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April 2017
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Working Paper No. 6

The Flexible Land
Tenure System in the

Context of the Sustainable
Development Goals

Åse Christensen

Department of Land and Property Sciences
Namibia University of Science and Technology

ABSTRACT

ThepurposeofthisstudyistoinvestigatewhethertheFlexibleLandTenureSystem(FLTS)in
NamibiaisinlinewiththeFit-For-Purpose(FFP)landadministrationapproachwhichis
developedinordertoimplementtheSustainableDevelopmentGoals(SDGs)atnationaland
locallevelindevelopingcountriesbyprovidingtenuresecuritytopoorpeopleandcreating
country-widelandrecordationsystems.TheFFPapproachisbasedonaMinimumViable
Productfocusingonthespecificlocaltenuresecurityneeds,flexibilityonsurveyaccuracy,
legalandinstitutionalframeworksandanincrementalimprovementasafoundationfor
furtherdevelopment.ThestudyisbasedonaliteraturestudyoftheSDGs,theFFPapproach
andtheFLTSinNamibia.Theliteraturestudyisbasedoncontemporarytheoriesonland
administrationandhowaccesstotenuresecuritycancontributetopovertyalleviation.The
studyindicatesthatcertainelementsoftheFLTSarecomplyingwiththecharacteristicsofthe
FFPapproachandthushaspotentialtocontributetofulfillingtheSDGsinNamibia.Thereis
howeveraneedforfurtherin-depthacademicresearch.

Keywords:SustainableDevelopmentGoals,Fit-For-PurposeLandAdministration,Secure
LandTenureinNamibia,FlexibleLandTenureSysteminNamibia.

ÅseChristensen
NamibiaUniversityofScienceandTechnology

DepartmentofLandandPropertySciences
achristensen@nust.na

© 2017 ILMI Integrated Land Management Institute

ISBN: 978-99916-55-63-5

ILMI is a research centre at the Faculty of Natural Resources and Spatial Sciences (FNRSS)
at the Namibia University of Science and Technology (NUST).

Views expressed by the authors are not to be attributed to any of these institutions.

Please visit our website for details on ILMIs publications policy.

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ILMI Working Paper No. 6 1

1.Introduction

Thepresentworkingpaperisworkinprogressandbasedonaliteraturereviewconductedin
regardtothedevelopmentofaPh.D.proposalandisanelaborationofanextendedabstract
submitted to the Institutional Research Week at Namibia University of Science and
Technology inNovember2016.Thepurposeof thisworkingpaper is tobrieflyexplainand
create the link between the current global development agenda as stipulated in the
SustainableDevelopmentGoals(SDGs)andtheoveralltenuresecuritycontextinNamibiaand
furtherassociateittotheFlexibleLandTenureSystem(FLTS)asdevelopedinNamibiaand
stipulated in the Flexible Land Tenure Act (FLTA). The study is based on contemporary
international theorieson landadministration,povertyalleviationandtenuresecuritywhich
have replaced the conventional land administration paradigm introduced in many Sub-
Saharan African countries during the colonial period. The conventional approach was
centred on traditional Western style land registration and cadastral mapping which has
proofednot tobe conducive to localconditionsandcapacitiesandmostoften favours the
elite only,while being biased against the poor and low-incomepeople (Simbizi, Bennett,&
Zevenbergen,2016,p.19).Theparadigmshiftisthusconsideredtobemoreappropriatefor
low-income and informal settlerswho aremost often excluded from the conventional land
registrationsystems.

The conventional land registration systems are considered inappropriate and unaffordable
for the vast majority of the Worlds population due to high registration costs, its time
consumingandslowanddonotaddresstheglobalmajoritysneedinregardtotheprovision
of tenuresecurity.Enemark,McLaren,&Lemmenestimate that itwill takeseveraldecades,
andmorelikelycenturies,toestablishlandadministrationsystemsindevelopingcountriesin
order "to achieve anywhere near full global coverage" (2015, p. 7). Furthermore, when
considering the current global rapid urbanisation rate and expansion of slum areas, social
polarisationandenvironmentalchallengesetc.theconventionalregistrationsystemsarenot
abletoprovidecountrywidedataandinformationneededwithinareasonabletimeframeand
at affordable cost. The Fit-For-Purpose Land Administration Guiding Principles are
specifically developed to address the implementation of the SDGs in national and local
contexts in developing countries as well as in developed countries with incomplete land
registration and administration systems. The FFP approach is based on experience from
projectsinRwanda,EthiopiaandKyrgyzstan(Enemarketal.,2015,p.116).

It is now well recognised that secure tenure and property rights are fundamental for the
reductionofpovertyandtounderpineconomicdevelopment,socialinclusion,andsustainable
development. It isrecentlyclearlystipulatedbyEnemark,McLaren,&Lemmen,(2015,p.7)
that solutions to theglobal land issuesrelate toalleviationofpoverty, social inclusionand
stability,investmentsandeconomicdevelopment,andenvironmentalprotectionandnatural
resourcemanagement.TheMillenniumDevelopmentGoals (MDGs)weresetting theglobal
agenda from 2000 to 2015with the overall agenda of reducing poverty and improve poor
peopleslife.AlthoughtheMDGsdidnotspecificallymentionland(Enemark,2016,p.4)some
of theMDGswere indirectlyrelatedthereto.TheMDGswerereplacedbytheSDGsby2016
andsettheinternationaldevelopmentagendaforthenext15years.TheSDGshaveanumber
of goals and targets that are directly related to poverty alleviation, land, tenure security,
urban development, land governance etc. which makes it interesting and necessary to
investigatetheSDGsinaNamibiancontext.

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Namibiaobtainedindependencein1990afterwhichtheindigenouspeoplewereallowedto
settleanywhereinthecountry.Thiscausedmanypeopletomigratetourbanareasandsince
then the urban population has increased on an annual basis. This has provided for the
developmentofapolicyframeworkthatoutlinestheoveralllong-termnationaldevelopment
agenda.ThedevelopmentframeworkisstatedintheNamibiaVision2030(Vision2030)and
further concretised in a number of national development plans. The Mass Housing
DevelopmentInitiativewassettledin2013andin2016theHarambeeProsperityPlan(HPP)
was developed along with the initiation of an implementation plan for the Massive Urban
LandServicingProject(MULSP).Thevariousplansandprojectsindicatethatsignificantfocus
andattentionhasbeenpaidtonationaldevelopmentissuessinceIndependence.However,in
regardtolandissuesattentionhaspreviouslymainlybeenconcerningrurallandreformand
resettlement of previously disadvantaged citizens despite the fact that since Independence
ruraltourbanmigrationhasincreasedsignificantly.AccordingtothemostrecentPopulation
andHousingCensusReportfrom201242%ofthepopulationlivesinurbanareascompared
to 2001where around 33% lived in urban areas (Namibia Statistics Agency, 2012, p. 38).
During recent yearsmore attention is paid to urban land issues, including the provision of
tenuresecuritytourbaninformalsettlers.Theincreasedurbanisationandtenureinsecurity
toindigenouspeoplecausedthedevelopmentoftheFlexibleLandTenureSysteminthemid-
nineteen nineties. Nevertheless, the Flexible Land Tenure Act (FLTA) was only enacted in
2012and the regulationsare stillpending.TheFLTS is specificallydesigned to cater to the
provision of tenure security to urban low-income and informal settlers. Thus, thisworking
paper briefly describes the relation between the international agenda as stipulated in the
SDGsandtheFLTSinNamibia.

