 15 years The analysis shows th
36. a eficiencia en la prestaci n de los servicios Se ha logrado disminuir los tiempos de respuesta en los procesos de atenci n al cliente en todo el pa s Asimismo se han adquirido inmuebles construido y o remodelado la infraestructura de servicios del CNR en Sonsonate Santa Ana Ahuachapan La Libertad San Salvador Usulut n Se han ampliado y o mejorado las instalaciones en San Miguel San Vicente y La Union Por medio del Proyecto se ha capacitado a personal del CNR y otras instituciones en diferentes reas y niveles t cnicos y profesionales tales como geodesia fotogrametria topograf a mapeo laboratorio fotogram tico navegaci n a rea fotogr fica sistemas de posicionamiento global sistema de informaci n geogr fica desarrollo tecnol gico t cnicas de escaneo masivo comunicaciones t cnicas catastrales sensores remotos especialmente en informaci n satelital registro inmobiliario legislaci n administraci n atenci n al usuario entre otros il Descentralizacion Institucional Se previ en el SAR la descentralizaci n de los registros y servicios catastrales del CNR en una oficina central tres regionales y unas cincuenta y dos oficinas municipales con el objetivo de informar el estado del registro y catastro y por otro lado de recolectar datos para nuevas transacciones de propiedades No obstante que se encontraba previsto descentralizar las oficinas regionales por medio de la creaci n de oficinas municipales en los
37. a largo plazo de la informaci n catastral registral As mismo se desarrollaron diferentes estudios para asegurar la adecuada implementaci n del proyecto y su sostenibilidad Donaci n del Project Development Facility Block B PDF B para la Preparaci n del Proyecto de Consolidaci n de Areas Naturales Protegidas y Administraci n de Tierras por 350 000 00 Esta donaci n ser ejecutada por el Ministerio de Medio Ambiente y Recursos Naturales MARN y el Centro Nacional de Registros del 4 de Marzo de 2005 al 15 de Octubre de 2005 Posible Donaci n del Global Environmental Facility GEF para la Ejecuci n del Proyecto de Consolidaci n de Areas Naturales Protegidas y Administraci n de Tierras La donaci n ser por 5 000 000 00 con 5 000 000 00 de contrapartida en especie a ser provista en su totalidad por el CNR y deber de ser ejecutada en un per odo de cinco a os El beneficiario ser el MARN y el CNR lo apoyar en la administraci n de los recursos 4 2 Mejora en la Administraci n de Tierras Rural y Urbana El SIRyC se ha instalado dentro de las Alcald as con las cuales el CNR ha suscrito convenios de cooperaci n pudiendo estas utilizar la informaci n que contiene como base de datos para conocer planificar y administrar mejor su gesti n tanto en las reas rurales como en las urbanas 4 3 Logros en los objetivos del proyecto Los objetivos del proyecto tal y como se establecen en el Convenio de Pr stamo del mismo son
38. abajo y procedimientos arcaicos respaldados por una legislaci n anacr nica recursos humanos no capacitados adecuadamente para la funci n de registro y relativamente poco permeables y preparados para aceptar y asimilar sistemas modernos y el empleo de nuevas tecnolog as Todo contribu a a generar una inseguridad jur dica en la tenencia de la tierra en el pa s Adem s la totalidad de las Oficinas de Registro manten an una mora en el registro de documentos de muchos meses y en el caso de documentos problem ticos la demora llegaba a ser de varios a os Como una forma de encarar los problemas de registro en 1986 se promulg la Ley de Reestructuraci n del RPRH mediante la cual se estableci que la inscripci n de inmuebles y sus registros conexos se llevar a a cabo a nivel nacional bajo el sistema de Folio Real y para lo cual se le dio al RPRH un plazo de 6 a os para su implantaci n en forma gradual este sistema cuya tecnolog a tambi n era de papel solamente se aplic parcialmente en la Oficina de Registros de San Salvador ya que la funci n de registro se continu haciendo paralelamente bajo el viejo sistema Folio Personal en Libros el hecho que en esta oficina no se haya logrado sustituir totalmente este sistema se debi en gran parte a las debilidades institucionales tecnol gicas y de procedimientos del RPRH 35 1 2 Arreglos Institucionales Ante esa situaci n cr tica del registro tradicional y dada la necesidad
39. aci n del folio personal y folio real en papel al sistema computarizado SIRyC Resoluci n Alternativa de Conflictos E Proyecto no ejecut actividades de resoluci n de conflictos en campo pues la cantidad que pudo verificarse durante los trabajos de levantamiento de datos fue nicamente de 3casos por lo que no amerit la asignaci n de recursos en dicha rea en su lugar el proyecto atendi en Oficina por medio de la Unidad de Notificaci n de Resultados exposiciones P blicas la correcci n de errores detectados por los titulares de los inmuebles lo cual se llevaba a cabo a trav s de la tramitaci n de impugnaciones sobre la informaci n resultante del proyecto habi ndose llegado a alcanzar nicamente 1 de impugnaciones recibidas C Administraci n del Proyecto Se ha realizado una coordinaci n adecuada con el agente de pagos y adquisiciones y se ha 50 efectuado los reportes en el tiempo adecuado tanto al Banco y a las instituciones de gobierno a las que el CNR reporta peri dicamente Se han llevado las auditor as requeridas y en ninguna de ellas se han tenido observaciones significativas 5 Sostenibilidad de los resultados del proyecto 5 1 Financiera El proyecto ha permitido la mejora en la prestaci n de los servicios registrales y catastrales y ha contribuido al aumento de los ingresos del CNR con ello se ha logrando su autosostenibilidad financiera siendo sus ingresos por el pago de la prestaci n de los serv
40. ajor contributor With regard to land management using the CORINE Land Cover methodology the Project contributed to the preparation of a map detailing the land use pattern in El Salvador which served as the basis for the identification of the Mesoamerican Biological Corridor of El Salvador Further the project identified the extent of changes in vegetation cover and provided the information necessary for the delineation and demarcation of natural protected areas and mangroves areas to be included in the National System of Protected Areas thereby avoiding erroneous titling of those areas In doing so the Project contributed to improving the knowledge base for sustainable land use and management in the country Finally there is some evidence that land regularization activities have been instrumental in promoting land conservation practices The economic analysis carried out during the preparation of the second phase of the Project confirmed economic benefits in terms of increased property value more efficient banking system streamlined registration process and environmental sustainability Similarly the financial analysis showed that the additional revenue directly attributable to the Project was double the estimated amount see Section 4 4 and Annex 3 Finally the Project played a key role in responding to emergency and political events For example CNR provided government and local stakeholders with just in time efficient technical support
41. ancieros de la empresa en su casa matriz Falta de un manual t cnico Jur dico de referencia por parte del Contratante Lo que llev al CNR a desarrollar un sistema de aseguramiento de la calidad y est ndares para tener homogeneidad y calidad en los productos adem s de mejorar las especificaciones t cnicas de los contratos Fuerte desarrollo urbano alrededor de la rea Metropolitana de San Salvador que implic modificaciones en la sectorizaci n Metodolog a inadecuada en uno de los contratos en los cuales se esperaba desarrollar una nuevo proceso de levantamiento focalizado por parte del CNR lo que necesit una revisi n de ste despu s de 6 meses de realizaci n Se concluy a partir de ello que era necesario realizar una actualizaci n sistem tica de la informaci n antigua y desarrollar mecanismos adecuados para asegurar su mantenimiento Fuerte n mero de ausencias de los informantes principalmente en las zonas urbanas Falta de motivaci n de los propietarios a mostrar su informaci n Se concluy que a pesar de que las personas conocen el proyecto se debe de buscar nuevas formas de comunicaci n para sensibilizar sobre los beneficios del proyecto Problema para la aceptaci n de productos realizados por el Contratista para uno de los contratos debido a insuficiencia de capacidad instalada y de diferencia de criterios por parte del contratante y el contratista Se concluy que se debe prever la capacidad instalada en las reas
42. ar mecanismos adecuados para asegurar su mantenimiento Mejorar y adaptar seg n los beneficiarios las campa as de comunicaci n por medio de la divulgaci n de los beneficios del proyecto Prever la capacidad instalada en las reas t cnicas de la supervisi n y tambi n definir alcances y Criterios de aceptaci n de los productos Mejorar la coordinaci n de las diferentes reas que contribuyen al desarrollo del proyecto en su totalidad Necesidad de desarrollar un Sistema de Monitoreo y Evaluaci n automatizado e integrado en todos sus m dulos utilizado y consultado por los diferentes actores para ser empleado como herramienta oportuna de toma de decisiones Necesidad de un Manual de Operaciones donde se defina las funciones procesos responsabilidades e interacciones entre las diferentes reas involucradas Sensibilizaci n del personal que no pertenece al proyecto y si a la instituci n para interiorizar el proyecto 52 53 54
43. artment of Sonsonate the number of visits required for each registration has been reduced to 1 or 2 1 5 on average Supposing that each visit requires an average of two hours and assigning an economic value of 4 0 per hour the annual savings would be 1 5 visits x 2 hours x the annual number of submissions to RPRH Excluding the departments that were terminated during Phase I of the project Sonsonate Ahuachap n and Santa Ana RPRH s average annual demand from 1998 2004 is around 263 400 submissions Supposing that this average level of demands is maintained over the coming years this implies an average annual economic saving of around 3 2 million 263 400 x1 5 x 2 One of the project s activities will be to transfer registration to SIRyC and to make an alpha geo link so that parcels surveyed in Year t of the project until Year t 1 should be transferred to SIRyC and linked In the benefits projection it is assumed that the impact will be perceived starting in Year t 2 Thus it is assumed that the annual average benefit of 3 2 million will be perceived beginning in the sixth year of the project To generate the projection of the flow of benefits corresponding to clients savings in terms of time and expenses during Years 1 to 5 the cumulative percentage of progress was applied assuming a two year gap between execution and the generation of benefits III Net Present Value of Net Economic Benefits and Internal Rate of Return The NPV of
