Land reform in Namaqualand, 1994–2005: A review

With the transition to democracy in 1994, South Africa was faced with an enormous challenge in redressing the highly unequal and racialized pattern of land rights inherited from the colonial and apartheid past. In Namaqualand, a history of land dispossession and racial segregation presented the new government with a complex set of problems, which led to a series of distinct policy responses within the context of the wider national land reform programme. Land reform in Namaqualand aims to impact positively on local people's access to land, improve livelihood opportunities and develop the local economy. Unique features of the land reform process in Namaqualand include the reform of tenure in the former Coloured Rural Areas, the prominent role played by local municipalities and the heavy reliance on municipal commonage as a form of landholding. This study provides and overview of the process of land reform in Namaqualand since 1994, considering the three elements of tenure reform, land redistribution and restitution of historical land rights. It concludes that, while considerable progress has been made in provision of additional land to historically disadvantaged communities, obstacles remain in the area of post-transfer support to new and emerging farmers.     

Environmental perceptions and practices of livestock keepers on the Namaqualand Commons challenge conventional rangeland management

In South Africa, interventions in communal rangelands proposed by most agriculture-sector institutions are still dominated by the belief that communal herders have little technical skills and by the tenets of “the tragedy of the Commons”, assuming that individual livestock keepers are selfish, norm free, and aiming at maximising short-term offtake and that there is no consistent management of the commons. In this study we show that practices of a diversity of livestock keepers on the Leliefontein Commons of Namaqualand are at odds with this viewpoint: access to rangeland and its use are structured by collective norms and concerns regarding both the sharing of resources and their long-term sustainability. We also show that part of the management of the commons relies on grazing practices which involve tacit and formalised technical knowledge that can be described and modelled. Livestock keepers assess the heterogeneity of the grazing quality of the commons. They are aware of the toxicity and unpalatability of some plants, of the way this differs according to the amount ingested and the availability of other forage, and of the variations of these two factors over seasons of grazing. They classify grazing areas and decide on daily grazing routes according to a complex set of criteria. Carrying capacity of each area is not considered as a fixed parameter but rather as a variable dependant on rainfall. Seasonal movements between areas are designed accordingly. These findings offer a new perspective for research agendas on technical models and extension measures for communal rangeland management particularly in arid and semi-arid areas.     

A synthesis of sociological and biological perspectives on sustainable land use in Namaqualand

A transdisciplinary synthesis, grouped into four main themes, of the key papers in this Special Issue on Namaqualand is provided. Perspectives on current environmental, economic and social issues in the region are interpreted in the context of the past and are used to inform future trajectories of change and development needs within the region. Firstly, in terms of the climatic and biophysical environment, Namaqualand's rich biodiversity is not uniformly distributed and is explained in terms of the spatially heterogeneous geological, pedological and topographical gradients that characterize the region. Spatial and temporal variation in rainfall over long time frames would also have promoted speciation within isolated, poorly-dispersed, leaf succulent populations. Future climate models propose a decrease in rainfall across the region with an associated reduction in livestock production. The second theme provides an historical perspective on changing land use practices in Namaqualand over the last 2000 years. It suggests that they have frequently been influenced by events originating far from the region such as colonial expansion, apartheid legislation and globalization. Local people, particularly marginalised communal farmers have had to adapt to these outside influences within an increasingly confined landscape that has progressively eroded their mobility and restricted their ability to utilise the spatial and temporal variability inherent in semi-arid environments. The third theme shows how livelihood diversification has been one of the key ways in which local people from communal areas have adapted to change. While farming makes up a relatively small part of the income of most households it enhances the resilience of livelihoods in the region. The fourth theme is concerned with land reform, conservation and restoration in Namaqualand. While a significant amount of land has been transferred to previously-marginalised groups, equitable access to these resources is lacking. An exclusively commercial orientation within the extension and development programmes of the Department of Agriculture further hampers the effectiveness of land reform as a tool for reducing levels of poverty in the majority of households in the region. Conservation initiatives could enhance livelihood options in Namaqualand but are viewed by some as being in competition with the state's land reform programme and are too recent to reflect significant regional benefits at this stage. While restoration is possible in severely degraded lands, the costs and operational difficulties in these event-driven, semi-arid systems are emphasised. Finally, this synthesis suggests that the important exogenous drivers of change in the 21st century are likely to be climate, biodiversity conservation initiatives, land redistribution and continued processes of de-agrarianisation as a result of macro-economic change. A focus on building institutions, encouraging livestock mobility within a significantly expanded commons and supporting livelihood diversification are some of the approaches necessary to address the development needs of Namaqualand.     