2 TheGlobalAgenda
TheMDGsunderpinnedandencouragedglobalawarenessandweremeasuresofimportant
social priorities worldwide that could be used to promote political accountability and
improvedperformancevia thecreationof incentives tonationalgovernments in theoverall
reductionofpoverty(Sachs,2012,p.2206).Forexample,Goal7,Target11statedBy2020,to
have achieved a significant improvement in the lives of at least 100million slumdwellers
(UN-Habitat,2003,p.2).Goal3onpromotinggenderequalityandempoweringwomenwere
also linkedto tenuresecurityandpropertyrights (Enemark,2016,p.4).Globally theMDGs
werenotfullyachievedbytheendof2015which,accordingtoSachs,areduetooperational
failures in both the implementing countries as well as the donor countries that have not
fulfilled promises on development assistance (Sachs, 2012, p. 2206). Despite the
incompletenessinachievingthegoals,therewaswidespreadconsensustocontinuethefight
against poverty beyond 2015 and this lead to the development and agreement on the
SustainableDevelopmentGoals(SDGs).

Sincearound2010 theglobaldevelopmentagenda increased focusoncurrent international
challengessuchasclimatechange,includingnaturaldisasters,waterandfoodinsecurityand
environmental degradation (United Nations, 2015b, p. 61). In addition, high urbanisation
rates have become common and cause significant negative impacts on climate change
(Enemark,2016,p.4)whichhavebeenconsideredinthedevelopmentoftheSDGs.TheSDGs,
whichwerefinallyagreeduponinSeptember2015,havereplacedtheMDGs.TheSDGsarea
set of 17 Goals and 169 associated targets to be implemented at a local level by the UN

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member states during the next 15 years (United Nations, 2015a, paras 23). The overall
purpose of the SDGs is to end poverty, protect the planet, and ensure prosperity for all
(United Nations, 2016). The 17 SDGs are illustrated in figure 1 below. The successful
implementation of the SDGs is reliant on the active contribution by many different
participants, including government institutions at national and local level, NGOs, corporate
business, educational institutions, as well as private individuals (United Nations, 2016).
Namibia,asamemberoftheUnitedNations,waspartofthedevelopmentoftheMDGsaswell
astheSDGsandhasthuscommittedtoworktowardstheachievementofthetwosetsofgoals.

Ingeneral,theentiresetofMDGsandSDGsaresupportedandreinforcedbyaccesstoland,
whichconstitutesthefoundationfordevelopmentinallaspects.TheMDGsandSDGsarenon-
bindingagreements,andactasasetofsoftlawsguidingmoralandpracticalcommitments
by the member states (Sachs, 2012). However, the MDGs and the SDGs have also been
criticisedfornotsufficientlyconsultingwithandinvolvingthelow-incomegroupsbutrather
beingtoocentredontheroleofinternationalagenciesandnationalgovernments.Moreover,it
has been suggested that more attention should have been paid to the support of local
democraticprocessesandtodevelopcapacityamongstthelocalresidentsandempowerthem
during thedevelopmentof the goals (Satterthwaite, 2003,p. 182). Lackofmeasurabilityof
successor failure isanothercriticalpoint thathasbeensubject tocriticism forsomeof the
targetsoutlinedintheSDGs(Pichel,2015).

A number of the SDGs include goals and targets with direct reference to land and tenure
security.Forexample,Goal1callsforendingpovertyinallforms,target4shapesequalrights
formenandwomeninregardtoaccesstobasicservices,ownershipandcontroloverlandand
property.Goal2target3statesthedoublingofagriculturalproductivityby,forexample,more
equalaccesstoland.Goal5target5aformstheundertakingofreformstoprovideequalrights
to ownership and control over land and other forms of property, financial services and
inheritance. Goal 11 target 1 outlines access to adequate, safe and affordable housing and
basic services for all and the upgrade of slums. Target 3 is on inclusive, sustainable and
participatory sustainableurbanisation, and target11 ison supporting linksbetweenurban,
peri-urban and rural areas by improved planning, inclusion, climate change and disasters.
Goal 15 is on sustainable management of forests, combating desertification and land
degradationandGoal16callsforreducingcorruption,developmentofeffective,accountable
and transparent institutions, inclusive and participatory decision-making, public access to
information,andthestrengtheningofinstitutions(UnitedNations,2016).

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Figure1:illustratesthesetof17SustainableDevelopmentGoals(SDGs)thatareagreeduponbytheworldleaders
withtheoverallpurposetoendpoverty,protecttheplanet,andensureprosperityforall.Source:(UnitedNations,
2016).

Fromalandtenureperspective,issuessuchastenuresecurity,equalaccesstoland,andgood
governance in landadministrationareprerequisitestoreachtheSDGs(ColumbiaCenteron
SustainableInvestment[CIESIN]/SustainableDevelopmentSolutionsNetwork[SDSN],2016;
Enemark, 2016; USAid, 2015). Capacity assessment, institutional development, and
development of human resources are essential tools in this regard. More specifically, the
provision of geographical information, secure tenure systems, as well as systems for land
management,landvaluation,anddevelopmentoflandarekeyissuesintheefforttoreachthe
MGDs(Enemark,2007,p.1)andSDGs.Internationalrecognisedorganisationswithintheland
sectorhavedevelopedtheso-calledFit-For-PurposeLandAdministrationGuidingPrinciples
astohowtheSDGscanbeimplementedinnationalandlocalcontextsandwhichisdescribed
inthefollowingsection.

3 Fit-For-PurposeLandAdministration
The development of the SDGs indicates a newway of dealingwith the global development
agenda to improve the lives of people, particularly in developing countries. Good land
governanceisconsideredcrucialfortheachievementofthenewglobaldevelopmentagenda
and has caused the development of the so-called Fit-For-Purpose Land Administration
Guiding Principles (FFP). The FFP are jointly developed by the Global Land Tool Network
(GLTN),UN-HabitatandKadasterasaresponsetothecurrentglobalsustainabledevelopment
agenda,asoutlinedintheSDGs.TheFFPGuidingPrinciplesarematerialisedinthepublication
Fit-For-PurposeLandAdministrationGuidingPrinciplesbyEnemark,McLarenandLemmen
anddescribehowtheSDGscanbeimplementedatapracticallevelwhilestillconsideringthe
nationalandlocalcontextineachcountry.In2014TheInternationalFederationofSurveyors
(FIG) together with the World Bank (WB) published a booklet on Fit-For-Purpose Land
Administration,whichisthefirsttimetheapproachisdescribedandthusconsideredasthe
initiation of the concept. Therefore, the below description of the FFP approach is mainly
basedonthetwosaidpublications.