44. at the CNR is capable of financing the loan and the counterpart contribution Before the repayment period of LAP II which begins at the end of 2011 a surplus between US 4 and US 5 million are expected every year No surplus and likely a very limited deficit is projected for years 2012 and 2013 respectively because this is the time when the repayment periods of LAP I and LAP II overlap To solve possible short term liquidity problems during the deficit years it is recommended to use the surpluses of previous years After 2013 and during the repayment period of LAP II until 2020 an average surplus between US 3 and US 5 million is expected After that the surplus will increase significantly up to US 10 million causing a very positive fiscal impact for the government IV Fiscal Analysis One of the spheres of the project s impact is at municipal level where cadastre information is expected to have a positive impact on the capacity to collect fees for municipal services and taxes To estimate the project s impact on fee collection an analysis is made of the incremental incomes of a small selected sampling of municipalities that are using cadastre data to identify those residential and commercial properties which receive municipal services Based on the data collected the average per capita incremental collection is calculated dividing the average incremental amount of fees and taxes by the average urban population The estimated average per
45. bilitaci n de las instalaciones para las oficinas del CNR Desarrollo y establecimiento de un sistema de un sistema de informaci n de tierras automatizado Descentralizaci n de los registros y servicios catastrales del CNR B Levantamiento de Informaci n de Tierras US 36 4 Se llevaron a cabo las actividades de mapeo incluyendo fotograf as a reas e investigaciones de campo para establecer una base de datos basada en parcelas Se complet el programa piloto del departamento de Sonsonate Se llevaron a cabo campa as de informaci n p blica para promover la regularizaci n de tierras en el territorio Se llevaron a cabo las actividades requeridas para iniciar el proceso de conversi n de propiedad inmobiliaria del CNR del Sistema de folio personal basado en archivos de personas al sistema de folio real basado en archivos de parcelas incluyendo la identificaci n del estado legal de cada parcela Se dio asistencia t cnica en el campo y durante las campa as de notificaci n de los resultados para la resoluci n por la v a administrativa de los conflictos C Administraci n del Proyecto US 9 4 Se ha hecho la administraci n financiera la administraci n y coordinaci n de las actividades del proyecto el monitoreo y la evaluaci n del proyecto Se llevaron a cabo las actividades de auditoria c Por M todos de Adquisici n Las adquisiciones ascendieron a US 69 5 millones concentr ndose en su mayora en Licitaciones Publicas In
46. cal capacity through this approach will be further improved through LAP II For the detailed discussion of the institutional development achievements see Section 4 2 5 Major Factors Affecting Implementation and Outcome 5 1 Factors outside the control of government or implementing agency The key factors affecting implementation that were outside the control of the government were 1 procurement and contractor performance issues and ii natural disasters Two Project extensions for a total of 3 years of extension were necessary due to delays in the bidding process for three large land regularization contracts Specifically the delay was caused by the unsatisfactory performance of the international contractor in the department of Santa Ana and difficulties in completing the procurement 11 process for the ICB for San Salvador due to lack of contractors who met the bidding standards and requirements Additionally the 1998 Hurricane Mitch and the 2001 earthquakes had a serious impact on project execution The Project lost equipment and an unexpected reallocation of loan resource had to be carried out to cover some emergency infrastructure activities In particular CNR s headquarters and some of the Offices of the Registry were affected Field work had to be rescheduled and postponed for several months after both the hurricane and the earthquakes For example the execution of the contract for field surveys in the Departments of Ahuachap
47. capita incremental collection is US 8 27 27 Total Population Urban Urban Population Incremental Amnual Fees and Taxes Cuscatancingo 130 000 51 66 300 491 279 San Antonio del 17 750 41 7 278 136 800 Monte Ahuachapan 85 460 31 26 493 200 000 Average 33 357 276 026 To calculate the impact at national level the average per capita incremental collection is multiplied by the relative urban population in the rest of the country It is estimated that the government will receive US 15 million each year from the collection of fees and taxes US 4 6 million alone will come from San Salvador 28 Annex 4 Bank Inputs a Missions Stage of Project Cycle Month Year No of Persons and Specialty e g 2 Economists 1 FMS etc Performance Rating Count Specialty Implementation Development Progress Objective Identification Preparation 05 09 1994 10 11 1994 02 22 1995 03 051995 Appraisal Negotiation 06 29 1995 01 16 1996 Supervision 06 06 1996 02 13 1997 05 17 1997 10 03 1997 05 08 1998 TASK MANAGER 1 CONSULTANT 2 TASK MANAGER 1 RURAL SPECIALIST 1 SOCIAL SPECIALIST 1 LAND SPECIALIST 1 AGRARIAN REFORM SPECIALIST 1 LEGAL CONSULTANT 1 TASK MANAGER 1 FINANCIAL ANALYST 1 CONSULTANT 2 TASK MANAGER 1 CONSULTANT 3 FM SPECIALIST 1 TASK MANAGER 1 CONSULTANT 3 FM SPECIALIS
48. casos debido a ello se interpretaron de diferente forma los t rminos en cuanto a su alcance y concepto Una de las debilidades del seguimiento es la falta de comunicaci n respecto a cambios de documentos est ndares normas lo que generaba algunos atrasos 6 2 El Prestatario Durante la ejecuci n del Proyecto el CNR ha recibido un decidido respaldo para su realizaci n por parte de los cuatro gobiernos que se han sucedido en los ltimos 10 a os por el contrario no han existido interferencias de ning n tipo especialmente en cuanto a las decisiones operacionales del Proyecto Por otra parte en la provisi n a tiempo de fondos de contrapartida no han habido problemas ni en materia de pol ticas sectoriales por el contrario la estabilidad macroecon mica que ha mantenido El Salvador en los ltimos 15 a os y que es reconocida internacionalmente ha asegurado un clima favorable para la ejecuci n del Proyecto Las Lecciones Aprendidas Aprendizaje por el Banco y el prestatario en el tema de Administraci n de Tierras no solo en El Salvador si no tambi n en otros pa ses lo que conllev a lograr y superar los objetivos del proyecto Desarrollo de un sistema de aseguramiento de la calidad y est ndares para tener homogeneidad y calidad en los productos adem s de mejorar las especificaciones t cnicas de los contratos Concientizaci n de la necesidad de realizar una actualizaci n sistem tica de la informaci n antigua y desarroll
49. city of local firms and consultants ii the lack of an adequate methodology for surveying densely populated rural areas iii unforeseen difficult terrain in various rural areas and iv the lack of clear responsibilities defined in an operational manual resulting in duplication or shortage of efforts In particular the SAR did not anticipate the extent of the training required for technical and juridical staff from CNR and private contractors This led to delays in work execution and CNR s realization of the need to develop technical standards a quality control system a revised survey methodology and operational manuals for each area of work To meet the pressing need for technical experts intensive training was organized resulting in about 800 technicians trained in registry and cadastre services in the Project area Finally difficulties in collecting and verifying data also arose from i in some cases the poor quality of the original data in the old system requiring additional efforts and resources for clean up ii a high rate of absence of owners during regularization activities in these cases occupants provided the lacking information but not the supporting documentation and iii high incidence of criminality in some areas of the country All the activities necessary to initiate the conversion of the real estate files from the folio personal system grantee based files to the folio real system parcel based files such as the identif
50. crement in property value is of approximately US 161 4 million If we assume that 3 3 of these properties are sold annually then the resulting annual financial benefit is approximately US 5 4 million The projection assumes that the total benefit is distributed evenly over a 20 year period beginning the second year of the Project Department Average Price of Value Added from Estimated Number Total Benefit from Properties Sold Regularization of Properties to be Regularization Between Regularized under 2000 2004 LAP II Moraz n 4 161 707 9 386 6 639 099 La Uni n 5 192 883 16 971 14 978 214 San Miguel 12 623 2 146 32 076 68 831 555 San Vicente 4 341 738 10 340 7 630 833 Caba a 6 479 1 101 8 837 9 733 077 Usulut n 9 734 1 655 20 014 33 120 221 Chalatenango 4 561 715 11 650 9 032 255 Cuscatl n 5 106 868 13 224 11 478 077 Total 122 498 161 443 330 This number is calculated as the estimate number of parcels x 30 the estimated percentage of non concordant parcels x 70 the estimated percentage of non concordant parcels that will be regularized under LAP ID 2972 Impact on the Banking System When a financial institution approves a loan the corresponding amount is reserved until the mortgage is recorded in RPRH During that period the financial institution incurs an opportunity expense in unrealized investments According to RPRH the average time to record a document is five w
51. ector thus preventing a ballooning of the institution on average 500 private surveyors were hired and trained each year during project implementation The local capacity built through training and provision of modern equipment also bodes well for the sustainability of project outcomes Finally CNR and the range and decentralization of its services will be further consolidated and modernized through the second phase of the Project LAP II will also support key legal and regulatory reforms necessary to ensure the sustainability of the Project s achievements Specifically during the second phase the legal and regulatory framework will be strengthened to ensure the integration of registry cadastre information collected during LAP I and LAP Il and to keep this information updated in the long term 6 2 Transition arrangement to regular operations The transition to regular operations has been smooth given that the Project s activities were already a core part of the regular operations and services provided by CNR Since the beginning the Project was regarded by CNR management as a mainstream effort to develop and consolidate CNR into an efficient and effective cadastral agency Therefore the need for special transition arrangements was minimal The PEU staff 25 percent administrative and 75 percent operational decreased throughout the life of the Project from 120 on average to 75 employees as CNR staff was being trained to carry out some key tec