“Die man is die hoof en vat voor”: Women's attitudes to land and farming in the communal areas of Namaqualand

In the former coloured rural reserves of Namaqualand, land is held under an evolving form of communal tenure. This study, using in-depth interviews with both women farmers and non-farmers in Namaqualand, explores women's attitudes towards land and their experience of agriculture. It finds that women gain access to land for residential and production purposes mainly through dependent relationships with husbands, fathers and sons, and that unmarried women find it virtually impossible to obtain land rights in their own name. In the event of divorce or widowhood, women are vulnerable to loss of land rights and other resources. Women were found to engage in a range of agricultural activities, both on land allocated for their own use and on land controlled by male relatives, while a few better-off women engage in independent livestock farming. While the South African government's land reform programme has extended the area of communal land and attempted to secure the rights of existing land holders, this has largely benefited existing male farmers and appears to offer little to women farmers. Women's attitudes to the patriarchal system of land holding were found to be largely conservative. Few are willing to challenge the highly gendered nature of land rights within families, and women generally feel excluded from public processes around land. Nonetheless, women in the study expressed a demand for more secure access to land and an interest in agriculture as part of wider livelihood strategies.     

The impacts of sustained heavy grazing on plant diversity and composition in lowland and upland habitats across the Kamiesberg mountain range in the Succulent Karoo, South Africa

This study explored the impacts of sustained heavy grazing in six vegetation types across an altitudinal and rainfall gradient in the Kamiesberg mountain range in Namaqualand. The study was carried out across the fence separating the Leliefontein communal area and surrounding privately owned farms. The communal area has been stocked over decades at approximately twice the government recommended stocking rate, while adjacent privately owned farms have generally adhered to recommended rates. Plant community data were collected from 66, 0.1 ha modified Whittaker plots and analysed for diversity and compositional changes. Consideration of community-wide responses through NMDS ordination showed that heavy grazing did not result in the dominance of a few wide-spread, weedy species in communal areas. Species richness at the 0.1 ha scale was also not affected by different land use practices. However, there was a significant compositional shift away from large woody and succulent shrubs, and an associated increase in dwarf shrubs and herbaceous perennial plants on the communal areas. This shift was only evident on the sandy lowland habitats, while a reduction in perennial grass was recorded in the rocky upland habitats on the communal areas. Compositional shifts towards smaller and more ephemeral species in the communal area are indicative of a system more closely dependent on rainfall. This has implications for people's livelihoods in the region, particularly in light of predicted climate change.     

Pastures of plenty?: Land rights and community-based agriculture in Peddie,a former homeland town in South Africa

The post-apartheid South African government has emphasized land reallocation in key national policy documents as a means to address apartheid-era legacies of poverty and inequality in the former homelands (black reserves). In this paper, a case study of the Masizame Community Garden Project in Peddie, a small former homeland town, explores the issue of group ownership rights of commonage for poverty alleviation purposes. Poor communication, commitment to gender empowerment and limited transparency of land application processes at different levels of government emerged as key issues that continue to frustrate attempts by local people to secure ownership rights of vacant municipal commonage to earn a livelihood.     

THE RISE,FALL, AND RECONFIGURATION OF THE MEXICAN EJIDO*

ABSTRACT. After the Mexican Revolution of 1910 the Mexican federal government created a communal resource‐holding institution, the ejido, to redress long‐standing land‐tenure inequality. Between the 1930s and the late 1970s, the period of active redistribution of federalized and previously private resources, half of Mexico's entire area was transferred to the ejido sector. Local ejidos became the driving political and economic force at the municipio level for agrarian reform, redistributing local power and affirming the national stamp of the Partido Revolucionario Institucional, the dominant national party of the twentieth century. Although the 1992–1993 reforms to Article 27 of the Mexican Constitution prohibited any future expansion of communal lands and allowed privatization of communal resources, few widespread privatization schemes have taken hold in the vast majority of ejidos. In this article I provide examples of this new communal framework and its implications, with illustrations based on fieldwork in the states of Guanajuato and Sonora.     