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Various scholars and international organisations have for many years suggested
implementing consolidated property systems that provide the foundation for sustainable
developmentandlandmanagementsincetheyarecrucialinordertoaddressdifferentneeds
amongst different groups of people (Chitonge & Mfune, 2015; Durand-Lasserve, 2006;
Enemark et al., 2015; FIG, 1999; FIG & UN, 1996; Kohli, 2014; Payne, 2001; Tebbal &
Augustinus,2003).Likewise,in2012,theFoodandAgricultureOrganization(FAO)published
the Voluntary Guidelines on the Responsible Governance of Tenure of land, fisheries and
forestsinthecontextofnationalfoodsecurity.Theseguidelinesacknowledgetenuresecurity
andequitablerightstoland,fisheriesandforestsasafoundationforsustainabledevelopment,
alleviationofpovertyandhunger,foodsecurity,environmentalprotection,housingsecurity,
andsocialstability(FoodandAgricultureOrganizationoftheUnitedNations(FAO),2012).

TheFFPapproachisarelativenewconceptandsofarverylimitedliteratureispublishedonit
albeititispartlybasedonexistingknowledgeachievedduringresearchconductedduringthe
past 10-20 years although the specific FFP concept is encompassing a more holistic and
thoroughapproach.

TheFFPapproachisbasicallyaboutbuildingcountrywidelandadministrationsystemswhile
atthesametimeprovidingtenuresecurityforallwithinashorttimeframe,inanincremental
manner,andataffordablecosts. It isdescribedasagamechangerfordevelopingcountries
andoffersaviable,practicalsolutiontoquicklyandaffordablyprovidesecurityoftenurefor
allandtoenablecontroltheuseofallland(Enemarketal.,2015,p.8).Theauthorsfurther
statethatunresolvedlandissuesprovidesanincreasednumberoflandconflictsandcausesa
lackofinvestmentandeconomicdevelopmentinmanydevelopingcountries(p.9).TheFFP
conceptisthusdevelopedwiththepurposetoenablefortheimplementationoftheSDGsand
identifies three key characteristics that should be considered in this regard. The
characteristicsareasfollows:

Focus on purpose: Prior to designing a land tenure system the purpose of it should be
determined and focus should be on the expected outcome of the system, i.e. providing tenure
security for all, and, secondly; how can it best be achieved. It should be designed in the best
possible way to fit the specific purpose so that it provides as little as possible as much as
necessary(Enemarketal.,2015,p.9&pp.33-34).

Regardless of the purpose of the land tenure system it will require some kind of spatial
framework, in the form ofmapping of the area, to ensure its proper operationalization.When
designing and establishing the spatial framework the focus should also be on the purpose and
issuessuchastherequirementsforidentificationoflandparcelsmustbedetermined(Enemarket
al.,2015,pp.3334).Inmanyinstancesitmaybesufficienttoapplyageneralboundaryapproach
ratherthanafixedboundaryapproach.Generalboundariesrequiresnoaccuratelandsurveyingof
theboundarieswhoseapproximatelineisallthatappearsinthelandregistrationsystemandno
on the ground adjudication of the boundaries is required (Dale & McLaughlin, 2003, p. 50).
Generalboundariesareusuallyshownonalarge-scaletopographicmap.Thisiscontrarytofixed
boundaries which require determination of the precise boundary between parcels and usually
involvesalicensedlandsurveyor(Williamson,Enemark,Wallace,&Rajabifard,2010,p.360).

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Flexibility:Landtenuresystemsshouldbeflexibleenoughtoaccommodatethecurrentsocietal
needswhichwill likelychangeovertime.Theflexibilityshouldconcernboththefunctionof the
systemaswellasthelocation;hencethesurveyaccuracy(spatialframework)aswellasthelegal
and institutional frameworks shall be flexible in order to address the various types of tenure
securityexistinginaspecificcountry,includinge.g.socialorcustomarytenure,privateownership
and leasehold tenure.The flexibility should also apply to the recordingand thus allow forboth
legal and natural persons, including a family, a tribe, a community, etc. to be registered as the
holderofaright(Enemarketal.,2015,p.34).

Incremental improvement: Land tenure systems should be designed to provide initial tenure
securityinlinewithcurrentrequirementsinaspecificcountryyetcarefullybalancingthecosts,
accuracy,andtimeinvolved:aso-calledMinimumViableProduct(MVP)isrecommended.Atthe
sametimethesystemshouldstillprovidefortheopportunitytoincrementallyimprovethelevel
of tenure security, in the formof upgrading to a higher level, if orwhen social and legal needs
ariseandeconomicopportunitiesemerge(Enemarketal.,2015,p.34).ThedesignofaFFPland
administration system should therefore encompass the entire range of the continuum of land
rightsinthespecificcountry.

3.1 Fit-For-PurposeConcept
TheFFP concept ismadeupof threedifferent yet fundamental components,which are the
legal and regulatory, the spatial, and the institutional frameworks, respectively. Please see
figure 2 below for an illustration of the three components of the FFP concept. The three
components are mutually dependant and interrelated and form a conceptual nexus
(Enemark et al., 2015, p. 35), hence the components need to be carefully coordinated to
ensurethattheframeworksaremutuallyreinforcing(Enemarketal.,2015,p.35).Thethree
characteristics described above (the focus on purpose, flexibility and incremental
improvement) should be considered and critically analysed for each of the fundamental
componentswhendesigninganddevelopingaFFPlandadministrationsystemsoastoensure
sufficient space and flexibility to accommodate the entire range of present tenure security
needs and available financial resources and it must also be applicable within different
geographical,judicial,andadministrativecontexts(Enemarketal.,2015,pp.34&35).

It is crucial that theFFPcharacteristics concerning focuson thepurpose, the flexibilityand
theincremental improvementoftheFFPapproachareincorporatedinthenationalpolicies,
landlawsandtheregulatoryframework(thelegalandregulatoryframework)andhencewill
beimplementedandappliedbytherelevantinstitutions.Certainly,inorderfortheinvolved
institutionstoprovidetransparencyandcosteffectiveservicestoallcitizenstherewillbea
needforcontinuouscapacitydevelopmentattechnicallevelaswellason-goingenhancement
ofhumanresources.

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Figure2illustratesthethreefundamentalcomponentsintheFit-For-PurposeLandAdministrationconcept.Source:
(Enemark,2016,p.10;Enemarketal.,2015,p.35).


Design and development of a FFP land administration system will in many developing
countries call for reforms of the current spatial, legal and regulatory, and institutional
frameworksandwill inmany instancesalso require significantdevelopmentof theexisting
capacitywithinthelandsector.

Each framework within the concept must be flexible enough to meet the actual needs of
today and can be incrementally improved over time in response to societal needs and
availablefinancialresources(Enemarketal.,2015,p.34).Pleaseseefigure2abovetogetan
overviewofthethreedifferentframeworksintheFFPlandadministrationconceptandfigure
3 below for the four key principles linked to each framework. The three frameworks are
describedbelow.

