More Than Socially Embedded: The Distinctive Character of “Communal Tenure” Regimes in South Africa and its Implications for Land Policy
Open accessAbstract
This article analyzes debates over tenure reform policy in post‐apartheid South Africa, with a particular focus on the controversial Communal Land Rights Act of 2004. Land tenure systems in the ‘communal areas’ of South Africa are described as dynamic and evolving regimes within which a number of important commonalities and continuities over time are observable. Key underlying principles of pre‐colonial land relations are identified, which informed the adaptation and modification of tenure regimes in the colonial era and under policies of segregation and apartheid, and continue to do so today. Exploring the policy implications of this analysis, the article suggests that alternative approaches to that embodied in the Communal Land Rights Act are required. The most appropriate approach is to make socially legitimate occupation and use rights, as they are currently held and practised, the point of departure for both their recognition in law and for the design of institutional frameworks for administering land.
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Cousins and Hall have extensively criticized market-based land reform approaches and advocated for more inclusive, pro-poor strategies.
“For instance, Cousins and Hall have extensively criticized market-based land reform approaches and advocated for more inclusive, pro-poor strategies [18,29].”
From How Has South Africa's Land Reform Policy Performed from 1994 to 2024? Insights from a Review of Literature (2025) · cites this paper as [18]
In 'Alternative Approaches to Tenure Reform' and the Conclusion (page unavailable), Cousins argues against individual titling and advocates securing existing land rights through more democratic administration and support for rights holders. That supports the inclusive-reform part of the claim, but this paper does not specifically critique market-based land reform approaches, establish that the criticism was extensive, or speak for Hall. (LLM, conf=0.82)
Experimental — accuracy not yet measuredThere is widespread uncertainty in former homeland areas about the validity of documents, procedures for transferring land within families, and legality of leasing or selling land rights.
“there is widespread uncertainty about the validity of documents (e.g., permission-to-occupy certificates), the appropriate procedures for transferring land within families, and the legality of leasing or selling rights to land (Ntsebeza 2006;Cousins 2007).”
From Agricultural Land Redistribution and Land Administration in Sub-Saharan Africa: Case Studies of Recent Reforms (2014) · cites this paper as Cousins 2007
The Contemporary Period and Tenure Reform in Post-Apartheid South Africa sections describe unclear land-administration rules, uneven use of Permission to Occupy certificates, and differing practices around land sales. They support widespread uncertainty about land rights, but do not specifically establish uncertainty about the validity of certificates, procedures for transfers within families, or the legality of leasing rights. Page numbers were not provided in our copy. (LLM, conf=0.84)
Experimental — accuracy not yet measuredUnder customary land tenure systems, rights are both individual (the holding) and communal (the commons).
“4) Rights are both individual (the holding) and communal (the commons).”
From Theories of Land Reform and Their Impact on Land Reform Success in Southern Africa (2019) · cites this paper as [27]
Under customary land tenure systems, rights are derived from accepted membership of a social unit, either through birth or acquired allegiance.
“2) Rights are derived from accepted membership of a social unit (kinship ties), either through birth or acquired allegiance.”
From Theories of Land Reform and Their Impact on Land Reform Success in Southern Africa (2019) · cites this paper as [27]
Customary land tenure systems allow multiple uses and users of resources.
“3) They allow multiple uses (e.g., farming, fishing, occupation) and users (e.g., farmers, migrants, herders, residents) of resources.”
From Theories of Land Reform and Their Impact on Land Reform Success in Southern Africa (2019) · cites this paper as [27]
Under customary land tenure systems, land rights are socially embedded, overlapping, and nested.
“1) Land rights are socially embedded, overlapping, and nested. They mirror the social and cultural values of the community and gain legitimacy from the trust a community places in the institutions governing the system.”
From Theories of Land Reform and Their Impact on Land Reform Success in Southern Africa (2019) · cites this paper as [27]
Customary land tenure rights are dynamic and evolve in response to external or internal change, with flexible and negotiable boundaries.
“5) They are dynamic and evolve in response to external or internal change. Boundaries are flexible and negotiable.”
From Theories of Land Reform and Their Impact on Land Reform Success in Southern Africa (2019) · cites this paper as [27]
The need for improved tenure security for customary land rights-holders in South Africa arises due to historic dispossession of land from black people combined with restricted land access over the past two centuries.
“This need arises due to historic dispossession of land from black people, combined with restricted land access over the past two centuries.”
From Theories of Land Reform and Their Impact on Land Reform Success in Southern Africa (2019) · cites this paper as [27]
The enactment of colonial and independent republic policies of land occupation and administration and later apartheid land policy and administration profoundly affected customary land holding and land rights.
“The enactment of colonial and independent republic policies of land occupation and administration and later apartheid land policy and administration profoundly a ected customary land holding and land rights [15,27,148].”
From Theories of Land Reform and Their Impact on Land Reform Success in Southern Africa (2019) · cites this paper as [27]
Existing literature on South African land reform reveals significant gaps: most studies adopt a descriptive approach focusing on policy intent or isolated program components without integrating frameworks linking land reform outcomes to broader socio-economic transformation.
“Theoretically, most studies adopt a descriptive approach, focusing on policy intent or isolated program components, without integrating frameworks that link land reform outcomes to broader socio-economic transformation [10,18].”
From How Has South Africa's Land Reform Policy Performed from 1994 to 2024? Insights from a Review of Literature (2025) · cites this paper as [18]
In “Commonality and Continuity” (page unavailable), Cousins distinguishes description from explanation in discussing his own analysis. The passages on South African tenure literature and reform do not say that most studies focus on policy intent or isolated programmes, or that they lack frameworks linking outcomes to broader socio-economic transformation. Searches for those characterizations found no supporting passage in our copy. (LLM, conf=0.72)
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- Authors
- COUSINS, B.
- Affiliations
- University of the Western Cape (ZA)
- Corresponding author
- COUSINS, BEN
- ORCID
- COUSINS, BEN
- Venue
- Journal of Agrarian Change
- Publisher
- Wiley
- Published
- 2007-06-03
- Volume
- 7
- Issue
- 3
- Pages
- 281-315
- ISSN
- 1471-0358 (ISSN-L)
- 1471-0366
- OpenAlex
- W2024647577
- Cited by
- 180
- References
- 67
- Citations by year
- 2026: 11 · 2025: 5 · 2024: 3 · 2022: 8 · 2021: 12 · 2020: 21 · 2019: 6 · 2018: 7 · 2017: 7 · 2016: 8 · 2015: 8 · 2014: 8 · 2013: 23 · 2012: 11
- FWCI
- 17.45
- Type
- journal article
- Language
- en
- Open access
- hybrid
- doi.org
- Licence
- Locations
- Journal of Agrarian Change (publishedVersion, other-oa)
- UWC Research Repository (University of the Western Cape) (submittedVersion)
- Topics
- Life Sciences › Agricultural and Biological Sciences › Soil Science › Land Rights and Reforms
- Life Sciences › Agricultural and Biological Sciences › General Agricultural and Biological Sciences › Agriculture, Land Use, Rural Development
- Social Sciences › Sociology and Political Science › African studies and sociopolitical issues
- Keywords
- communal land tenure, land tenure reform, communal areas, colonial land policy, land rights recognition, South Africa
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