Atif Mehmood | Published July 18, 2024
The author is deeply interested in social and political issues, focusing on analyzing their impact on society and policy development. It is to be noted that the opinions articulated herein are exclusively the author’s own and do not reflect the views or stances of the author’s employer or those of Pakistan Chronicles Online. For correspondence, the author may be contacted at atif@live.ie.
The land reform issue in Pakistan remains unresolved and relevant, as it affects the social justice, the economic development, and the political stability of the country. Land reforms have been a contentious issue in Pakistan since its inception in 1947, as the country inherited a highly unequal and feudal land system from the British colonial rule, where a few landlords and zamindars controlled most of the land and exploited the peasants and tenants. Despite several attempts by various governments to introduce land reforms, the results have been largely ineffective and insufficient, as the powerful landed elite have resisted and manipulated the process to maintain their privileges and influence.
After independence, why did Pakistan fail to achieve land reforms and now seem to have no hope of doing so? Land reforms are policies that change the way land is owned and used. The goal of land reforms is to better the economic and social situation of the rural disadvantaged, increase agricultural output and development, and lower poverty and disparity. Land reforms have been a major policy agenda of every government since 1947, but that goal was never fulfilled, and now it remains in the pile of policy papers.
India has completed land reforms in three stages, the first stage of land reforms (1947-1956) concentrated on eliminating the middlemen, the second stage of land reforms (1956-1972) targeted the reallocation of excess land above the ceiling, the third stage of land reforms (1972 onwards) sought to control the system of renting land.
Pakistan's land system suffers from a lot of inequality, insecurity, and inefficiency. According to the latest agricultural census of 2010, about 5% of the landowners own 64% of the agricultural land, while about 62% of the landowners own only 15% of the agricultural land. The average landholding size is 5.8 acres, while about 43% of the landowners own less than 2.5 acres. The land tenure system is also insecure, as about 38% of the cultivated area is under tenancy, and the tenants have no legal protection or rights over the land. The land administration system is also inefficient, as the land records are outdated, incomplete, and inaccurate, and the land transactions are costly, complex, and corrupt. The land system also hampers the agricultural productivity and the rural development, as the landowners have no incentive to invest in the land or adopt modern technologies, and the peasants have no access to credit, inputs, markets, and extension services.
Despite the challenges and failures of the past land reform attempts, there are still some opportunities and prospects for land reforms in Pakistan, which can be explored and exploited by the government, the civil society, and the international community. The Constitution of Pakistan recognizes the right to property as a fundamental right, but also allows the state to regulate and redistribute the property in the public interest. The Constitution also empowers the parliament to enact laws for land reforms, and the Supreme Court to adjudicate on the constitutionality and legality of the land reforms. The Land Reforms Regulation of 1972, which was upheld by the Supreme Court in 1989, provides the legal basis for land reforms, and sets the ceiling and the criteria for land redistribution.
The issue of land reform became a prominent and popular demand in the political discourse of Pakistan, especially among the left-wing and nationalist parties and movements, who advocated for a radical and comprehensive land reform that would break the feudal system and empower the peasants. The first attempt to introduce land reform in Pakistan was made by the government of Prime Minister Liaquat Ali Khan in 1950, who announced a land reform committee to propose measures for land redistribution and improvement of tenancy conditions. However, the committee was dominated by the zamindars and the bureaucrats, who opposed any drastic change in the land system. The committee's recommendations were largely conservative and ineffective and were never implemented by the government.
The second attempt to introduce land reform in Pakistan was made by the government of President Ayub Khan in 1959, who announced a land reform package as part of his economic and social reforms. The package included a ceiling on land ownership, abolition of intermediary rights, compensation for the landowners, and provision of land to the landless and the tenants. However, the package was also flawed and limited, as it had many loopholes and exemptions that allowed the zamindars to evade the ceiling and retain their land and power. The package also failed to address the regional disparities and the problems of the peasants, who did not benefit much from the land reform.
The third attempt to introduce land reform in Pakistan was made by the government of Prime Minister Zulfikar Ali Bhutto in 1972, who announced a more radical and progressive land reform package as part of his socialist agenda. The package included a lower ceiling on land ownership, confiscation of surplus land without compensation, distribution of land to the landless and the tenants, and improvement of tenancy rights and conditions. The package also aimed to eliminate the feudal system and create a class of peasant proprietors. However, the package also faced many challenges and difficulties, as it met with strong opposition and resistance from the zamindars and the religious parties, who challenged the legality and morality of the land reform. The package also suffered from poor implementation and enforcement, as the bureaucracy and the judiciary were influenced by the zamindars and the vested interests. The package also did not address the regional disparities and the problems of the peasants, who did not receive adequate land and support from the government.
Land reforms are a vital and urgent issue in Pakistan, which has a long history of land inequality, insecurity, and inefficiency. The land reforms have been attempted several times by various governments, but have been largely ineffective and insufficient, due to the resistance and manipulation of the powerful landed elite. The land reforms are still a feasible and desirable goal, which can be achieved by exploiting the constitutional and legal framework, the political and social demand, and the technological and institutional innovations. The land reforms can have a positive and transformative impact on the agricultural productivity, the rural development, the poverty reduction, the food security, and the sustainable development in Pakistan. Land reforms are an essential and ongoing process for the socio-economic development of Pakistan. Land reforms can help to achieve the goals of food security, poverty alleviation, rural empowerment, and environmental sustainability. Therefore, there is a need for a comprehensive and holistic approach to land reforms, which can address the diverse and complex issues of land governance and management in Pakistan.
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