Spatial framework: The spatial framework is a spatial representation of theway land is
occupiedandused(Enemarketal.,2015,p.35).Itshouldbeincompliancewiththespecific
needs ineachcountry inorder tounderpin therequirements forregistrationof thevarious
typesoftenuresecurityaswellasthemanagementofthe landuseandrightsallocatedand
theexistingnaturalresources.Thescaleandaccuracyofthedataandinformationcapturedin
thespatialframeworkwilldifferduetofluctuatingneedsbutmustinallcircumstancesbeup-
to-dateandshouldbeaccessibletotherelevantinstitutionstoensureintegrated,transparent,
user-friendly and appropriate management (Enemark et al., 2015, p. 35). The spatial

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framework should be using a fast, affordable, and participatory approach in order to
acceleratetheprocessofrecordinglandrights.Large-scalemapping(satelliteand/oraerial
images) is considered sufficient and appropriate for determining the vastmajority of land
rightsboundaries.Inareaswithhighvaluelandandpropertiesconventional landsurveying
techniquescanbeapplied.Theuseof large-scalemappingwillsignificantlyreducethecosts
and time compared to the use of conventional land surveying. The approach is considered
adequate to suit the requirements for basic land administration functions such as service
delivery,administrationofnaturalresourcesandlanduse,aswellaslandtaxation(Enemark
et al., 2015, pp. 37 & 42). During recent years technological development has caused
significantreductionofthecostsfori.e.aerialimagesbytheuseofdronesandwhichinmany
caseswillprovideasufficient levelofdetails fordeterminationofboundariesaswellas for
mappingpurposes.

Legalandregulatoryframework:Thelegalandregulatoryframeworkshouldaccommodate
allthedifferentexistingtenuretypesandthusbeflexible,simpleanddesignedspecificallyto
caterforthesocietalneedsinaparticularcountry.Alltheexistingtenuresystemsshouldbe
enshrined in the legal and regulatory framework, which should be appropriate for
decentralised administration and recordation. The human rights should be applied, and
special attention should be given to gender equality despite local customs and tradition
(Enemarketal.,2015,p.37&pp.5964).

Institutional framework: The institutional framework should be designed for the
administration of land rights and comply with the principles of good governance. This
encompasses transparency, legitimacy, accountability, equitability, and integrity. It calls for
proper national land policies along with appropriate and conducive acts, laws, and
regulations. In order to capture the full range of tenure forms the institutional framework
shouldsupportthecontinuumoflandrights(Enemarketal.,2015,pp.37&104).

KEYPRINCIPLES

Spatialframework

Legalframework

Institutionalframework

" Visible(physical)
boundariesratherthan
fixedboundaries;

" Aerial/satelliteimagery
ratherthanfieldsurveys;

" Accuracyrelatestothe
purposeratherthan
technicalstandards;

" Demandsforupdatingand
opportunitiesfor
upgradingandon-going
improvement.

" Aflexibleframework
designedalong
administrativeratherthan
judiciallines;

" Acontinuumoftenure
ratherthanjustindividual
ownership;

" Flexiblerecordationrather
thanonlyoneregister;

" Ensuringgenderequityfor
landandpropertyrights.

" Goodlandgovernance
ratherthanbureaucratic
barriers;

" Integratedinstitutional
frameworkratherthan
sectorialsilos;

" FlexibleICTapproach
ratherthanhigh-end
technologysolutions;

" Transparentland
informationwitheasyand
affordableaccessforall.

Figure3illustratesthethreeframeworksembeddedintheFFPLandAdministrationconceptandoutlinesthefour
mainprinciplesofeachofthethreeframeworks.Source:(Enemarketal.,2015,p.36).

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TheFFPapproachhasbeensuccessfully implemented inRwanda,Kyrgyzstan,andEthiopia,
wherecountrywidelandadministrationsolutionshavebeenappliedwithinshorttimeframes
andataffordablecost(Enemarketal.,2015,p.11).Withinaperiodoffiveyears,allprivate
land in Rwanda was registered by applying a first-time systematic registration approach
basedongeneralboundaries(Simbizietal.,2016,p.11)withtheaimofcreatingacomplete
publicrecordof landholdings(Biraroetal.,2015,p.10).AccordingtoEnemark,around10
millionparcelswere,overafiveyearperiod,demarcated,adjudicatedandregisteredatacost
ofaroundUSD6perparcel(Enemark,2016,p.12).

In order to investigate whether the FLTS in Namibia has the potential to contribute to
fulfillingtheSDGsitisimportanttounderstandtheoverallcontextoflandandtenuresecurity
inthecountry;hencethisisdescribedinthefollowingsection.

4 SecureLandTenureinNamibia
AfterIndependencein1990,theindigenouspopulationinNamibiawasallowedtoownreal
propertyandlandandsettleanywhereforthefirsttime.Thiscausedpeopletoflocktotowns
and cities where they settled on un-used land in peri-urban areas; thus began informal
settlementinNamibia.Stilltoday,thevastmajorityofmiddleandlow-incomepeoplecannot
afford purchasing and registering land and immoveable property in the freehold land
registrationsystem.Accordingtoastudyin2011bytheBankofNamibiatheyconcludedthat
morethan73%ofNamibiansareexcludedfromaccesstocreditandthereforecannotafford
to buy urban land and housing (National Planning Commission (NPC), 2017). In 2013
Namibia was ranked number four of countries with the highest increase in house prices
making it increasingly difficult for low and middle income groups to acquire housing
(National Planning Commission, 2017). TheNPC further states that the inequality between
thedemand for and the supply of serviced land; high land, construction and land servicing
costsareexcludingmanypeoplefromacquiringformallandandpropertyrights.Fromalocal
authority perspective informal settlements causes that the towns develop outside their
controlandoftenonsitesdifficulttoservice(Christensen,Werner,&Højgaard,1999,p.1).

Land in Namibia is classified in three categories of which urban and rural land can be
classified;stateland,communallandandcommercialland(LegalAssistanceCentre,2009,p.
1). State land is thepropertyof the state andall land that isnototherwise lawfullyowned
belongs to the state. It is used for nature conversation, game parks, agricultural research
farmsandmilitarybasesandalsoincludesurbanlandownedbylocalauthorities.Stateland
constitutes around 16%of the total geographical area of the country (UN-Habitat, 2005 as
citedinJakobsen&Christensen,2007,p.130).Commerciallandcanbeprivatelyownedurban
land within proclaimed boundaries or rural commercial farmland or freehold agricultural
land (Legal Assistance Centre, 2005 as cited in Jakobsen & Christensen, 2007, p. 130).
Commerciallandconstitutescirca44%oftheentireNamibiangeographicalarea(UN-Habitat,
2005ascitedinJakobsen&Christensen,2007,p.130).Communallandincludesalllandused
bythe indigenousNamibiancommunitiesbut isownedbythestate,whoheld it intrust for
the indigenouscommunities.Communal landconstitutesabout40%ofNamibias total land
area.

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Namibiacurrentlyhas fourdifferent formal land tenuresystemsaddressingdifferentneeds
and interests. These apply in different areas of the country. The systems are the Deeds
Registration System, the Deeds Registration of Rehoboth, the Communal Land Registration
System(CLRS)andtheFlexibleLandTenureSystem(FLTS).