52. eeks In Phase II of the project the period is expected to be reduced to seven working days a savings of about 30 days In 2003 the total value of mortgages issued nationwide was 1 5 billion The annual average passive interest rate in 2003 was 3 24 resulting in an annual financial opportunity cost of 4 1 million 1 5 billion x 3 24 x 30 365 Streamlining of Registration Process The project will have a positive impact on response time and on the number of visits that CNR clients must make to follow up on the registry process The experience in the Sonsonate Registry during Phase I of the Land Administration Project is indicative of the impact that can be expected as a result of Phase II According to RPRH from 1996 2000 the average response time per document in the Sonsonate Registry was one month if the document did not modify property lines and two months if it did because in such case the cadastre intervened The average response time before the project to register documents was five weeks Currently response time is eight working days Prior to the modernization process the average number of visits that Registry clients made until they were given the registered document was 3 to 4 3 5 on average Experience in the departments of Santa Ana and Ahuachap n indicates that one of the consequences of a reduction in response time is a reduction in the number of follow up visits that clients have to make According to RPRH in the dep
53. egularization in the Borrower s territory The Project through the consolidation and strengthening of CNR created a streamlined and financially sustainable institutional framework and improved the national and local capacity for land administration thereby establishing a reliable and efficient land administration service CNR 7 which brings together the functions and responsibilities for land registry cadastre and regularization under one agency has proved itself to be the leading land administration institution in Central America as evidenced by its support to several similar projects in the region It now has a fully functioning automated and decentralized information system SIRyC which stores and links legal and cadastral geographical data for each registered land parcel The system maintained and operated by well trained CNR staff provides timely and reliable information at reasonable cost Service users can access the system directly through terminals installed in 10 of the 11 CNR departmental offices and in 4 municipalities Registration of standard real estate transactions takes between 15 to 17 days compared to 30 to 45 days in 1997 on average a reduction of more than 250 percent The number of visits service users need to pay to CNR offices to register land transactions has been reduced from 3 5 to 1 5 on average a 133 percent reduction A commensurate reduction in transaction cost has also been achieved from US 28 to US 12 a 133 pe
54. el registro donde se 46 encontraba la informaci n en papel Establecimiento del Sistema y N mero de Usuarios Con el proyecto se estableci un sistema integrado de registro y catastro el cual es utilizado por el personal del registro y catastro como herramienta de trabajo y atenci n al cliente Este sistema puede ser utilizado por todos los usuarios que acuden a las instalaciones del CNR y sus oficinas departamentales lo que mejorado la calidad del servicio disminuyendo los tiempos de respuesta costos de transacci n y ha disminuido sustancialmente actos de corrupci n ya que la informaci n es p blica accesible y los tramites registrales son mas giles Capacidad Nacional Mejorada y Creada Se han adquirido inmuebles construido y o remodelado la infraestructura de servicios del CNR en los departamentos de Sonsonate Santa Ana Ahuachap n La Libertad San Salvador Usulut n Se han ampliado y o mejorado las instalaciones en San Miguel San Vicente y La Uni n Se ha capacitado a personal del CNR y otras instituciones en diferentes reas y niveles t cnicos y profesionales tales como geodesia fotogrametr a topograf a mapeo laboratorio fotogram tico navegaci n a rea fotogr fica sistemas de posicionamiento global sistema de informaci n geogr fica desarrollo tecnol gico t cnicas de escaneo masivo comunicaciones t cnicas catastrales sensores remotos especialmente en informaci n satelital registro inmobilia
55. he Project s closing date and reallocation of funds 7 3 Overall Bank performance The Bank s overall performance is rated satisfactory Borrower 7 4 Preparation The Borrower s performance during preparation is rated satisfactory The Government provided the Bank team with competent counterparts who contributed effectively to the preparation of the Project Preparation efforts were also supported through the allocation of undisbursed PRISA funds to finance key activities in the Sonsonate pilot which fed into the design of LAP I SAR Annex C Additionally a PPF further supported project preparation activities 7 5 Government implementation performance The Government s implementation performance is rated satisfactory The operation was continuously supported at the highest level thereby maintaining project staff high morale Counterpart funds were provided on timely basis and no major delays were observed Project effectiveness was delayed by about 14 one year due to the two step Congressional approval and so was approval of key legal reforms in part due to difficulties in passing new laws in a Congress that was politically divided 7 6 Implementing Agency The performance of the implementing agency is rated as satisfactory CNR provided strong leadership throughout Project implementation Issues identified during supervision were readily considered and addressed effectively In particular when issues arose with regard t
56. hich will be continued under the second phase An important institutional development issue successfully addressed by the project was the introduction and institutionalization of client orientation in a public sector agency that has turned itself into a service provider with clearly established service standards This included the ISO9000 certification of two of CNR s units and the sales and intellectual property registries in 2003 and the upcoming ISO9000 certification of the cadastre mapping and real estate property registry units in 2006 The second phase of the Project will consolidate these institutional achievements and ensure their sustainability in the long term It will also put in place client feedback mechanisms Decentralization efforts were successful at the regional level with the establishment of 10 fully functional CNR departmental offices However the Project was not as successful in decentralizing service provision at the municipal level The ability of municipalities to maintain the parcel based property registry and to provide land administration services has not been sufficiently strengthened In particular due to political constraints the linking of 52 groups of municipalities to the automated system which would have connected 262 municipalities proved not to be operationally viable Instead a new more flexible approach was taken one where cooperation agreements are signed with individual municipalities Strengthening of lo
57. hnical activities The project s achievements and sustainability will be consolidated through the second phase of the operation LAP ID expected to start in 2006 which will devote additional attention to decentralization titling environmental sustainability and impact evaluation issues For the implementation of the second phase which will cover the entire country the procurement administrative and financial management functions of cen the PEU have been transferred into CNR 7 Bank and Borrower Performance Bank 7 1 Lending The Bank s performance during identification preparation and appraisal of the Project was satisfactory The Project was very consistent with the priorities of the Government especially as highlighted in the Peace Accords and the CAS both of which had a strong focus on modernizing the public sector and enabling private sector growth The project was also well timed to support the Government s ongoing efforts almed at modernizing the real estate registry and establishing a single land agency The close cooperation with the Government and its National Registry Center CNR ensured a high degree of institutional ownership The Bank s inputs in terms of staff and skill mix were considered adequate during preparation of the Project Overall project design was appropriate to meet the client s needs However although the SAR included monitoring indicators Annex G these were not adequate to measure the impact of
58. ication and scanning of existing records containing the legal status of properties and cadastral references for each parcel were completed More than 50 percent of the total number of land parcels in the country have been converted from the old system to the new computerized folio real system The second phase of the Project LAP ID is expected to complete the conversion process The Project supported the design of the following alternative conflict resolution activities which were carried out during the implementation of the land regularization activities 1 communication and awareness campaigns 10 11 the training of field brigades on mechanisms for non judicial resolution and iii public viewing of corrected records Overall these activities proved to be successful as the majority of conflicts that surfaced during the regularization process were resolved by the field brigades and or public viewing through the CNR s Results Notification Unit Conflicts without a solution were flagged in the cadastre registry system 11 9 During one of the last supervision missions it was agreed that given the difficulty of passing a law on the maintenance of the integrated parcel based system CNR will promote these legal changes through executive decree The approval of the decree is a condition of disbursement for the second phase of the project LAP II 10 The project logo is the Chambita Medidor the Salvadorian surveyor which is very well k
