ABSTRACT
Introduction This chapter examines the South African land reform programme and its relation to poverty reduction over the period 1994-2009. It considers first the general relation between the two, drawing on theoretical and international literature, and argues that the case for land reform as a means of reducing poverty is weak at best and, in terms of historical experience, dependent on specific social, economic and political conditions. The chapter next examines the ways in which poverty and poverty alleviation have been articulated within official policy and policy debates in South Africa, contrasting the strong rhetorical support for reform with a lack of concrete strategies, particularly when it comes to including the very poor or to promoting rural incomes or employment (see Cousins, this volume). The shaping of land reform policy is further analysed in terms of the interaction of three major political currents – conservative, neo-liberal and radical-populist – which have produced a series of compromises that have greatly limited the potential of land reform as a means of poverty reduction. The chapter moves on to examine in detail four aspects of policy: land acquisition, beneficiary targeting, project planning and post-settlement support. Across each of these areas, it is argued, substantial barriers exist that make it difficult for poor and landless people to gain access to the programme, to obtain land that suits their needs and to receive the support necessary to engage in productive activities that meet their specific needs, including the need for direct food provisioning. Overall, it is argued, the South African land reform process has generally failed to meet its potential because of a combination of political, economic and administrative factors and has done particularly badly in terms of creating livelihood opportunities for the rural poor and landless.