Commercial land is registered in the Deeds Registration System, which was established
around 1905 during the German colonial period to cater to thewhite settlers. The system
consists of a farm register and a commercial land register. Namibia became a British
protectorateunderSouthAfricanmandate in1915which caused the conversionof all land
formerlyheldbytheGermanadministrationintoCrownland/statelandofSouthAfrica(UN-
Habitat,2005,pp.2930)whomaintainedthesystemuntil independencein1990.Property
registered in the deeds systemmust be surveyed by a professional land surveyor and the
transaction (fromseller tobuyer) is recorded in the systemandconsideredasproofof the
ownership. The system also captures leasehold agreements valid for periods exceeding 10
yearsoncommercialandcommunalland(LegalAssistanceCentre,2009,p.2).

TheDeedsRegistrationSystemofRehobothwasestablishedin1976toprovidepeopleinthe
RehobothGebietwithtenuresecurity.Thesystemwasestablishedtomainlycatertotheso-
calledBasterethnicgroup(BeukesascitedinSasman,2013)inregardtotheimplementation
of home rule in the Rehoboth Bantustan (Christensen et al., 1999, p. 12). The Rehoboth
registration systemhas similarities to theDeedsRegistration System although simpler and
cheaperproceduresof transactionsareapplied(Jakobsen&Christensen,2007,p.106).The
DeedsRegistriesActNo.14of2015hasbeenpassedbyParliamentbutsincetheregulations
are still pending it has not yet entered into force. This new act suggests that the Deeds
RegistrationofRehobothshouldbemergedwithandbecomepartoftheDeedsRegistration
Systemoncethe2015Actisenteringintoforceandthesystemisthereforenotdescribedin
furtherdetailinthispaper.

The registrationof communal land rightswas commencedafter the enactmentof the2002
Communal Land Reform Act. The recording of rights is captured in the Communal Land
Registration System (CLRS) and entails identification of the land rights holder as well as
mapping of the plot (Werner & Bayer, 2016, p. 1). Registration ismandatory and still on-
going; recent figures indicate that around 84% of the communal land rights have been
registeredsofar(Shapwanale,2017,p.5).Ownershipof landisnotpermittedincommunal
areas; hence communal land can neither be bought nor sold. Land rights allocated on
communal land are customary land rights and rights of leasehold (Government of the
Republic of Namibia, 2002, para. 19). Leasehold rights can be for agricultural use or other
purposes and rights valid for more than 10 years should be registered in the Deeds
Registration System (Werner & Bayer, 2016, p. 12). A customary land right is a usufruct
allocatedforaspecificperiodoftime.Until2002theallocationoflandincommunalareaswas
exclusively dealt with by the traditional authorities and no formal recordswere kept. The
enactment of the Communal Land Reform Act in 2002 provided for the establishment of
communallandboardstocontroltheallocationandcancellationofcustomarylandrightsby
chiefsandtraditionalauthorities.Furthermore,thecommunallandboardsareresponsiblefor
theregistrationofcustomarylandrightsandtransfers,cancellations,andallocations.Therole
ofchiefsandtraditionalauthoritiesisstilltoallocateandcancelcustomarylandrightsafter
whichthelandboardmustratifybeforelegaleffectismade(GovernmentoftheRepublicof
Namibia,2002,para.24).

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ILMI Working Paper No. 6 11

TheFLTSwasdevelopedinNamibiabetween1992and1998bythethenMinistryofLands,
ResettlementandRehabilitation(presentdaytheMinistryofLandReform)asanalternative
tothefreeholdsystem.Itisflexibleandthereforesimplerandmoreaccessibletothebroad
community(Christensenetal.,1999,p. iv).Thesystemisspecificallydevelopedtoaddress
upgrading and formalisation of urban informal settlements and new urban settlements for
low-income people. The FLTS provides for a step-wise formalisation of land tenure and is
comprisedofastartertitle,landholdtitleandthecommonfreeholdtitle.Upgradingcantake
placeiforwhenneedarisesandeconomicaffordabilityallows.
TheFLTSisthefocalpointofthispaperandisdescribedinmoredetailinchapter5below.

The different tenure systems provide different levels of tenure security with the Deeds
RegistrationSystem(aso-calledfreeholdsystem)providingownershiptolandandproperty,
andtheCommunalLandRegistrationSystemprovidesarightofuse foraspecificperiodof
time while the FLTS provides an initial level of tenure security protecting people against
eviction without compensation. The FLTS is specifically designed to cater for urban low-
income and informal settlers and thus complement the other tenure systems in achieving
countrywide tenure security for all, albeit at different levels within the continuum of land
rights.Likewise,inorderfortheNamibiangovernmenttofulfilitsHarambeeProsperityPlan
andVision2030regardingtheachievementofalivingstandardcorrespondingtodeveloped
countriesforallNamibiansby2030,theupgradingandformalisationofinformalsettlements
isconsiderednecessary.Thiscallsforsomethingextraordinarytobedonewhenconsidering
theexpectedpopulationgrowth(Jakobsen&Christensen,2007,p.194)andforthatpurpose
theFLTSmaybeausefulalternativetotheexistingtenuresystems.Thiscallsforadescription
of the FLTS in order to understand whether it provides the basic foundation for a FFP
approach and thus a proper foundation for contributing to poverty alleviation and the
achievementoftheSDGs.

5 FlexibleLandTenureSystem
The Flexible Land Tenure System (FLTS) was developed in Namibia in the mid-nineteen
nineties to cater to themiddle and low-incomepeoplewhowereexcluded from the formal
freeholdlandtenuresystemthatwasdevelopedbyandfortheprivilegedfewinthewhite
areas (Christensen et al., 1999, p. iv). Pilot projects were carried out in Oshakati and
Windhoek.Nevertheless,theFlexibleLandTenureAct(FLTA)wasonlypassedbyParliament
in2012and the regulationsare still pending. Initiationof fourpilotprojects isplanned for
2017andthefourpilotsitesareOutapi,Windhoek,GobabisandOshakati,respectively.Please
see Annexure A; Localities with informal settlements in Namibia which illustrates the
distributionof informal settlements inNamibia aswell as anoutliningof theplannedpilot
projects.

Currently there are 279 informal settlements in Namibia. The total urban population is
estimatedat885,500persons (42%) in2011,which is an increaseof9%since2001 (NSA,
2012,p.xiv).Theurbangrowthrateisestimatedat5.6%perannumandismainlycausedby
rural-to-urbanmigrationofparticularlyyoungpeopleinsearchforeducation,jobs,andbetter
social and economic opportunities. The rapid increase of urban informal settlementsmost
often causes unplanned development with very limited provision of services and tenure
securityifany.Sinceindependencein1990thepopulationhasincreasedwith695.000(to2.1
mill.)andatotalpopulationbetween2.98and3.49millionisenvisagedby2030.Basedonthe

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ILMI Working Paper No. 6 12

currenturbanisation trend it is foreseen that75%of thepopulationwill be living inurban
areasby2030(NamibiaVision2030,2004,p.48).At thesametime theaveragehousehold
size is on a decline, which calls for additional land and housing to cater for the people
concerned.