59. icios en 1996 de US 17 5 millones y para de 2004 se elevaron en US 31 8 millones Existe a futuro la posibilidad de incrementar los ingresos del CNR mediante la diversificaci n de sus servicios por ejemplo poniendo a disposici n de los usuarios a trav s de la web la consulta registral y catastral desde sus propias oficinas u hogares Una estimaci n preliminar de las tasas internas de retorno financiero y econ mico del proyecto determin que el mismo tiene un alto nivel de rendimiento econ mico y financiero estimado en 19 y 50 respectivamente con valor presente neto de US 34 6 millones y US 181 6 millones respectivamente 5 2 Institucional Antes de este proyecto no exist a vinculo entre el Registro de la Propiedad y el Catastro Nacional Esto se deb a a que cada uno de ellos operaba separadamente y estaban adscritos a diferentes Ministerios del Gobierno si bien estaba previsto legalmente la coordinaci n entre ambas esta no lleg funcionar Con el apoyo del Proyecto las funciones del Registro de la Propiedad Ra z e Hipotecas y del Catastro se integraron en una sola instituci n el CNR Esta integraci n facilit el acceso a la informaci n tanto f sica como jur dica dando agilidad al proceso de tramites favoreciendo la transparencia y seguridad jur dica de los servicios de registro y de catastro como parte de la modernizaci n del sistema Adem s el Proyecto ha fortalecido institucionalmente al CNR entre otros co
60. ir sus propias regulaciones Por otra parte las nuevas pol ticas econ micas y sociales no son compatibles con los tradicionales sistemas instituciones y formas de prestaci n de servicios seks El esfuerzo para reformar el Estado se concentrar e 4 grandes reas de acci n que respondan a necesidades espec ficas 1 mejorar la gesti n de las pol ticas p blicas readecuando y reestructurando las instituciones de acuerdo al campo de especificaci n de sus funciones o de acuerdo a su nueva misi n encomendada 2 la continuidad del proceso de privatizaci n de aquellas empresas o activos estatales ubicados en actividades que los agentes privados pueden desempe ar m s eficientemente 3 la descentralizaci n administrativa trasladando competencias recursos y capacidad de decisi n desde el gobierno central hacia niveles descentralizados territorialmente para la ejecuci n de programas y proyectos de beneficio p blico y 4 desarrollar un nuevo moderno y flexible marco regulador cuya finalidad ltima ser el propiciar un gil funcionamiento del sistema econ mico en su totalidad 33 Plan de Gobierno de la Rep blica de El Salvador 1994 1999 El 30 de Septiembre de 1 993 el Gobierno de El Salvador firm con el Banco Mundial el Convenio de Pr stamo N 3576 ES por US 40 millones con el objetivo de impulsar un proyecto de modernizaci n agr cola denominado Programa de Reforma e Inversi n Sectorial Agropecuaria PRISA El
61. l is the preferred option for land administration projects This model significantly improves the efficiency of registration and the maintenance of updated information thereby increasing tenure security and as a result public support It greatly contributes to the financial sustainability and profitability of land administration services Further the integration of the cadastre property intellectual and commercial registries contributes to an improved investment climate in the country Finally it improves project implementation Experience in other countries in the region and worldwide show that delays and bottlenecks due to rivalries and conflicting interests are inevitable when a number of competing land agencies are simultaneously responsible for the implementation of land administration projects LAP I through the consolidation of CNR has established a best practice example of land regularization and administration Several countries in and outside the region including for example Honduras are now following the single agency model Land records management through an integrated cadastre registry system has enormous potential for supporting a growing and dynamic land market and an effective and local revenue collection system However tenure security through regularization alone does not spur land investments and facilitate land access Synergies and sequencing with other sectors e g judicial rural finance decentralization need to be sup
62. la credibilidad del Proyecto el CNR ha podido obtener diferentes donaciones para apoyar al tema de tierras en El Salvador Estos fondos son obtenidos mediante el Proyecto pero no solamente son destinados al CNR sino que tambi n a otras instituciones que tratan otras tem ticas vinculadas con la administraci n de tierras Entre las donaciones que se han obtenido por medio del Proyecto se encuentran las siguientes 47 Donaci n japonesa para Asistencia en la Implementaci n del Proyecto de Administraci n de Tierras PHRD donaci n para implantaci n de genero Se determino la tenencia de la tierra en t rminos de g nero y se adecu el proyecto para obtener un mayor impacto El Monto de Donaci n fue 121 150 00 El per odo de realizaci n fue del 01 de Agosto de 2002 hasta el 30 de junio de 2003 Donaci n japonesa por 549 500 00 para dise ar la segunda fase del Proyecto de Administraci n de Tierras El per odo de realizaci n fue del 2 Marzo de 2004 al 15 de Marzo de 2005 Se realizaron diferentes consultor as determinando los impactos de la fase I del Proyecto de Administraci n de Tierras con el fin de mejorar el dise o de la fase II As mismo evalu la capacidad financiera administrativa e institucional del CNR para ejecutar la segunda operaci n dise ando el proyecto de tal forma que sea implementado por el CNR institucionalmente para que el fortalecimiento sea absorbido por el personal y asegurar as el mantenimiento
63. land at fair market prices and pass on their holdings as inheritances Regularization in this case referred to systematic parcel based surveys and clean up of data in the land recording system excluding land titling or allocation In this context a successful regularization process was to ensure that 1 land titles are legally valid and registered 11 there s a clear link between the parcel and the landholder iii the description of the parcel included in the title is consistent with its on the ground physical characteristics and iv the legal history documented in the registry is entered into a public integrated cadastre registry recording system If inconsistencies arise these are also entered into the system and flagged as issues to be addressed by future legalization efforts The ease in accessing information was expected to reduce transaction costs in title transfers Further the enhanced security of property rights stemming from recordation in the system was expected to lead to improved efficiency of rural and urban land markets enhanced land investments and productivity and increased use of property as collateral The Project objectives were clearly defined and achievable and reflected country priorities both at the time of appraisal and in subsequent years They remain highly relevant as evidenced by approval of a follow up operation El Salvador Land Administration II LAP II Ln No 7278 ES and the Government s request for a GEF o
64. litado las operaciones de registro al reducir sustancialmente los tiempos de respuesta y ha permitido el acceso de los usuarios a la informaci n registral a trav s de las terminales instaladas en las oficinas Departamentales de Registro del CNR 3 Ejecuci n del Proyecto de Administraci n de Tierras 3 1 Arreglos para la Ejecuci n El manejo de las actividades del proyecto b sicamente han estado orientadas a i Coordinar las campa as de comunicaci n e informaci n ii Supervisar a las empresas contratadas para la ejecuci n de los trabajos de Verificaci n de Derechos y Delimitaci n de Inmuebles y de Traslado Masivo al Nuevo Sistema de Registro y Catastro de las Inscripciones Inmobiliarias apoyados por un sistema informatizado de Control de Calidad SICCA iii Monitoreo y Evaluaci n del proyecto y iv Actividades de Administraci n Finanzas y de Adquisiciones Como resultado de las diferentes actividades del proyecto se han establecido las bases y los mecanismos para la regularizaci n de tierras en El Salvador mediante la creaci n de la capacidad t cnica en diferentes reas especializadas tales como la toma de fotograf a a rea apoyada con Sistema de Posicionamiento Global GPS la elaboraci n de cartograf a b sica ortofotograf as y restituciones la creaci n de una Red Geod sica b sica el escaneo del 10096 de los libros del sistema de folio personal y folios reales en papel y la creaci n de manuales t cnicos en la
65. lude an estimate of financing by component 22 Annex 3 Economic Costs and Benefits Economic and Financial Analysis El Salvador Land Administration II Summary of Economic Benefits and Costs Flow Net Present Value of Flows Expected Benefits US 70 7 million Expected Costs US 38 4 million Net Benefits US 32 3 million IRR 21 I Economic Costs The costs used in the economic analysis are those costs which bear directly on land regularization and the functioning of the land registration system These costs include land regularization activities decentralization of land administration services project administration and operating costs after the completion of the investment phase As shown in Annex 5 on Project Costs the costs with contigencies total US 55 8 million of which US 39 4 million are for land regularization US 8 7 million for the decentralization of land administration services and US 4 3 million for project management These costs are treated as a flow over the six years of the project Operating costs after the investment phase are expected not to exceed US 200 000 per year and they are accrued over the next 14 years Using a discount rate of 12 these costs have a net present value of US 38 4 million II Economic Benefits Benefits are estimated in four dimensions a impact on property value b impact on banking system c streamlining of registration process and d environmental be
66. lvador 2004 Costa Rica 2004 Nicaragua 2005 Francia Congreso anual de la FIG Federaci n Internacional de Agrimensores en 2004 M xico 2004 Curso del Banco Mundial para Centro Am rica Crecimiento y reducci n de la Pobreza M xico 2004 FIG Datos Espaciales Desarrollo de pol ticas de informaci n territorial India 2004 Panam 2003 Curso del Banco Mundial en Gesti n de Suelo Urbano Panam 2005 Preparaci n de la Segunda fase del Proyecto de Administraci n de Tierras Asesor a y asistencia administrativa al Ministerio de Medio Ambiente y Recursos naturales para la preparaci n del Proyecto Consolidaci n de Aereas Protegidas y Administraci n de Tierras El Proyecto no ejecut actividades de resoluci n de conflictos en campo pues la cantidad que pudo verificarse durante los trabajos de levantamiento de datos fue nicamente de tres casos por lo que no amerit la asignaci n de recursos en dicha rea en su lugar el proyecto atendi en Oficina por medio de la Unidad de Notificaci n de Resultados exposiciones P blicas la correcci n de errores detectados por los titulares de los inmuebles lo cual se llevaba a cabo a trav s de la tramitaci n de impugnaciones sobre la informaci n resultante del proyecto habi ndose llegado a alcanzar nicamente 1 de impugnaciones recibidas 3 4 Apoyo del Gobierno para el Proyecto Tanto en su fase preparatoria como durante su ejecuci n el Proyecto ha recibido un decidido
