One of the greatest hassles in the way of developing agricultural land is seemingly no more.
The Subdivision of Agricultural Land Act 70 of 1970 (hereafter SALA) demands of developers who wish to sell, subdivide or rezone agricultural land, to obtain the permission of the Minister of Agriculture. Agricultural land is defined as
“any land except land situated in the area of jurisdiction of a municipal council, city council, town council, village council… but excluding any such land declared by the Minister after consultation with the executive committee concerned and by notice in the Gazette to be agricultural land for purposes of this act.
Provided that land situated in the area of jurisdiction of a transitional council as defined in the Local Government Transition Act 209 of 1993, which immediately prior to the first election of the members of such transitional councils was classified as agricultural land, shall remain classified as such”.
In Stalwo (Pty) Ltd v Wary Holdings (Pty) Ltd, the Supreme Court of Appeal (SCA) effectively did away with the permission of the Minister. The purchaser acquired the land for industrial purposes, which was, at the time of the agreement, zoned as agricultural land. The local authority granted permission to the purchaser to rezone the land after he took occupation. The written permission of the Minister of Agriculture was, however, never granted.
The SCA had to decide whether the land was agricultural land, in which event the agreement would be rendered invalid because permission from the Minister had not been obtained. In answering this question, the court focused on the interpretation of the proviso in the definition which excludes land situated in an area of jurisdiction of a transitional council. From the definition we can conclude that land which falls within the jurisdiction of a local authority is not agricultural land. But now the timing of events becomes important: What if the land came under the jurisdiction of a transitional council as created by the Transition Act, and later became subject to a ‘permanent’ local authority, which inevitably, would be the case.
The property previously was agricultural land. When it became subject to the authority of the transitional council, it retained its status as agricultural land, due to the provision of SALA above. The Nelson Mandela Metropolitan Municipality (NMMM) was afterwards created as the permanent local authority. It was the local authority responsible for the property when the agreement was entered into.
Two questions arise. The court firstly decided that the NMMM was a council as meant in SALA. The court then turned to the question whether the land retained its original status as agricultural land by virtue of the proviso when the permanent municipality took over the jurisdiction, or whether it changed to non-agricultural land when the permanent municipality replaced the transitional one. The SCA determined that it changed status to non-agricultural land when the NMMM took over the jurisdiction. (The High Court found that the status of agricultural land which came under the jurisdiction of a transitional council was “frozen” as agricultural land and that, according to the proviso, it retained that status when the permanent municipality took over. The SCA found that the concept of agricultural land is a fluid rather that a static one). According to the SCA the proviso must be read in light of the Transition Act, which was in itself meant to provide interim measures. The proviso was therefore only meant to operate for as long as the land envisaged therein remained situated in the jurisdiction of a transitional council. The court is of the opinion that the Legislature would have clearly stated if it intended such land to retain its status after the transitional councils were abolished.
The court came to the conclusion that the land did not constitute agricultural land anymore, because it became non-agricultural land when the NMMM took over jurisdiction. The Minister’s permission was therefore not needed in this case, and the parties were held to their contract.
The practical implications of this judgment and the courts’ interpretation of the proviso are far reaching. It appears that there is no longer any land in our country which falls outside of the jurisdiction of a local authority. This is not a problem at all, since the whole purpose of the Transition Act was to create “wall to wall” municipalities so that no piece of land would be unregulated. However, if we accept the court’s interpretation of the abovementioned legislation (namely that the proviso only meant to operate for as long as the land envisaged therein remained situated in the jurisdiction of a transitional council), there is no longer such a thing as agricultural land. This means that section 3 of SALA is no longer applicable, because you do not need the written permission of the Minister of Agriculture to sell or subdivide non-agricultural land.
(The decision of the SCA has been referred to the Constitutional Court. The Deeds Office advised that they will, notwithstanding the judgment of the SCA, apply the provisions of SALA until judgment is delivered by the Constitutional Court).
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