TheFLTSisspecificallydedicatedtoprovidetenuresecuritytourbanresidentssinceitonly
allowsforimplementationwithintheboundariesofestablishedmunicipalities,towns,village
councils,andsettlementareas(GovernmentoftheRepublicofNamibia,2012,para.3).Thus,
theFLTS isdesigned toprovide tenuresecurity to low-incomepeopleand informal settlers
via creating alternative forms of tenure that are considered to be cheaper and simpler to
administer (Christensen et al., 1999). Furthermore, it is anticipated that people will be
economicallyempoweredbymeansoftherightsacquiredviatheFLTS.Morespecifically,the
objectivesoftheFLTAareasfollows:

" to create alternative forms of land title that are simpler and cheaper to administer
thanexistingformsoflandtitle;

" to provide security of title for personswho live in informal settlements orwho are
providedwithlowincomehousing;

" to empower the persons concerned economically by means of these rights
(GovernmentoftheRepublicofNamibia,2012,para.2).

The FLTS property rights are intended to ensure that all persons with rights to land or
immovablepropertyhaveaccess to thebenefits thatcomewithregistrationof thoserights.
The FLTS is a parallel interchangeable property recording system that is intended for
implementation in existing informal settlements and new areas planned for low-income
residents. Itprovides for threedifferent typesof tenure; thestarter title, landhold title,and
freehold title, respectively. Starter title and landhold title canbe stepwiseupgraded to the
next levelandeventually to freeholdtitle ifneedarisesandaffordabilityallows.Theyboth
provide an initial tenure security that protects people from forced eviction without
compensation. The new title forms entail the right to
transfer rights and the landhold title furthermore
allowsformortgagingandestablishmentofservitudes.
In this regard it is worth mentioning that the UN-
Habitat is considering theFLTSas innovative andone
of the pro-poor land tenure systems in developing
countriesthatprovidesthemostsolidlegalframework
and foundation for furtherdevelopment (Gitau,2015).
Please see figure 3 below for an illustration of the
principles of the FLTS, which are described in more
detailbelow.



Figure3illustratestheprinciplesoftheFlexibleLandTenureSystem
(FLTS)andthepossibleroutesforestablishmentofanewsettlement
or for upgrading of an informal settlement. The FLTS allows for
incremental improvement of tenure security according to peoples
needandeconomicaffordability.Source:(Christensenetal.,1999).

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ILMI Working Paper No. 6 13

5.1 Startertitle

This section, alongwith section5.2Landhold title, is almostverbatimreplicationof section
3.1 of the book Urban housing crisis in Namibia: A youth perspective contributed by the
authorandpublishedbytheNationalYouthCouncilofNamibia.

A starter title provides initial tenure security and is particularly applicable in regard to
upgrading of existing informal settlements (Jakobsen & Christensen, 2007). The erf is
registeredasablockerf intheDeedsRegisterandtheschemememberspossesstherightto
occupy an undefined plotwithin the blockerf for perpetuity. However, it does not provide
ownershiptoaspecificplotwithintheblockparcel.Thestartertitleholderscanagreeupon
andestablishinteriorboundaries,whicharehowevernotregisteredintheDeedsRegister.A
startertitleholderisallowedtoerectandoccupyadwellingonablockerfinperpetuityandto
transferallrelatedrightstohis/herheirsortoanyotherpersonaswellastoleasetoanother
person(GovernmentoftheRepublicofNamibia,2012,para.9(1)(a-e)).Additionally,astarter
titleholderhastherighttobeamemberoftheassociationoftheschemeinquestionaswell
as to utilise possible services provided to the scheme as a whole. The registration of a
transaction is considered as proof of the transaction and any transfer of rights must be
informed to the Land Rights Registrar (LRR) by the transferor and the transferee
(GovernmentoftheRepublicofNamibia,2012,para.9(5-7)).

Astarter title rightmayonlybeheldbyonepersonexcept forpersonswhoaremarried in
community of property and no juristic person is allowed to hold a starter title right.
Furthermore,nonaturalpersonwhoownsanyimmovablepropertyoralandholdtitlerightin
Namibia is allowed to acquire a starter title right of which it is only allowed to hold one
(GovernmentoftheRepublicofNamibia,2012,paras710).

Prior to theestablishmentof a starter title scheme the specific landmustbe subdividedor
consolidatedtoensurethelandissituatedononeportionoflandandregisteredassuchinthe
DeedsRegistry.Furthermore,mortgages,usufructs, fideicommissumorotherrightsmustbe
cancelledpriortotheestablishmentofascheme.Therelevantauthoritymayalsorequirethe
ownerofthe land, theassociationortheoccupierstopayanamountofmoneytocoverthe
costs relating to the establishment of the scheme (Government of theRepublic ofNamibia,
2012,para.11(3)).Alistofpersonswhohavecommittedthemselvestobecomemembersofa
schemeshallbesubmitted to theauthority togetherwith theplotnumbers(Governmentof
theRepublicofNamibia,2012,para.11(4-5)).Therelevantauthorityisfurthermoreallowed
tocausetheconductofafeasibilitystudytoinvestigatethefeasibilityanddesirabilityofthe
creationofthescheme.Thiscanincludetheconductof i.e.geological,environmentalorany
other scientific study considered relevant to the specific blockerf. Town planning schemes
applicabletotheareaoranyotherrelevant legislationmustalsobeconsideredpriortothe
establishmentofascheme(GovernmentoftheRepublicofNamibia,2012,para.11(6-7)).

Theprocessofestablishingastartertitleschemecanbeinitiatedbyoneormoreresidents,or
bytherelevantauthorityorthelegalownerofapieceofland(GovernmentoftheRepublicof
Namibia, 2012, para. 11(1)). Once the relevant authority has confirmed that a starter title
schemeisdesirablethelocalLRRandtheRegistrarofDeedsmustbeinformedandmakean
endorsementonthetitledeedoftherelevantblockerfregardingtheestablishmentofastarter
titlescheme(GovernmentoftheRepublicofNamibia,2012,para.12(1-3)).Theestablishment
ofastartertitleschemeisrequiredforeachblockerfandentitlespersonstoacquirestarter

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ILMI Working Paper No. 6 14

titlerightsoverthespecificblockerf. Thenoticetobeforwardedtothedeedsregistrarand
the LRR must include the number of the title deed of the blockerf, a list of the heads of
households residing on the blockerf, and the conditions imposed by the authority. The
informationisenteredintotheparticularschemeinthestartertitleregister(Governmentof
the Republic of Namibia, 2012, paras 78) after an investigation of the compliance with
requirements forbeinga schememember.Once the investigation is completed successfully
thepersonsstatedonthe listaretobeconsideredasstartertitleholdersandtheLRRshall
issueacertificatetoeachschememember.