Patterns of resource use by livestock during and after drought on the commons of Namaqualand, South Africa

The aim of this study was to determine the effect of drought on grazing patterns of livestock in a communal rangeland in Namaqualand. Water points were the foci of almost all grazing routes even after the drought, and the areas away from the water points were less heavily utilized. The mountains could be regarded as key resource areas for livestock since the grazing intensity was higher in the elevated areas of the rangeland than on the surrounding low lying areas during and immediately after drought. Spatial patterns of resource use by livestock on the commons did not differ during the drought and post-drought period. The lengths of the daily grazing routes were similar for both periods. This may be a consequence of the weakness of animals during the drought when forage was scarce which prevented them from walking further. The size of home ranges of the herds did not change during the two monitoring periods. We attribute this to social reasons because herders try to avoid the mixing of herds. In the commons of Namaqualand, herders are also spatially constrained and this restricts their options to adapt to drought, and hence many animals died.     

From pastoralism to tourism: The historical impact of changing land use practices in Namaqualand

We use the concept of ecological revolutions to explain the environmental history of Namaqualand, from the advent of pastoralism 2000 years BP, to colonial settlement in the 18th century and finally to the recent trend of de-agrarianization from the middle of the 20th century. Early traveller's records and census data are used to assess changes in the human population of the region and how this affected wildlife and agricultural practices. Pre-colonial indigenous hunter-gatherer (Bushmen) and pastoralist (Khoekhoen) populations in Namaqualand consisted of probably no more than a few thousand individuals. Over the next three centuries, the general population rose steadily to more than 65,000 people but has fallen in recent years. Wildlife appears not to have been abundant in Namaqualand's pre-colonial landscapes and large springbok ‘treks’ were probably a rare event. The number of domestic livestock in Namaqualand peaked in 1957 largely as a result of an increase in the number of sheep which have fallen steadily since this time. Crop production was absent from Namaqualand's pre-colonial landscapes but increased to cover nearly 30,000 ha in the early 1970s. The area under cultivation has declined by nearly two thirds since this time largely as a result of the large-scale abandonment of wheat farming in marginal environments. We touch on differences between the communal areas and private farms, particularly in terms of their human populations and agricultural impact on the land. Repeat landscape photographs support our main findings which suggest that both rocky, upland habitats and rivers have not been transformed substantially by land use practices in Namaqualand. Instead, sandy pediments have borne the brunt of human impacts in the region. Finally, we highlight the beginning of a new ecological revolution in Namaqualand due to changes in the global and national political economy.     

Common cause or common concern? The role of common lands in the post-productivist countryside

Summary The aim of this paper is to contribute towards a better understanding of the contemporary position of commons as a land resource, and to evaluate whether commons have a distinct role to play in today's 'post-productivist' countryside. Following the government's recent recognition of the multi-functional role of commons, the paper sets out to investigate whether this can be achieved through existing agri-environmental schemes. A case study of commons in the Cambrian Mountains (Wales) enables an assessment of the compatibility of one recent agri-environmental scheme, the ESA scheme, with commons management. It is concluded that new legislation and policy are needed, and that agri-environmental policy may provide an opportunity to develop a framework within which the management of common land can be improved to meet conservation and amenity as well as farming objectives.     

Rural Local Economic Development and Land Restitution in South Africa: The Case of Schmidtsdrift,Northern Cape

Local Economic Development is (LED) an activity of increasing importance in the developing world as globalisation produces new roles for local governments. As compared to a growing number of urban initiatives for LED, rural LED initiatives are relatively undeveloped. In this paper, the focus is upon South Africa, where the post‐apartheid government has sought to encourage both urban and rural LED initiatives. Programmes of land reform and restitution in South Africa result in the resettlement or return to the land of communities formerly dispossessed under apartheid. A critical element of planning for successful resettlement is the implementation of LED programmes. Schmidtsdrift in Northern Cape is examined as an example of participatory LED in a developing rural context. Rural LED in South Africa is distinguished by its focus upon poverty alleviation in the context of addressing the legacies of apartheid.     

Resilient geographies: land, boundaries and the consolidation of the former bantustans in post-1994 South Africa

This paper focuses on the spatial impact of land reform and the redrawing of internal boundaries on South Africa's former bantustans. It argues that, in contrast to the democratic government's intention to use land reform and boundary demarcation to effectively change the spatial legacy of apartheid, these processes tend to cement the geography of the former bantustans. Though earlier research correctly projected that post-apartheid policies could result in the enlargement of the areas of the former bantustans, the ways in which this could happen were still unclear. This paper draws on experiences of land reform and boundary demarcation to demonstrate how and why the areas of the former bantustans have been enlarged over the 12 years of democracy in South Africa.     