67. n el establecimiento de un sistema inform tico y de comunicaci n lo que ha permitido que 10 de las 11 oficinas departamentales se encuentren operando interconectadas con el Sistema de Informaci n de Registro y Catastro SIRyC el cual es un sistema digital que permite manejar la informaci n de catastro y registro de los inmuebles de forma descentralizada y facilita la consulta directa mediante terminales El Proyecto de Modernizaci n del Registro Inmobiliario y del Catastro Fase II dar su apoyo para consolidar los avances institucionales alcanzados por el CNR a fin de que sea sostenible institucionalmente en el largo plazo 5 3 Compromisos Pol ticos Existe un fuerte compromiso pol tico de parte del Gobierno en continuar apoyando la modernizaci n del registro inmobiliario y del catastro ello lo demuestra el decidido respaldo ofrecido a la ejecuci n de una Segunda Fase del Proyecto mediante la firma de una segunda operaci n de pr stamo con el Banco 51 6 Desempe o del Banco y del Gobierno en la Ejecuci n del Proyecto 6 1 El Banco El Banco ha efectuado un seguimiento continuo del proyecto asesor ndole y efectuando misiones peri dicas de supervisi n Se efectu entre ellas una misi n de medio t rmino cumpliendo con lo estipulado en el convenio de pr stamo En la vida del proyecto se tuvieron cinco Task Manager lo que en ciertos momentos afecto el seguimiento y la supervisi n por parte del Banco y en algunos
68. nancial analysis of CNR s expected cash flows carried out during preparation of LAP II shows the agency s capacity to continue financing the modernization process and assume a new loan From 2005 until 2011 when repayment of LAP II begins a surplus between US 4 and US 5 million is expected every year No surplus is projected for years 2012 ands 2013 when the repayment periods of LAP I and LAP II overlap After 2013 and until 2020 repayment period of LAP ID an average surplus of between US 3 and US 5 million is expected After that the surplus will increase significantly up to US 10 million 4 5 Institutional development impact The Project s institutional development impact is high It has successfully consolidated cadastre and registry functions and responsibilities into a single agency the CNR thereby being recognized as an example of best practice worldwide As a result responsibilities and functions related to land administration have been streamlined and rationalized and overlaps and gaps significantly reduced The Project has further successfully established an efficient and reliable decentralized cadastre and title registration system for real estate property covering the entire country It has further established a modern map production capability and a professionally operating private surveying industry Good progress has been achieved in establishing the associated legal framework based on work done during project implementation w
69. nefits This annex discusses each of these types of benefits For evaluating the cost benefit ratio of the project only direct benefits financial benefits and streamlining of registration process are used Accruing benefits over a 20 year period and using a discount rate of 12 these benefits have a net present value of US 70 7 million Impact of the Regularization Process on Property Values Increased property value due to regularization is a summary indicator of the capitalized value of three major types of benefits associated with land regularization improved investment and environmental conservation incentives marketability and ability to use the land as collateral for loans Estimating the magnitudes of these expected increases is a complex problem for a national program Property values are influenced by a wide range of factors location access to public services size value of construction use of the property each of which interacts with tenure status Controlling for these factors the difference in value between similar regularized and unregularized properties is a good indicator of the economic benefit of regularization The additional value increment associated with regularization of tenure is estimated based on empirical examination of properties which have been regularized under LAP I The premium for land regularization can be interpreted from estimating a basic linear regression model of 23 property value P f x e where
70. net economic benefits is calculated taking into consideration direct benefits from land price increase as well as benefits from the impacts on the banking sector and streamlining of services The discount rate used for the analysis if 12 The total of economic benefits is US 70 8 million and direct costs from the project is US 38 4 million The NPV of net economic benefits is US 32 4 million and the 25 project s internal rate of economic returns is 21 Economic Benefits and Costs US Thousands 2005 2006 2007 2008 2009 2010 2011 2024 1 Benefits 5 381 7 236 9 438 11 355 12 673 12 673 1 1 Increase in 5 381 5 381 5 381 5 381 5 381 5 381 property price 1 2 Impacton 1 033 2 066 3 098 4 131 4 131 financial system 1 3 822 1 991 2 876 3 161 3 161 Streamlining of registration process 2 Direct costs 3 608 14 323 15 272 12 536 6 365 1 345 200 of Project and Operating Costs 3 Net 3 608 8 942 8 036 3 098 4 990 11 328 12 473 Benefits Environmental Impact of Regularization Process The project is expected to have two positive environmental impacts due to an improvement in legal security over land 1 through the introduction of soil conservation measures in agricultural lands and 11 through the reduction of natural resource degradation in protected areas demarcated by the project With regard to agricultural lands legal security over land is expected to bring about
71. nown and positively perceived in the country 11 The percentage of unresolved conflicts in relation to the number of parcels in each affected Department was the following Ahuachapan 0 09 Santa Ana 0 12 La Libertad 0 08 San Salvador 0 02 La Paz 0 11 Of these conflicts three cases were reported to be severe conflicts for which no solution has been found to date Component 3 Project Management US 9 4 million or 13 5 of actual total project cost including contingencies and excluding PPF funds This component is rated satisfactory It provided support for carrying out information and communication campaigns supervision of field verification and property delimitation activities monitoring and evaluation and fiduciary activities The PEU performed both managerial and technical roles It effectively coordinated all project activities and managed project finances although flaws in several procurement processes were identified CNR took appropriate measures to thoroughly assess and improve the PEU procurement capabilities including setting up specific control mechanisms Problems with the procurement process were also due to the complexity and size of the contracts for regularization activities and the lack of experience of the procurement agent UNDP Loan funds were disbursed and used in accordance with Bank guidelines Audited accounts have generally been maintained satisfactorily Difficulties were initially encountered in the operati
72. o nacional de modernizaci n del registro inmobiliario y del catastro haciendo en esa oportunidad el siguiente planteamiento sobre el problema Dentro del contexto de la modernizaci n del Estado y en lo que se refiere a aquellos servicios que por su propia naturaleza no pueden ser delegados a agentes privados se encuentra el servicio de registro de la propiedad inmobiliaria Una de las mayores preocupaciones del Gobierno es la poca confiabilidad falta de agilidad y una creciente desactualizaci n de los servicios p blicos relacionados con el registro de inmuebles y las actividades catastrales que le sirven de apoyo lo que da como resultado una inseguridad jur dica en la tenencia de la tierra y a una prestaci n de servicios deficiente El dar una respuesta adecuada al problema planteado ste se enmarc dentro los lineamientos que el Gobierno 1989 1994 con respecto a la modernizaci n del Estado hab a trazado los cuales resumidamente eran los siguientes Las pol ticas publicas modernas tendientes a consolidar la paz y la democracia mantener la estabilidad econ mica y desarrollar un 37 crecimiento sostenido a potenciar la reconversi n de los sectores productivos e incrementar la inversi n social y el acceso de la poblaci n de menores ingresos a oportunidades de desarrollo econ mico y social no pueden ser implementadas a una administraci n d bil burocr tica y sin capacidad para hacer cumpl
73. o the quality of regularization works CNR developed several technical operational manuals provided comprehensive training to private contractors established a supervision unit and set up a quality control mechanism CNR was also successful in maintaining stability of its staff and in quickly adjusting to undertake new responsibilities arising from emergencies earthquakes Hurricane Mitch The only matter that took excessively long was the establishment of satisfactory Monitoring and Evaluation system 7 7 Overall Borrower performance The Borrower s overall performance is rated as satisfactory 8 Lessons Learned Continuous high level support is critical LAP I has enjoyed the highest levels of political support including that of the Presidency the Ministry of Economy and CNR s Board of Directors throughout project preparation and implementation In that context it was critical that the Project quickly delivered results e g maps cadastre computerized system financial surplus that would show its positive social and economic impact to decision makers and politicians It was also key that the project could provide timely and important information to decision makers in the aftermath of the 1998 Hurricane Mitch the 2001 earthquake and the 2002 drought Finally the macroeconomic stability that El Salvador has enjoyed during the last fifteen years has created a favorable environment for Project implementation The single land agency mode