Authorities inwhose jurisdiction a starter title scheme is createdor anyotherpersonmay
agreetoprovideservicestotheschemeasawhole(GovernmentoftheRepublicofNamibia,
2012, para. 9(2)) in which case the constitution of the association of the scheme must
determine the rights andduties of everyholder in the scheme.The relevant authoritymay
impose conditions upon a starter title scheme in regard to i.e. the nature of buildings and
structuresthatmaybeerectedonablockerf, limitthenumberofpersonstoacquirestarter
titlerightsinascheme,andthelayingandmaintenanceofpipesandsewerage,etc.underor
overtheblockerf(GovernmentoftheRepublicofNamibia,2012,para.6).

Startertitlescanbeupgradedtolandholdtitleorfreeholdtitle.Ifaminimumof75%ofthe
right holders consent a starter title scheme can be upgraded to landhold title under the
condition of approval by the relevant authority. Right holderswho do notwant upgrading
mustbegranteda starter title right ina similar schemeand theauthoritycan thensell the
plots to interested persons (Government of the Republic of Namibia, 2012, para. 14). Both
starter titleand landhold titlecanbeupgradedto full freeholdownership if situatedwithin
theareaofanapprovedtownship.Upgradingtofreeholdrequiresthatallrightholdershave
agreedinwritingandtheblockerfmustthenbesurveyedandsubdividedinaccordancewith
applicable laws. A quorum of minimum 75% of the right holders shall agree with the
upgradingandtheauthoritymaypayfaircompensationtotheholdersthatdonotagreewith
theupgrading.Theauthoritycanthensell theervento interestedparties.Allcosts forsuch
upgrading must be borne by the right holders proportionally to the size of the plot
(GovernmentoftheRepublicofNamibia,2012,para.15).

5.2 Landholdtitle

Alandholdtitleholderhasallthesamerightsintheplotasanownerhasinrespectofhis/her
erf under common law and may perform all juristic acts as an owner may in respect of
common law. Furthermore, a landhold title holder has an undivided share in the common
propertyand is limitedbypossibleservitudes in favourof theownerofanyotherproperty
over the blockerf (Government of the Republic of Namibia, 2012, para. 10(1)(a-b)). The
landhold title is equally registered as a blockerf in the Deeds Register. The landhold title
holderobtainstherighttoadefinedplotwithintheblockerfinperpetuityalongwiththeright
to transfer the right to another holder, create or cancel a mortgage, right of way, and
servitudes relating to provision of basic services (Government of the Republic of Namibia,
2012, para. 10(5)). All transactions must be updated and registered in the landhold title
register.Registrationofanytransactionofalandholdtitlerightisthesameasthelegaleffect
ofregistrationinthedeedsregistryandthefailuretoregistertransactionsisalsothesameas
failingtoregisterasimilartransactionintheDeedsRegistry(GovernmentoftheRepublicof
Namibia,2012,para.10(8)(a-b)).

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Prior to the establishment of a landhold title scheme the specific land must be subdivided or
consolidatedtoensurethelandissituatedononeportionoflandregisteredassuchintheDeeds
Registry as is the case for the starter title schemes. Furthermore, mortgages, usufructs,
fideicommissumor other rightsmust be cancelled prior to the establishment of a scheme. The
relevantauthoritymayalsorequiretheowneroftheland,theassociationortheoccupierstopay
anamountofmoneytocoverthecostsrelatingtotheestablishmentofthescheme(Government
oftheRepublicofNamibia,2012,para.11(3)).Moreover,theplotstoformpartofalandholdtitle
schememustbemeasuredbyalandmeasurerandthephysicalboundariesmustbeindicatedon
theblockerfandadescriptionoftheplotboundariesalongwiththeplotnumbersallocatedisto
be prepared by a landmeasurer. A list of personswho have committed themselves to become
membersofaschemeshallbesubmittedtotherelevantauthoritytogetherwiththeplotnumbers
(Government of the Republic of Namibia, 2012, para. 11(4-5)). The relevant authority is
furthermoreallowedtocause theconductofa feasibilitystudy to investigate the feasibilityand
desirability of the creation of the scheme. This can include the conduct of i.e. geological,
environmental or any other scientific study considered relevant to the specific blockerf. Town
planningschemesapplicabletotheareaoranyotherrelevantlegislationmustalsobeconsidered
priortotheestablishmentofascheme(GovernmentoftheRepublicofNamibia,2012,para.11(6-
7)).

If the resultof theabove investigation ispositiveand the scheme isdesired the schemecanbe
approvedandtheDeedsRegistrarandtheLRRmustbenoticed.TheDeedsRegistrarthenmakes
an endorsement of the title deed of the blockerf that a landhold title scheme is established
(GovernmentoftheRepublicofNamibia,2012,para.13(1-4)).Inadditiontotheconditionsthat
canbeimposedbytherelevantauthorityonthestartertitleschemestherecanalsoberestrictions
suchasprohibitionoftransfertoanotherpersonbeforeaspecifiedperiodoftimeandwithoutthe
permission of the relevant authority (Government of the Republic of Namibia, 2012, para.
13(6)(c)).TheabovementionednoticetobesendtotheDeedsRegistrarandtheLRRissimilarto
theinformationtoberecordedinthelandholdtitleregisterandincludesthenumberofthetitle
deedoftheblockerf,allconditionsimposedbyrelevantauthorities,adescriptionofthephysical
boundaries of the plots and plot numbers allocated, a list of persons who have concluded
contracts including the fullnamesand identitynumbersof theplotholders(Governmentof the
Republic of Namibia, 2012, para. 13(9-10)). Upon successful establishment of a landhold title
schemepersonsreceiveacertificateindicatingthathe/sheistheholderofalandholdright.

Interior boundaries are surveyed by a para-professional land measurer and registered in the
landholdtitleregisterasestablishedbytheDeedsRegistrar.Duringso-calledadjudication,where
theinteriorboundariesareagreedupon,adescriptionoftheboundariesandnumbersallocatedto
theplotsisproducedbythelandmeasurer(GovernmentoftheRepublicofNamibia,2012,para.
11(4)(a-b))andthismakesitoutforthelayoutplan.

Alandholdtitlecanbeupgradedtofreeholdtitleif/whenallrightholdersintheschemeagreein
writing on such upgrading. Upgrading requires that the scheme is locatedwithin an approved
township and the blockerfmust be surveyed and subdivided in accordancewith the applicable
laws. It can take place if minimum 75% of the landhold title holders agree upon the wish to
upgradeandtherelevantauthoritymaycompensatefairlytherightholderswhodonotwantto
upgrade.Insuchincidentstherelevantauthoritymayforitsownaccountsellthevacantervento
interestedpersons.Thecostsrelatedtoupgradingto fullownershipmustbebornebytheright
holdersthemselves(GovernmentoftheRepublicofNamibia,2012,para.15(4-6)).Thelaststepin
theFLTSisequaltoafreeholdtitlewithintheDeedsRegistry.

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ILMI Working Paper No. 6 16

The above all indicates on-going reforms of the land registration and tenure approach in
Namibia, which is becoming more formalised during recent time. The approach indicates
some similaritieswith theFFPapproachwhich suggests recordationof all land indifferent
tenuresystemsspecificallydesignedtoaddressdifferentneedsandpurposesunderdifferent
spatial,legalandinstitutionalframeworks.

