Reads A popular narrative holds that land reform has failed. But evidence from a study across four provinces tells a different story. Success is not about land reform alone, but about building capable farmers.
More than three decades after the end of apartheid, land reform remains one of South Africa’s most politically charged and economically important policies. Since 1994, the government has sought to redress historical land dispossession through restitution, redistribution, and tenure reform. Yet public debate often frames land reform as a failure, pointing to underutilised farms, wasted public funds, and declining agricultural output.
But this story is incomplete. Evidence from the ground shows that land reform can and does work when it is implemented properly and when success is measured in the right way.
A recent study by the Agricultural Research Council’s Economic Analysis Unit challenges conventional thinking by analysing successful land reform farms across four provinces. Its central message is simple but powerful: land reform success is not about land transfer alone, but about building capable farmers within functioning agricultural systems.
The real challenge begins after land transfer
Since 1994, South Africa has transferred roughly nine million hectares of agricultural land, reaching about 25% of the original 30% redistribution target set in national policy. While this is progress, productivity on redistributed land remains uneven. National reviews estimate that fewer than 10-15% of redistributed farms operate at full commercial potential.
The core problem is not access to land: it is what happens after transfer. Many beneficiaries receive land without adequate production finance, infrastructure, skills development, governance support, or market access. As a result, farms struggle to remain viable despite significant public investment.
What successful land reform looks like in practice
Contrary to the narrative of widespread failure, the ARC study documents numerous land reform farms that are productive, profitable, and resilient. These farms span livestock, grain, and horticultural enterprises and supply both informal and formal markets.
Success is characterised by common features:
• Prior farming experience, even at small or communal scale
• Strong personal motivation and passion for farming
• Family involvement and intergenerational skills transfer
• Disciplined management and financial record‑keeping
• Integration into functioning markets, such as auctions, processors, retailers, or export value chains.
These farms employ workers, generate income, and contribute to local food security demonstrating that land reform can deliver tangible economic outcomes when conditions align.
Capital alone is not enough
A consistent finding from the case studies is that capital injections on their own do not guarantee success. Several failing farms received substantial recapitalisation grants, infrastructure, and livestock. Yet without sound management, reinvestment discipline, and market alignment, production declined over time.
Conversely, some of the best‑performing farms succeeded with modest public support, relying instead on accumulated experience, reinvestment of profits, and reliable market participation. This confirms findings in the broader literature that land reform outcomes depend more on capability and systems than on grant size alone.
Why partnerships matter
The study highlights the importance of well‑designed public-private partnerships in bridging the gap between land access and commercial success. Models such as the Sernick Group, the Partners in Agri Land Solutions (PALS) Programme, and the Vumelana Advisory Fund show how mentorship, governance support, finance, and market access can be combined to support emerging farmers.
Critically, effective partnerships are not open‑ended, they require having common and specific goals. These goals can be achieved by establishing:
• Clear governance structures
• Transparent contracts
• Mechanisms for skills transfer and mentorship
• Planned exit strategies that promote farmer autonomy
• Where these conditions are absent, partnerships risk entrenching dependency or elite capture.
Rethinking how success is measured
A major weakness of South Africa’s land reform policy is the lack of clear, outcome‑based success indicators. Policy documents tend to emphasise outputs such as hectares transferred or beneficiaries settled rather than long‑term outcomes.
Drawing on international practice and local evidence, the ARC report proposes that success should instead be measured through:
• Sustainable productive land use
• Income generation and livelihood improvement
• Job creation
• Market participation
• Food security contributions
• Long‑term farm viability
When evaluated against these criteria, land reform performance appears uneven but far from uniformly unsuccessful.
From isolated successes to scale: a practical framework
Based on real farm experiences, the study proposes a five‑pillar framework to scale land reform success:
- Beneficiary readiness and selection - prioritising passion, experience, and commitment
- Secure tenure and adaptive ownership models - providing incentives for long‑term investment
- Integrated post‑settlement support - combining finance, infrastructure, skills, and mentorship
- Market integration and commercialisation - linking farmers to reliable value chains
- Monitoring, evaluation, and learning - tracking outcomes and adapting support
This framework shifts land reform from a once‑off transaction to a managed developmental pipeline.
Conclusion: from redistribution to transformation
The evidence is clear: land reform in South Africa is not doomed to fail. Where beneficiaries are carefully selected, supported, and connected to markets, redistributed land becomes productive, livelihoods improve, and rural economies grow.
The real policy challenge is not whether land reform should continue, but how it should be implemented at scale. Success will depend on abandoning a narrow focus on land transfer and investing instead in farmer capability, institutional coordination, and long‑term commercial sustainability. If policymakers commit to scaling what already works, land reform can move beyond political symbolism and become a cornerstone of inclusive growth, food security, and rural employment. The land is there; the models exist. What remains is the will to implement them consistently and intelligently.
References
Aliber, M., & Cousins, B. (2013). Livelihoods after L and Reform in South Africa. Journal of Agrarian Change, 13(1), 140-165.
ARC (Agricultural Research Council). (2025). Developing a framework for scalable land reform implementation in South Africa
Binswanger-Mkhize, H. P. (2014). From failure to success in South African land reform. African Journal of Agricultural and Resource Economics, 9(4), 253-269.
Conradie, B., Piesse, J., & Stephens, J. (2019). The changing environment: Efficiency, vulnerability and changes in land use in the South African Karoo, 2012–2014. Environmental Development, 32, 100453.
Cousins, B. (2016). Land reform in South Africa is sinking. Can it be saved. University of Western Cape, PLAAS.
Department of Agriculture, Land Reform and Rural Development (DALRRD) (2023; 2024). Abstract of Agricultural Statistics. Pretoria: Department of Agriculture, Land Reform and Rural Development (DALRRD).
Department of Rural Development and Land Reform (DRDLR). (2017). Report by the Department of Rural Development and Land Reform
Groenewald, J. A. (2004). Conditions for successful land reform in Africa. South African Journal of Economic and Management Sciences, 7(4), 673-682.
National Agricultural Marketing Council (NAMC). (2019). Status Report on Statutory Measures Implemented in terms of the Marketing of Agricultural Products Act (Act No.47 of 1996). Pretoria: National Agricultural Marketing Council (NAMC).
Panel, P. A. (2019). Final report of the Presidential Advisory Panel on Land reform and Agriculture. For His Excellency the President of South Africa, 4.
The Bureau for Food and Agricultural Policy (BFAP). (2020). Highlights from the BFAP Agricultural Outlook 2021-2030. Agriprobe, 18(4), 22-25
Vink, N., & Kirsten, J. (2019). Principles and practice for successful farmland redistribution in South Africa.
Footnotes
Agricultural Research Council, 2025
DALRRD, 2023
DRDLR, 2017; Presidential Advisory Panel, 2019
Hall, 2015; Cousins, 2016
BFAP, 2020; NAMC, 2019
Aliber and Cousins, 2013; Vink and Kirsten, 2019
Binswanger‑Mkhize, 2014; Abdoll & Kirsten, 2024
Vink & Kirsten, 2019
Groenewald, 2004; Conradie, 2019
ARC, 2025