74. on of CNR s manual M amp E system Additionally a complete and adequate baseline study to determine the Project s overall impact was lacking An action plan to adjust and upgrade the system and update existing baseline information was designed and implemented taking into account inputs from the Bank s regional assessment of land administration projects Although a satisfactory M amp E system was put in place and better monitoring of the Project s physical and financial execution was achieved the system has not allowed for a comprehensive and systematic impact evaluation of the Project M amp E activities information collection analysis reporting and presentation have been further strengthened during the preparation of the second phase of the Project Finally given the experience acquired by CNR through the Project fiduciary responsibilities for the implementation of the second phase LAP II will not be outsourced but will be carried out by CNR internal procurement and financial management units 4 3 Net Present Value Economic rate of return The SAR noted that a meaningful cost benefit analysis cannot be expected for this type of Project p 18 As a result the ICR did not conduct an economic analysis However the assumption that both institutional development and regularization activities could be realized at a cost of 40 ha 12 was overly optimistic The final figure indicates that the cost was US 85 ha which is still acceptable
75. ort Land Administration Project January 31 1996 3 LAP II PAD Project Appraisal Document Land Administration Project II February 15 2005 4 GEF PAD Project Appraisal Document Protected Areas Consolidation and Administration Project PACAP October 27 2005 5 Loan Agreement December 11 1996 6 Supervision Mission Aide Memoires and PSRs 7 LAP I Analisis Financiero 8 LAP II Analisis Economico y Financiero 9 PACAP Analisis Economico y Financiero 10 Carcach C 2005 Study of Land Markets in El Salvador Impact evaluation of the first phase of the Land Administration Project 11 Reaching the Rural Poor in the Latin America and Caribbean Region The World Bank 2002 12 Land Policy for Growth and Poverty Reduction Policy Research Report The World Bank 2003 13 Perfil de los Pueblos Indigenas de El Salvador Comite Tecnico Multisectorial para los Pueblos Indigenas de El Salvador 2003 34 Additional Annex 8 Informe Final de Implementacion Proyecto de Administration de Tierras An 1 1 tecedentes Hist ricos Situaci n de la Regularizaci n de Tierras Antes de emprenderse en El Salvador la modernizaci n del registro inmobiliario y del catastro que le sirve de apoyo el registro de la propiedad inmobiliaria se basaba en los principios del C digo Napole nico Civil del siglo XIX el cual prevalece en la mayor a de los pa ses de Am rica Hisp nica Sobre este principio la inscripci n se basa en el Folio Pe
76. parcels Training people People Not quantified 346 A Not quantified 285 Field brigades d Alternate dispute resolution Not quantified Not mechanisms quantified 19 Annex 2 Project Costs and Financing Project Cost by Component in US million equivalent Appraisal Actual Percentage of Estimate Expenditures Appraisal Component US million US million 1 Institutional Strengthening and Decentralization 10 6 16 7 57 5 a Institutional Strengthening 6 1 12 4 103 3 b Decentralization 4 5 4 3 4 2 Land data acquisition 48 7 41 3 15 2 a Mapping 15 1 12 4 17 9 b Land records regularization 33 5 28 9 13 7 c Alternate dispute resolution mechanisms 0 1 0 0 100 3 Project Administration 8 7 9 4 8 0 Project Preparation Facility PPF 2 0 2 1 5 0 Total Financing Required 70 69 5 0 7 Project Costs by Procurement Arrangements Appraisal Estimate US million equivalent 20 Procurement Method Expenditure Category ICB NCB Other N B F Total Cost 1 Works 14 0 1 5 5 0 0 00 20 5 11 2 1 2 4 2 0 00 16 2 2 Goods 2 8 0 3 2 6 0 00 5 7 2 8 0 3 2 5 0 00 5 6 3 TA consultants and 0 00 0 00 31 1 0 00 31 1 studies 0 00 0 00 20 7 0 00 20 7 4 Training 0 00 1 6 0 00 1 6 0 00 0 00 1 5 0 00 1 5 5 Miscellaneous salaries 0 00 9 0 0 00 9 0 and operating
77. peration which is expected to be approved by the Board on November 29 2005 3 The objectives are further consistent with the current FYOS FYOS Bank s Country Assistance Strategy CAS which emphasizes support for broad based equitable growth access to assets and enhanced security and reduced vulnerability The genesis of this Project is primarily found in the urgent need to improve land registry and cadastre services stemming from the Government s compliance with the land distribution program mandated by the Peace Accords As a result the Agricultural Sector Reform and Investment Project PRISA Ln No 3576 ES funds were reprogrammed to fund a pilot land registry and cadastre services in the Department of Sonsonate from 1994 to 1998 This pilot program was highly successful ICR Report No 25503 and provided the basis for a national scale up land regularization based on the new integrated land registry and cadastre system Overall the Project s design and scope were properly defined and reflected the client s needs and capacity The Project was neither too complex nor too risky in terms of implementation and it was not anticipated to be overly demanding either as assessments carried out during preparation showed that the few technical administrative and financial weaknesses of the Borrower could be easily addressed Further critical political and legal challenges were properly resolved before the effectiveness of the loan 1 The Wo
78. ported and maintained Broad and active involvement and participation of major stakeholders is key for project success In particular active communication toward and participation by civil society are important to ensure the quality of regularization work Local governments also play a very significant role in land administration reform and the delivery of services to the community 15 A pragmatic and incremental approach to legal reforms is often the best approach The Project envisaged support for key legal reforms some of which turned out to be too ambitious such as legislative changes to make registration by notaries compulsory and universal In other cases the use of a law rather than an executive decree to introduce necessary changes for the sustainability of the new system has proved not to be the most adequate tool It became clear that given the sensitivity of land administration reforms flexibility and incremental learning and experimentation was more effective to consolidate gains and move forward Automation and internet access to land records provides a more efficient service and improved access to data and information Despite the complexity of the system and the initial major efforts in terms of costs and time to establish it and train users automation has proved to be more efficient and effective than a manual system Pro actively involving the private sector through competitive contracting as was done through the Projec
79. rcent decrease 8 Improved records management has avoided the issuance of double and overlapping titles and led to detection of duplicate titles Other beneficial outcomes include the greater transparency and accountability in land transactions as a result of greater public access to land information Feedback from service users provides evidence of increased customer satisfaction in land administration services in the Project area 7 Currently CNR is a unique institution worldwide as it integrates mapping cadastre real estate property intellectual property and commercial registries functions into a single agency 8 See Annex 3 Economic and Financial Analysis carried out during the preparation of LAP II The Project also had a positive impact in terms of increased land investments and productivity and improved land management practices However such improvements were not systematically recorded and therefore it has become difficult to quantify and compare the with and without project scenarios The above mentioned study Carcach 2005 financed by CNR has found that project beneficiaries in Sonsonate have invested more in their land compared to property owners in Usulutan no project However the increase in investments could not be attributed to the Project alone Although regularization of land registration supported by the Project has undoubtedly facilitated and promoted land investments remittance payments have also been a m
80. rio legislaci n administraci n atenci n al usuario entre otros El CNR adem s ha adquirido una m stica de trabajo la cual favorece del desarrollo profesional de sus empleados al capacitarlos continuamente asegurando el CNR su inversi n por medio de retener al recurso humano lo cual es percibido como estabilidad laboral Siendo considerado al CNR como una instituci n t cnica la cual no es vulnerable a cambios pol ticos Medio Ambiente Durante la ejecuci n del Proyecto fueron incluidas muchas actividades que no estaban previstas tal es el caso del Ministerio de Medio Ambiente y Recursos Naturales MARN que ha sido uno de los beneficiarios de las actividades del proyecto dado que a trav s del mapeo se han demostrado los cambios en la cobertura de la vegetaci n a lo largo del pa s especialmente en los manglares Adem s la vinculaci n de la informaci n catastral y registral ha permitido crear la herramienta adecuada para evitar titulaci n err nea de manglares ya que se vincula la informaci n f sica gr fica con las escrituras de propiedad lo cual era muy dif cil hacerlo antes de la ejecuci n del proyecto La informaci n tambi n ha permitido hacer la delimitaci n de las reas naturales y manglares lo cual es relevante para el MARN ya que uno de los pasos para declarar un rea como parte del Sistema de reas Naturales Protegidas es hacer la delimitaci n de la parcela Otros Impactos Por medio de la solvencia y de
81. rld Bank 1996 Staff Appraisal Report El Salvador Land Administration Project Report No 15085 ES January 31 1996 2 It is estimated that there are 1 8 million parcels in El Salvador The 1 6 million estimate excluded the estimated 200 000 parcels that were regularized under the existing PRISA project 3 LAP II will i complete the regularization process throughout the country ii include titling activities in targeted poor areas and iii include specific land regularization activities in protected areas and cultural sites The Protected Areas Consolidation and Administration GEF Project will strengthen the National Protected Areas System and consolidate two protected areas 3 2 Revised Objective The original objectives were maintained throughout the life of the project 3 3 Original Components The Project comprised three components Component 1 Institutional strengthening and decentralization US 10 6 million or 15 1 percent of total project cost including contingencies and excluding PPF funds The aim of this component was to establish the institutional framework structure and procedures for the introduction of an integrated nation wide mapping and land registration system and to maintain up to date records after regularization had taken place The component further aimed at strengthening the related legal framework through the promotion of key legal reforms The component had two sub components i Institutional strengthening