5.3 Fit-For-PurposeframeworkembeddedintheFlexibleLandTenureSystem

ThissectionisprovidingabriefoverviewastohowtheFFPlandadministrationframeworkis
embeddedintheFLTSandalsoraisesafewchallengesinregardtotheimplementationofthe
system.

Thelegalframework
The legal framework for the FLTS is enshrined in the FLTA, which was enacted in 2012
although the attached regulations are still outstanding and the act has therefore not yet
enteredintoforce.Thecommencementofthepilotprojectsispostponeduntilthecompletion
oftheregulationsandthefulloperationalizationoftheact.Itisexpectedthattheregulations
willbecompletedandapprovedbythesecondquarterof2017.
TheFLTSprovidesforacontinuumoflandrightsduetothefactthatitencompassestwonew
formsoftenuresecurityinadditiontotheexistingfreeholdtitle.Actsandregulationsthatare
effectingtheimplementationoftheFLTSarehoweveranissuethatprolongstheprovisionof
tenure security. The conduct of feasibility studies, approval by Namibia Planning Advisory
Board(NAMPAB)andTownshipsBoard,townplanning,andsurveyingofexteriorboundaries.
The FTS underpins the human rights and allows for legal persons, incl.women, youth and
elders,toacquiretenuresecurityprovidedtheydonotownimmovablepropertyorpossesses
alandholdtitle.

Theinstitutionalframework
The implementationof theFLTS entails the establishment of a numberof new institutions,
including so-called Land Rights Offices, Land Rights Registrar, land measurer, starter and
landhold title registers, etc. It is of utmost importance to ensure the efficiency and
effectiveness of those new institutions aswell as the development of technical and human
resources to successfully manage the FLTS implementation. It also calls for capacity
development within the existing institutions such as the Deeds Office as well as the local
authorities. Theblockerfmust be registered in theDeedsRegistry and the starter title and
landholdtitlesalongwithnamesandIDnumbersofmembersarecapturedinthestarterand
landholdtitleregisters,respectively.AccordingtoLewis,manylocalauthoritiesdonothave
capacity to approve layoutplans forupgrading to landhold title and itmay tonecessary to
contractprivatetownplannersorarchitectstoapprovetheplansoritcouldbedonebythe
MinistryofUrbanandRuralDevelopment (MURD) (Lewis,2014,p.4).Valid concernshave
been raised in regard to the creation of the new institutions and organisations and the
complexityandcosts in regard to the implementationof theFLTS. It is suggested rather to
makechangesandamendmentstotheexistinginstitutionsandorganisationalstructuresto
addressthecurrentweaknesses(Bayer,2012)thancreatingnewinstitutions.

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Thespatialframework
Thespatialrequirementsforthestarterandlandholdtitlediffersignificantly.Thestartertitle
provides permission to erect a dwelling on an undefined plotwithin the blockerf. Exterior
boundariesoftheblockerfmustbesurveyedbyaprofessionallandsurveyorandregisteredin
the Deeds Registry. Hoverer, there are no formal requirements to the accuracy of interior
boundariesandthusleavesituptothegroupmemberstoadjudicateanddecideuponviaa
participatory approach. The group members themselves are also supposed to mediate on
possibledisputesarising(GovernmentoftheRepublicofNamibia,2012,para.12(b)).Onthe
otherhandalandholdtitleprovidespermissiontooccupyadefinedplotwithintheblockerf
and an undivided share in the common property. Exterior boundaries are surveyed by a
professional land surveyor and interior boundaries are demarcated by a para-professional
landmeasurer.Itisallowedtomortgagealandholdtitleaswellastocreateservitudesfori.e.
serviceprovisionandarightofway(GovernmentoftheRepublicofNamibia,2012,para.5).
This indicates incremental improvementofthespatial frameworkaswellasacontinuumof
accuracy.

6 Conclusionsanddiscussion
Thisbrief literaturereviewpresentedabove is creating the linkbetween thecurrentglobal
development agenda as outlined in the SDGs via the application of the FFP Land
AdministrationapproachtotheFLTSinNamibia.TheFLTSisanenablerforprovidingtenure
security to urban low-income and informal settlers and the purpose of the system is to
provide simpler and cheaper access to land and property for low-income and informal
settlers,andthesystemprovidesfor incremental improvementof tenuresecurityaccording
topeoplesneedsandaffordability.Thesystemisflexibleinthesensethattenuresecuritycan
beupgradedstepwiseovertimeandthedifferenttypesoftitle;startertitleandlandholdtitle,
provideforincreasinglevelsoftenuresecurityaswellastheoptionformortgaging.TheFLTS
thusseeks toprovide tenuresecurity fordifferentpurposes, i.e.astarter titlewouldsatisfy
theneed forpeople interested inacquiring tenuresecurityonlywhilea landhold title is an
optionforpeopleinterestedinleveragingaloanonthestrengthoftheirproperty.TheFLTS
thus contributes to a more holistic approach to land tenure security in Namibia by
complementing the freehold land registration systemand the Communal LandRegistration
Systemintheachievementofprovidingtenuresecurityforall.

TheimplementationoftheFLTSwillputadditionalpressureoninstitutionsthatarealready
straining todeliver services to cater to the currentneedsand requirements.Thismaybea
challenge and needs specific attention andwill call for considerable capacity development
withintheinvolvedinstitutions.Inadditiontothenewinstitutionstobecreatedanumberof
existing key stakeholders play essential roles in regard to the successful implementation,
including theMLR,MinistryofUrbanandRuralDevelopment (MURD)and local authorities
etc.Yetanotherchallengemaybetoestablishandensureaclosecollaborationamongstthese
institutions,whichisparamountandshouldideallybeestablishedpriortotheinitiationofthe
implementation.Itwouldbeahindrancefortheimplementationifkeystakeholdersapplya
mind-setof silo thinkingrather than focusingon theend targetgroupand thepurposeof
providing tenure security for low-income and to empower the persons concerned. These
possiblechallengesreinforcetheneedforadditionalresearch.

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ILMI Working Paper No. 6 18

The preliminary study indicates that there is a clear link between the SDGs, via the FFP
approach,totheFLTSinNamibia.Thismakesitinterestingandnecessarytoconductfurther
in-depthanalysisastowhethertheFLTSis indeedFit-For-Purpose inallaspectsandthus
can contribute to the achievementof theSDGs inNamibia. It is also crucial to consider the
applicabilityof theFLTSinotherSub-SaharanAfricancountriesaswellasotherdeveloping
countries.ThepotentialofFLTSasa foundation for theadministrationandmanagementof
foodandwatersecurity,disastermanagement,climatechanges,andenvironmentalchanges
inNamibiashouldalsobe further investigated fromanacademicperspective.Thishowever
callsforfurtheracademicresearch.

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ILMI Working Paper No. 6 19

AnnexureA LocalitieswithinformalsettlementsinNamibia

Source:(Picard,2016)

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ILMI Working Paper No. 6 20

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