The battle over the commons in port cities

ABSTRACT

The zone of intersection between land and sea within an urban context has long been viewed as a special type of urban commons. The well-researched port-city interface, however, tells a rather tragic story about the use and management of this valuable resource. This study asks how four major regulatory-institutional issues in the interface – land ownership, activities allowed in port area, planning autonomy, and public access – affect the ability of ports and cities to preserve elements of “commons” in urban coasts? Furthermore, it assesses if and how Elinor Ostrom’s principles for overcoming commons-related tensions, could contribute to the management of port-city conflicts over land-uses in the Mediterranean urban coastline and the various questions that may derive from such an application. For these purposes the study combines a comprehensive literature review with the analysis of planning regulation and in-depth, semi-structured interviews of key-stakeholders in seven port cities across three Mediterranean countries. The common experience in these different cases suggests that through a strategy involving scaling-down spatial decisions or governance, and built-in mechanisms for spatial cooperation, ports and the cities that host them can find a new joint path, which will strengthen local synergies and the quality of urban, public space.     

Occupational paths towards commercial agriculture: The key roles of farm pluriactivity and the commons

In South Africa, “black” and “coloured” farmers engaged in several occupational activities are often considered as being “not interested in farming” or “not serious”. However, in Namaqualand the large majority of “coloured” farmers and especially the most successful ones are pluriactive and have off-farm incomes. Investigations were therefore carried out in that region to better understand the role of pluriactivity. Observations focus on middle-income households from the mining sector entering into small-scale commercial farming. Based on surveys in both non-farm and farm sectors, the results show that, for many households, access to sufficient farm assets depends strongly on the employment situation of the sector of origin and requires a level of investment which can be reached only progressively. This obliges these households to rely on off-farm incomes and communal land at least during the early transitional stage. These results stress the importance of taking into account the diversity of paths and of differentiating the various stages in the transitional period between two occupational activities. Finally, the paper emphasises the importance of taking these specific situations into consideration in the management of the commons.     

农村土地制度改革与乡村振兴

乡村发展现实困境与乡村振兴战略目标之间存在巨大鸿沟。论文总结了1949年以来农村土地制度改革与乡村发展的演进态势与时代特征,基于农村土地制度改革的功能体系,剖析了二者的互动机制,探讨了农村土地制度改革助推乡村振兴的发展路径与典型模式,并进行了研究展望。结论如下：① 农村土地制度改革是破解当前乡村发展困境、推进乡村振兴的突破口,本质是新时期为适应城乡生产力发展的生产关系再调整,二者均具迫切性、交融性与攻坚性的时代特征。1949年以来农村土地制度与乡村发展总体耦合联动、互促互馈。② 新时期,农村土地制度改革具有多功能价值,通过补短板促进乡村重构与乡村多功能发展,发挥制度联动、城乡融合与经济转型的乘数效应,助推乡村振兴,并带动城乡地域系统功能优化。③ 农村土地制度改革沿整合要素、重组结构、优化功能的路径,因地制宜、分类推进乡村地域功能演变与乡村振兴。④ 未来需发挥农村土地制度改革的制度联动作用,同时重视改革的政策性摩擦,深化乡村振兴对农村土地制度改革的正反馈,并权衡农村土地制度改革举措与乡村发展的适应性问题。     

轨道交通沿线土地溢价归公的政策与实践——以东莞市为例

轨道交通周边土地开发和溢价归公有助于缓解城市财政压力,推动公交都市建设。结合国外实施溢价归公的政策和实践模式,以东莞市为例,在资料收集、政策分析、文本和案例解读的基础上,探讨了中国城市政府在规划和建设轨道交通中,以土地溢价归公反哺轨道交通融资的政策安排和实施效果。结果表明:1)溢价归公的本质是以特定方式实现正外部效应的内部化,由于土地制度和税收体系的差异,欧美地区溢价归公主要依赖多样化的土地税收体系,而中国城市的实践主要借鉴了“轨道+物业”的联合开发模式;2)东莞市溢价归公策略的形成是综合开发规划编制和审批、沿线土地控制和储备、土地发展权转移、土地增值分配等核心环节有效协调的结果;3)东莞轨道交通沿线土地开发能形成可观的财政收益,潜在土地收益占轨道资金总需求的比例超过20%,但在实施过程中仍面临较大困难。东莞市案例能为其他城市轨道交通融资、土地开发和溢价归公的政策体系编制和有效实施提供一定的参考。     