82. rovided to the Executing Agency by the Government throughout project execution This had a positive influence on project sustainability and on transparency in operational decision making Likewise it is important to note that the macroeconomic stability El Salvador has maintained over the past 15 years ensured a favorable climate for project execution b Cofinanciers c Other partners NGOs private sector 10 Additional Information 16 217 Annex 1 Key Performance Indicators Log Frame Matrix Indicator Matrix Target SAR Actual Latest Estimate 1 Reduction of transaction costs Not quantified A 133 decrease from 28 to 12 2 Land registration regularized 1 6 million excludes 1 million or about 66 of target plus parcels of land Sonsonate 0 1 million in Sonsonate 3 Revenue generation US M 12 2 million 1996 2003 24 million 1996 2003 4 Increased land value US M Not quantified Price of properties with secure tenure registered is 17 higher than those not registered 5 Improved access to credit Not quantified Sonsonate w project Number of owners using land Urban 7 6 as collateral of total Rural 4 1 Usulutan w out project Urban 4 9 Rural 4 9 6 More efficient land Not quantified From on average 38 days to 16 days or registration services reduction of about 250 days transaction 7 Investments in land
83. rsonal por medio del cual el registro de los documentos que legitiman la propiedad es raz n de su propietario y no en raz n de la parcela Folio Real Este ltimo permite identificar de manera inequ voca bajo un n mero de registro el inmueble y en base al cual se inscribir n los subsiguientes cambios transacciones y anotaciones que se realicen sobre el mismo El registro de la propiedad inmobiliaria fue establecido en El Salvador en 1881 mediante la promulgaci n de la Ley Hipotecaria posteriormente fue regulado por el C digo Civil en 1904 en el cual se estableci la instituci n del Registro de la Propiedad Ra z e Hipotecas RPRH este registro recogi el principio del Folio Personal el cual estaba basado en la tecnolog a de papel Libros Bajo este sistema que se emple por m s de un siglo el manejo de los asientos de registro en Libros generaba inseguridad jur dica ya que la informaci n por ser de acceso o consulta p blica lo hac a vulnerable a alteraciones sustracciones deterioro o p rdida de la informaci n registral y era burocr tico y causaba muchas demoras Adem s bajo el sistema de Libros no era posible conocer el inventario de propiedades registradas en cada una de las Oficinas de Registro ni mucho menos una consolidaci n de la informaci n a nivel nacional El RPRH se caracterizaba por mantener una estructura institucional obsoleta y r gida con bajo perfil t cnico y administrativo con sistemas m todos de tr
84. s diferentes reas Durante la vida del proyecto la Unidad de Administraci n del Proyecto UAP mantuvo la estabilidad laboral del personal profesional t cnico y de apoyo lo que permiti una formaci n continua para desarrollar una capacidad nacional en la ejecuci n del proyecto 3 2 Enmiendas al Convenio de Pr stamo No hubo desde el punto de vista formal enmiendas al Convenio de Pr stamo aunque si hubo dos extensiones a la fecha de Cierre del Proyecto una por dos a os y otra por un a o 40 Adem s hubo cuatro reprogramaciones a las Categor as de Desembolsos 3 3 Nuevas Actividades Incluidas o Reducci n en el Alcance y Fundamentos para el Cambio Se hab a previsto que la toma de fotograf a a rea era una actividad incluida en los contratos de Verificaci n de Derechos y Delimitaci n de Inmuebles El proyecto se adquiri una c mara para fotograf a rea Leica RC 30 la cual fue instalada en el avi n existente del Instituto Geogr fico Nacional lo cual permiti realizar la fotograf a As mismo se fortalecieron significativamente las reas de fotogrametr a y geodesia tanto tecnol gicamente como capacitando al personal del CNR involucrado Hurac n Mitch en 1998 Identificaci n de las zonas afectadas con la colaboraci n de Spot Image En el a o 2001 hubo dos terremotos destructores para lo cual el proyecto efectu en coordinaci n con el Viceministerio de Vivienda y Desarrollo Urbano un censo de las vi
85. stado del proyecto para la toma de decisiones oportunas El proyecto sufri de la carencia de un manual de operaciones que definiera funciones y responsabilidades lo que generaba duplicidad o carencia de esfuerzos a pesar de ello se definieron funciones y responsabilidades mediante instructivos y manuales en cada rea pero desarticulados entre ellos Logros del Proyecto de Administraci n de Tierras 4 1 Impacto Eficacia institucional El Proyecto ha mejorado sustancialmente la eficiencia en la prestaci n de los servicios Por ejemplo por medio del Proyecto se ha logrado disminuir los tiempos de respuesta en los procesos de atenci n al cliente en el a o de 1997 los servicios registrales relativos a compraventas hipotecas segregaciones y cancelaci n de hipotecas el tr mite duraba entre 30 y 45 d as y actualmente estos tiempos se han disminuido entre 5 y 7 d as Antes del proceso de modernizaci n el n mero promedio de visitas que realizaban los clientes al Registro hasta que se le entregara el documento inscrito fue 3 a 4 veces 3 5 en promedio La experiencia en los Departamentos de Santa Ana y Ahuachap n indica que una de las consecuencias de una reducci n en el tiempo de respuesta es una reducci n en el n mero de visitas de seguimiento que los clientes deben realizar Seg n la Direcci n de Registro del CNR en el Departamento de Sonsonate el n mero de visitas requeridas por inscripci n se ha reducido a 1 0 2 1 5 en
86. stituci n las funciones de tres instituciones que antes operaban separadamente el Registro de la Propiedad Ra z e Hipotecas el Registro Social de Inmuebles y del Instituto Geogr fico Nacional Cartograf a y Catastro 39 Bajo el Proyecto Plan Nacional de Modernizaci n del Registro Inmobiliario y del Catastro Fase I LAP D se han modernizado las oficinas del CNR y se crearon unidades especializadas responsables de diferentes actividades relacionadas con la regularizaci n de tierras Este Proyecto ha apoyado la capacidad local en diferentes reas especializadas las cuales se han efectuado con la ayuda de diferentes firmas internacionales y mediante capacitaciones 2 4 Cobertura y Metodolog a de la Provisi n de servicios Con el Proyecto se ha mejorado sustancialmente la prestaci n de servicios de registro y de catastro con el establecimiento de un sistema inform tico y de comunicaci n que ha permitido que 10 de las 11 oficinas Departamentales se encuentren operando interconectadas con el Sistema de Informaci n de Registro y Catastro SIRyC el cual es un sistema digital que permite manejar la informaci n catastral y registral de los inmuebles de forma descentralizada y facilita la consulta directa mediante terminales Adem s de la descentralizaci n de los servicios con la implantaci n del SIRyC hubo cambios trascendentes en la prestaci n de los servicios especialmente de orden tecnol gico y de procesos lo que ha faci
87. t cnicas de la supervisi n y tambi n definir alcances y criterios de aceptaci n de los productos Se debe mejorar la coordinaci n de las diferentes reas que contribuyen al desarrollo del proyecto en su totalidad Dificultad de las empresas de encontrar el personal t cnico y jur dico necesario para lo que tuvieron que capacitar t cnicos especialmente lo cual a pesar que en un inicio no se previ la magnitud de este esfuerzo ha dejado un personal t cnico en el pa s capacitado el cual se calcula es de aproximadamente 800 t cnicos capacitados en reas de registro y catastro Zonas caracterizadas inicialmente como rurales las cuales eran densamente pobladas lo que implic cambio de metodolog a Condiciones del terreno dif ciles en varias zonas que no fueron previstas por los contratistas Lo que ocasion en ambos casos dificultades de programaci n y atrasos en la ejecuci n de los contratos Utilizaci n de un documento provisional del cual no se ten a experiencia en su aplicaci n por ninguna de las partes del Documento Est ndar del Banco para Contratos de Servicios de No Consultor a para uno de los contratos debido a vac os lo que conllevo a afrontar dificultades con el contratista Dificultades en implementar un sistema automatizado de monitoreo del proyecto el cual ha dde 4 sido desarrollado parcialmente ya que no se integr en sus diferentes m dulos ni permiti tener una visi n global y actualizada del e
88. t with the surveying industry can generate substantial efficiency gains and cost savings In fact use of the private sector and NGOs for land regularization instead of force account for field work has proven to be significantly more effective and efficient Strong institutional reforms and clarification of responsibilities are key for successful project implementation Although there was some resistance and inertia to change especially with regard to the establishment and use of an innovative automated system these were overcome through the provision of targeted training and capacity building activities 9 Partner Comments a Borrower implementing agency As described in the ICR the project s results have been satisfactory Part of this is due to the diligent performance of Bank staff and specialists because throughout project execution they carried out ongoing monitoring by means of periodic supervision missions and provided advice on individual issues when needed One of the most noteworthy aspects has been the experience gained and the learning achieved in Latin America through the execution of such complex projects as those of Land Administration both by the Executing Agency and the Bank as well as by the firms that executed the contracts especially those related to collecting land data registration cadastre Another important aspect to be considered among the long term policies for State modernization has been the full support p
