| Chapter 4 Learning from experience: An overview of the evidence: Reviewing Restitution, LRAD and Commonage from a SIS perspective |
|
4 LRAD, Commonage and share equity 4.5 Field-based learning findings: LRAD and Commonage 4.5.3 Basotho Letjhabile, Free State |
|
This 1 350ha farm was purchased by DLA for R1.215 million in 2004 on behalf on nine families who had been employees of the former owner. In addition, the following State funds were received and spent in the project:
Functional and spatial integration The enquiry into this project brought up fundamental disagreements between PDoA and PLRO officials about whether DLA's mandate ends once it has transferred land to project beneficiaries. PLRO officials said the delivery targets set for them in terms of the number of hectares of land to be transferred are constantly increasing. They expressed serious doubts about whether the targets could in fact be reached, given the lengthy procedures that must be completed in order for land to be transferred. Although case studies and the experience of DLA officials was that simply transferring land did not ensure successful land reform, they resisted the idea that the Department's role should be extended into PSS and project M&E. PDoA officials, on the other hand, were angry at not being treated as equal partners with DLA. They felt the PLRO's project planning was often poor and frequently failed to involve PDoA. The PDoA was then expected to rescue projects that were fatally flawed from the start. One participant characterised the situation as one of a conflict between the mandates of DLA and the departments of agriculture. DLA's mandate is essentially political, has a defined end point and involves a transfer of agricultural land. However, the departments of agriculture have an economic mandate, in the sense that they support the productive use of agricultural land. The participant argued that until DLA sees itself as responsible for ensuring that land is used productively, it will continue to hand over projects without putting in place the necessary conditions to ensure the land is used optimally. As is the case with most other land reform projects examined in this study, Basotho Letjhabile does not form part of the municipal IDP. Social and institutional factors The nine families who make up the beneficiary group have lived and worked together for more than 15 years. Previously they were employed by the same farmer, who left them to farm his land when he retired. As can be seen in other projects, a high level of social cohesion has positive and negative aspects. On the positive side, social control enables the Trust to function effectively, to make rules which are obeyed, and to take business decisions concerning the management of the farm. On the negative side, social control has been used to exclude women and youth and has restricted skills transfer. It seems that succession planning is poor. Outsiders are not permitted to come into the community because members fear losing the land. This has resulted in, for example, a rule that the daughters of members who marry outsiders have to leave, thus entrenching a patrilineal system. The Basotho Letjhabile Trust comprises the nine male heads of households. A total of 36 beneficiaries received grants. Almost all the Trust members are illiterate and innumerate. Younger members of the beneficiary community are attending a nearby school. Because of the male trustees' patriarchal attitudes to women and young people and their exclusion from the Trust's business, the question arises: to whom are the nine Trust members accountable? Currently this is not perceived as a problem because the Trust is authoritative and commands respect. However, as Trust members become old and retire from the farm, their places will be taken by others and a power struggle may ensue. It appears that the Trust is functional and meets regularly. It is easy for trustees to take decisions against the background of a long history of living and working together and socially defined, if inequitable, relations of power. Strong social cohesion helps with effective decision-making as well as rule-making and enforcement. Rules made apply to all members and their families, but it is not clear if people can appeal against the rules or their enforcement. Women and youth are completely excluded from the running of the Trust and its finances. This raises the potential for conflict in the future, as well as problems with succession planning, since the male Trust members are very dominant in the farm, although they are ageing. They are highly resistant to the idea of women playing any role in the farming activities. Probably because of high levels of illiteracy, the Trust members state that they do not understand the purpose or provisions of the Trust Deed. It appears the trust document was drafted without proper consultation with the trustees. An agricultural extension officer provided trustees with support to draft what is called an operational constitution, but is more like a set of rules which supplements the Trust Deed. Because it is written in their mother tongue, trustees feel ownership of this document and refer to it frequently. It sets out the rules concerning, for example, alcohol on the farm and what happens if someone marries or leaves the farm. The Trust's decisions are taken only by the nine active Trust members. One of these men appears to be dominant. He acts as chair of the Trust and director of the farm. There are concerns about the future of the Trust because of centralisation of skills and authority and the negative attitude towards women and youth. It appears that each man will decide who succeeds him, but only male children will be eligible. The (female) PDoA extension officer is working to build the capacity of promising youth. For example, two young women who are doing bookkeeping at school are now keeping receipts and records of expenditure, and three young people (two boys and a girl) attended a course on maize production organised by the extension officer. The composition of the trustees will change over time as individuals retire. It is possible that current dominant attitudes will shift. The extension officer has a good relationship with the project. She is providing a good role model for young women in the project as well as gently challenging the attitudes of the Trust members. It cannot be overemphasised how important this relationship is to the success of the project. The extension officer is able to support the beneficiaries without instilling a sense of dependence in them, and they rely on her for technical advice. She is also committed to getting the conditions in place to ensure success for the project. For example, through her offices, CASP funding of R189 000 was secured to rehabilitate the borehole and construct handling facilities for the livestock. It appears that she acts as the liaison point between the project and other role-players such as the local municipality and Eskom. The extension officer's skills could be improved so that she is better able to give technical advice and encourage the use of appropriate technology, which is essential if the farm is to become less vulnerable. Capacity and skills building for all beneficiaries could help the men to accept the need to allow women and youth to participate fully in the project. The extension officer has prepared and submitted a training needs analysis to PDoA (for non-formal training) and the Department of Labour (to get access to training grants through SETAs). The Trust indicated it wanted training on financial management. However, the Trust has a blind spot about its own farming ability and has been resistant to offers of training or advice. For example, the extension officer has identified a need to train members on breeding so that the cattle herd can be better managed. The trustees do not believe it is required. INRM and sustainable human settlements Basotho Letjhabile has secure housing for each family in the Trust. There are rules about how housing can expand and who is permitted to live there. However, basic services have not been secured. There is no sewerage system, electricity or waste collection. Water is pumped from a borehole to a single tap. It was not possible to make a thorough investigation of the natural resources in the limited time. However, the following observations were made:
Economic factors The Basotho Letjhabile project is a fairly straightforward LRAD project. It is characterised by a strong relationship between a highly functional Trust and the agricultural extension officer. Although the 1 350ha farm is making a profit, it is very vulnerable. Its small profit margin could be wiped out by a disaster such as drought or wildfire. In addition, in comparison with the total gross margin obtained by commercial farms growing the same produce in Free State and North West, the farm is underperforming. Basotho Letjabhile's total annual gross margin is R155 060, while the average for similar commercial farms is R335 765. Basotho Letjabhile therefore makes 46% of the average profits of equivalent commercial undertakings. According to the assessment team:
However, there was also evidence of a paradigm clash between government officials and the beneficiaries about the nature of the business approach. It was observed that:
These findings could reflect an underlying perception that subsistence is somehow a bad and backward farming approach. However, given the socio-economic profile of the participants and their precarious capital base, what they do could also be interpreted as a rational and appropriate response to the situation they find themselves in. The key challenge presented by the project is what an appropriate SIS Strategy would be. Currently, the relative success of the project is in part due to a strong and long-term relationship between the participants and the local agricultural extension officer. Clearly extension support treads a fine line between providing advice and guidance and creating a sense of dependence. The assessment team highlighted that this is highly skilled work which is not adequately recognised. Clearly the Strategy needs to be informed by an approach that will progressively reduce the levels of vulnerability and ensure sustainability and output growth.  |