The Institutional Architecture of Extractive Reserves in Rondônia, Brazil

This paper examines the evolution and development of institutions involved in the establishment of extractive reserves. It focuses on the different actors, organizations and projects concerned with extractive reserves in Rondônia in western Amazonia, Brazil. Extractive reserves are widely seen as a means of integrating forest conservation and local socio-economic development. As such, they have gained the support of the international environmental movement, multilateral and state development organizations, and grassroots community and producer organizations. These institutions represent a vast array of diverse interests which range from conservation of biodiversity, economic and social cohesion, and regional and national development. Whilst the various actors and institutions claim mutual and complementary interests, they form shifting alliances and coalitions in order to further their interests. This paper maps these institutions and interests and describes how alliances have been formed and broken, and how this has contributed to the currently observed implementation of extractive reserves. The paper argues that extractive reserves are constrained by the dissonance or misfit in discourses and underlying worldviews, reflected by the aims and objectives, of the institutions which promote, oppose and lose and benefit from their implementation. This misfit is overcome, in part, by alliances formed between the different institutions, and in part by the creation of new institutions and projects.     

The Baikal problem: History and present (the 25<Superscript>th</Superscript> anniversary of the establishment of the Government Commission for Baikal)

This paper provides an overview of the documents on the preservation and sustainable use of natural resources within the Lake Baikal drainage basin. An analysis is made of the results of the environmental activity during the period of planned economy and post-perestroika. In the reform years, Baikal was included on the List of the World Natural Heritage Sites, the Federal Law “On the protection of Lake Baikal” was adopted as well as three federal target programs of the protection of the lake and socioeconomic development of the Baikal natural territory. Due to funding shortages, however, they are hardly implemented. The latest legal acts substantially restrict the rights of local residents to land privatization, the development of the social infrastructure, and to use natural resources. Furthermore, in spite of a large number of federal nature conservation directives, closure of many enterprises and reductions in emissions, the ecological situation on Lake Baikal is not improving. Among the problems is the negative attitude of local residents toward the restriction of their constitutional rights to property and economic activity. In addition, all ecological legislative acts are adopted without any public discussion and funding of environmental protection expenditures is not a priority. An improvement of the ecological situation on Baikal is possible only through a further development of the region’s environmentally safe economy and by raising the living standards of the local population on the principles of sustainable development with due regard for the interests of future generations.     

Policy narratives, landholder engagement, and oil palm expansion on the Malaysian and Indonesian frontiers

Over recent decades a structural transformation has affected agriculture in the frontier areas of Malaysian Borneo and Outer Island Indonesia with the rapid conversion of agricultural lands, fallows, and formerly forested areas into oil palm. These frontiers have similar positions in the international political economy of oil palm and have complementary resource endowments. In both cases, state planners face the common challenges of finding a disciplined labour force, delivering land for estate development, maintaining local legitimacy, and dealing with local contestation. Yet there are significant differences in systems of governance and policy frameworks regarding land, shifting capacity of state actors to facilitate the transformation of these agrarian frontiers, and changing degrees of local, national and international contestation. Considering the generic and the specific elements at play in each case, this paper argues that analogous policy narratives have shaped the ways in which landholders have been engaged in the process of oil palm expansion in Malaysia and Indonesia. In both cases, with the shift from state-led to neoliberal governance approaches to agricultural development, the 'frontier' has been created and transformed through policy narratives that facilitate the conversion of whole landscapes into oil palm. This has been achieved by obscuring indigenous forms of agriculture and land tenure, while creating reserves of available 'state' or 'idle' customary land, and counterpoising smallholder 'marginality' and 'backwardness' to the modernity of contemporary estate agriculture.     

From global politics to local land users: applying the United Nations Convention to combat desertification in Swaziland

This paper explores the relevance of the United Nations Convention to Combat Desertification (UNCCD) and its related National Action Programmes (NAPs) to people affected by land degradation and change in Swaziland. Household data collected from three chiefdoms are examined, together with policy analyses and information from interviews with policymakers and NGO representatives, as the barriers that inhibit successful implementation of the UNCCD at the national level are explored. We demonstrate how the issues addressed by Swaziland's NAP do not always match the environmental challenges that most threaten the sustainability of rural livelihoods, despite the 'participatory' and 'consultative' approach taken in developing the policy. This is because the more powerful members of society restricted the public's access to policy space. We argue that local involvement in environmental policy and decision-making as prescribed from the international political arena is insufficient to ensure empowerment and democracy in dealing with land degradation in national and local contexts, particularly within highly centralized political systems. Although the UNCCD represents a useful global framework in which to situate local anti-degradation initiatives, in centralized political systems, its success depends upon changes being made to the ethos of national facilitating organizations. Only when the power balance is challenged and greater moves are made towards decentralization will local land users be able to assume a meaningful role in combating desertification.