89. tation of the pilot project under PRISA carried out in one region of the country Department of Sonsonate The project preparation team assessed the experience gained during the implementation of the pilot and identified critical areas that needed further improvement such as strengthening the capacity of the newly created CNR and expanding the existing PEU for effective project implementation The need for establishing an M amp E system was fully recognized The risks were correctly identified the low capacity of CNR and field technicians in handling the expected increase in demand for the services Environmental risks were determined to be negligible and positive impacts were expected in terms of improved land management The Project was thus rated as category C At the time of Project preparation the Bank had limited experience with similar operations in the region Notwithstanding the overall Project design was appropriate to the client s needs and to achieving the project s development objective The Projects components were reasonably related to achieving the Project s objectives and to the financial and administrative capacity of the implementing agency The Latin America and Caribbean Region considers the Project to be an example of best practice in terms of land administration However the costs of institutional development and land regularization were underestimated The comparable figures from Bank experience in Indonesia and Thailand at
90. te 101 400 fueron inscritos la diferencia 37 500 represent el 27 del total de presentaciones lo cual fue equivalente a m s de 3 meses de atraso en ese a o Desde el punto de vista de atenci n a zonas geogr ficas las Oficinas de Registro de la Zona Occidental acusaron atrasos del 40 las de la Zona Oriental del 31 y las de la Zona Central del 20 Las oficinas con mayores atrasos fueron las de San Salvador 40 Santa Ana 52 Ahuachap n 48 y San Miguel 49 11 Fuente Investigaci n del Programa de Naciones Unidas para el Desarrollo PNUD Adem s el catastro que sirve de apoyo a la seguridad jur dica del registro hab a alcanzado un nivel de desactualizaci n severa de 6 a 10 a os a adido a que solo contaba con informaci n catastral de aproximadamente del 80 territorio nacional sin catastro unos 4 000 Kn de la franja norte del pa s esto debido b sicamente a 1 Dificultades propias de la instituci n Instituto Geogr fico Nacional IGN tales como no contar con el suficiente recurso humano capacitado por la obsolescencia casi total de su equipo esencial y la ausencia de nuevas tecnolog as el 90 de su presupuesto era gastado en salarios y 2 al conflicto b lico que durante 12 a os afectaron al pa s1 1 5 Justificaci n para el Proyecto En vista que el problema hab a alcanzado niveles cr ticos es a partir de Enero de 1994 que el Gobierno emprendi las primeras acciones a fin de ejecutar un proyect
91. ternacionales US 30 5 M y otros m todos tales como Compras por Comparaci n de Precios y Selecci n de Consultores 3 6 Problemas Encontrados durante la Ejecuci n y Factores Positivos que Contribuyeron al xito en la Ejecuci n del Proyecto Falta de experiencia tanto del Banco como del prestatario en Latinoam rica para implementar proyectos de Administraci n de Tierras por lo que hubo diferentes interpretaciones en temas y alcances de t rminos espec ficos Deficiencia t cnica en diferentes reas especializadas por parte del prestatario Sin embargo a lo largo del proyecto se lograron superar estas dificultades y se logr un aprendizaje por las diferentes partes lo que conllev a lograr los objetivos del proyecto En un inici al interior del CNR hubo un rechazo al cambio en aspectos t cnicos organizacionales y metodol gicos de la din mica del proyecto lo cual se ha ido mejorando paulatinamente Contratos de Verificaci n de Derechos y Delimitaci n de Inmuebles falta de comprensi n de 43 los TdR s y de experiencia por parte del Contratista y falta de un plan de calidad Suspensi n de los trabajos durante 6 meses de una de las contratistas debido a deficiencia en la calidad de los productos Calidad insuficiente de los vuelos aerofotogrametricos entregados por el CNR para uno de los contratos debido a la falta de capacidad y experiencia Fracaso de la empresa de supervisi n de uno de los contratos debido a problemas fin
92. that the Project created a wide acceptance of the institutional importance of CNR and that a cultural shift in favor of participation in the formal credit market has started to take root in El Salvador The specific reasons behind this behavioral change will be further analyzed during the implementation of the follow up project LAP ID 5 Out of a total estimated 1 8 million parcels in the country the Project LAP I regularized a total of about 1 1 million parcels while PRISA had regularized about 100 000 parcels Under the second phase LAP ID the remaining 600 000 parcels will be regularized 6 Carcach C 2005 Estudio de Mercados de Tierras en El Salvador Evaluacion de Impacto de la Primera Fase del Proyecto de Administracion de Tierras Study of Land Markets in El Salvador Impact Evaluation of the First Phase of the Land Administration Project Table 1 Access to credit in Project and Non Project departments Urban Rural Usulut n Usulut n Sonsonate Non Sonsonate Non Project Project Project Project Place where credit request was made of parcels that sought credit Bank 45 9 27 0 50 0 38 0 Caja de cr dito 16 2 2 3 11 1 13 0 Informal lenders Prestamista 2 27 50 6 11 8 17 8 Unknown detail not given 10 7 20 1 16 0 15 1 Tt indicates a statistically significant difference 5 between the two departments The Project s second objective was to establish the bases for land r
93. tos en el uso de abonos qu micos as como disminuciones en pr cticas de conservaci n tales como uso de abonos org nicos dejar crecer monte carrileado rastrojo y siembra en curvas a nivel Parcelas Urbanas Existe evidencia que muestra que el porcentaje de inmuebles urbanos para los cuales se registr alguna inversi n fue significativamente mayor en los departamentos donde paso en barrido que en aquellos que no No se detectaron diferencias significativas en cuanto a la mayor a de aspectos relacionados con inversiones en los inmuebles Los resultados de diferentes estudios sugieren que el proceso de regularizaci n del catastro y registro ha tenido un impacto favorable en la propensi n de los propietarios urbanos a invertir en sus inmuebles y que ha contribuido a mejorar sus expectativas de inversiones en el futuro inmediato Cambio en la Metodolog a de Provisi n de Servicios Se ha desarrollado un sistema inform tico que almacena la informaci n de los libros en folio real y folio personal en papel y vincula la informaci n catastral y registral ubicando inequ vocamente la parcela vincul ndola con sus derechos registrales como con su tracto sucesivo lo que favorece a la seguridad jur dica de la parcela Adem s este sistema ha modernizado la atenci n al usuario pudiendo este consultar en terminales ubicadas en las oficinas departamentales informaci n de diferentes registros consultas que anteriormente se realizaban solamente en
94. uality at Entry Achievement of Objective and Outputs 1 2 3 4 5 Major Factors Affecting Implementation and Outcome 6 Sustainability 7 Bank and Borrower Performance 8 Lessons Learned 9 Partner Comments 10 Additional Information Annex 1 Key Performance Indicators Log Frame Matrix Annex 2 Project Costs and Financing Annex 3 Economic Costs and Benefits Annex 4 Bank Inputs Annex 5 Ratings for Achievement of Objectives Outputs of Components Annex 6 Ratings of Bank and Borrower Performance Annex 7 List of Supporting Documents Annex 8 Borrower s ICR Informe Final de Implementacion Proyecto de Administration de Tierras LAP Project ID P007174 Project Name Land Administration Project Team Leader Frederic de Dinechin TL Unit LCSER ICR Type Core ICR Report Date December 14 2005 1 Project Data Name Land Administration Project L C TF Number SCL 39820 PPFB P2640 TF 26533 Country Department EL SALVADOR Region Latin America and the Caribbean Region Sector subsector Central government administration 92 Sub national government administration 7 Law and justice 1 Theme Land administration and management P Rural markets S Decentralization S KEY DATES Original Revised Actual PCD 06 08 1994 Effective 03 11 1997 03 21 1997 Appraisal 06 29 1995 MTR 05 07 1999 05 07 1999 Approval 03 05 1996 Closing 06 30 2002 06 30 2005 Borrower Implementing Agency REPUB
95. urgente de atender a los sectores sociales de m s bajos ingresos que se encontraban el margen de la legalidad en cuanto a la tenencia de la tierra especialmente lotificaciones urbanas y rurales ilegales tugurios y zonas marginales el Gobierno cre por Ley el Registro Social de Inmuebles RSI el 12 de Abril de 1991 como una unidad especial del RPRH con el fin de registrar t tulos de esos asentamientos ilegales en tierras estatales municipales y privadas El RSI inici sus Operaciones en Agosto de 1992 empleando por primera vez en el pa s un sistema Folio Real automatizado En 1994 se expandi para las tierras distribuidas bajo los Acuerdos de Paz y para las transacciones que implicaban cambios de linderos como por ejemplo programas de vivienda Tambi n en ese mismo a o se le ampl o su competencia para el registro a nivel nacional de todos inmuebles que sufrieran modificaciones en sus linderos Esta decisi n se tomo con la finalidad de no continuar alimentando al sistema tradicional y como una etapa de transici n hacia la modernizaci n del sistema de registro Desde que inici sus operaciones en Agosto de 1992 hasta Enero de 1994 18 meses el RSI hab a efectuado 40 544 inscripciones Es importante se alar que estas operaciones registrales constituyeron una demanda que de no haber sido atendida por el RSI deber a ser atendida por las 10 oficinas del registro tradicional RPRH lo cual habr a presionado la ya limitada capacidad de
96. viendas da adas por dicho fen meno Adicionalmente el proyecto apoy a la reconstrucci n de las oficinas del CNR da adas por el mismo Sequ a de 2002 Entrega de cartograf a a Ministerio de Gobernaci n para identificaci n de las zonas afectadas Participaci n en la delimitaci n de fronteras internacionales Guatemala Honduras y l mites administrativas de El Salvador 2003 2005 Censo y delimitaci n de las ocupaciones de la poblaci n en los Bosques Salados del departamento de La Paz 2004 Capacitaci n indirecta del personal nacional de las empresas contratistas En 1999 210 personas 2000 360 2001 365 2002 617 2003 800 2004 800 2005 158 Apoyo al Proyecto a diferentes Proyectos de administraci n de Tierras PRODEP de Nicaragua PRONAT de Panam apoyo al Proyecto PATH de Honduras en asesor a inform tica y cartogr fica y capacitaci n para la UTJ de Guatemala Participaci n en la elaboraci n de documentos de precalificaci n y licitaci n est ndares del Banco Mundial La informaci n cartogr fica aunada a la transferencia de tecnolog a por el Proyecto permiti al CNR la elaboraci n de un mapa de Uso de Suelos utilizando la metodolog a CORINE Land Cover que ha servido de base para que el MARN cree la propuesta de Corredor Biol gico de El Salvador adem s se creo un Mapa a Nivel Centroamericano que fue coordinado por la Comisi n Centroamericana de Ambiente y Desarrollo Con la informaci

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