INTRODUCTION
The foundation of the new legislation relating to
land in Kenya (the “Land Laws”) is the Constitution of Kenya that was
promulgated on 27th August, 2010 (the “Constitution”). Article 68 of the
Constitution states that Parliament shall enact legislation to give effect to
the provisions of the Constitution relating to land. It is on this basis that
Parliament enacted the Land Laws.
The Land Laws came into force on 2nd May 2012 and
they comprise of:
- The Land Act (Act No. 6 of 2012);
- The Land Registration Act (Act No. 3 of 2012);
and
- The National Land Commission Act (Act No. 5 of
2012).
QUESTIONS
1.0 Will all foreigners have their freehold titles
reduced to 99-year leasehold titles? What is the purpose of this provision? Is
there any clarity as to when the 99-year period will run from? Is it from 27
August 2010?
Article 65 of the Constitution provides that
non-citizens can only hold land on the basis of leasehold tenure which shall
not exceed 99 years. S.107(3) of the Land Registration Act provides that for
the avoidance of doubt, any lease granted to a non-citizen shall not exceed 99
years. This provision limits foreigners from owning a freehold interest in land
as well as any leasehold interest exceeding 99 years.
The purpose of this provision has not been
expressly stated in the Constitution or the Land Laws. It has been argued that
the provision is aimed at correcting historical injustices emanating from
colonial rule where foreigners obtained large tracts of land and are holding
the same under freehold tenure in perpetuity.
Neither the Constitution nor the Land Laws indicate
when this 99 year leasehold term is deemed to commence. Our assumption is that,
without clear indication of when this term commences, for longer leases or
freeholds held by foreigners the leasehold will be deemed to have commenced on
the date when the Constitution came into force i.e. 27th August, 2010.
2.0 Is any compensation payable to the foreigner?
Article 40(3) of the Constitution provides that the
State shall not deprive a person of property of any description, or of any
interest in, or right over, property of any description, unless the deprivation
results from an acquisition of land or an interest in land or a conversion of
an interest in or title to land, in accordance with chapter 5 of the
Constitution.
Article 65, which limits land ownership by
foreigners to 99 year leasehold tenure, falls under chapter 5 of the
Constitution. Our interpretation of this provision is that the Government is
not required to pay compensation to foreigners for the conversion of their
freehold and longer leasehold tenure to 99 year leaseholds.
3.0 What is the definition of "foreigner"
under this law? Would a Kenyan company ultimately controlled by a foreign
entity (at any remove) be regarded as a "foreigner" for the purpose
of this new law?
Article 65(3) of the Constitution provides that a
body corporate is regarded as a citizen only if it is wholly and exclusively
owned by one or more citizens and property held in trust is regarded as being
held by a citizen only if the entire beneficial interest under the trust is
held by persons who are citizens. This means that a company will have to have
100% local shareholding to be considered a citizen.
Ownership refers to shareholding in a company and
not to directorships. A company that has Kenyan shareholders but has foreign
directors would be considered a local company capable of holding a freehold
interest in land or leasehold interest for more than 99 years.
4.0 Has the Government of Kenya become the landlord
of the 99 year lease when the foreigner's freehold has been reduced to a 99
year lease?
De facto yes.
5.0 Do foreign investors who have been stripped of
their freehold title have to pay a rent to their landlord (Government) under
their new 99 year lease?
The law does not specify whether any rent is
payable.
The nature of a leasehold interest is that there is
a liability to pay rent to the landlord. However, the rent payable under each
title varies and in some instances it is even set as a peppercorn which in
essence means that the land owner does not pay any rent.
6.0 What are the terms of the new lease? Can the new
landlord forfeit it at any time for breach of any provision in the lease?
The Land Laws do not specify what the terms of the
leases are. However, S.55 of the Land Act states that, the provisions of the
Land Act relating to leases, shall apply to all leases unless the parties
provide otherwise in the lease instrument.
S.66 of the Land Act details the implied covenants
on the part of the lessee which include, the obligation to pay rent, the
obligation to use the land in accordance with the conditions imposed on the use
of that land by the lease and the obligation to yield up the property at the
expiry of the lease period.
S.65 of the Land Act sets out the implied covenants
on the part of the lessor which include, the obligation to grant quiet
possession and the right to terminate the lease in the event that the rent is
unpaid for one month or if the lessee fails to observe the conditions of the
lease for one month.
7.0 What happens after the end of the 99 year lease?
Is there an automatic renewal right or is that only applicable if the immediate
past owner is a Kenyan citizen? Will it apply to Kenyan companies? How much
would it cost?
S.12(6) of the Land Act provides that at the
expiry, termination or extinction of a lease, reversion of interests or rights
in and over the land shall vest in the national or county government (as the
case may be). S.13(1) of the Land Act further provides that after expiry of the
new leasehold interest the land shall be offered to the immediate past holder
of the leasehold interest provided that such lessee is a Kenyan citizen. This
provision means that a non-citizen is not automatically entitled to renewal of
its leasehold interest in land. Previously, renewals of leasehold interest in
land were granted as a matter of course.
There are no prescribed fees for a renewal.
8.0 Can foreigners only sell their leasehold to
Kenyan residents or otherwise deal with the title?
Foreigners can sell their leasehold interest to
anyone whether the purchaser is a citizen or non-citizen. However, one
condition that is usually present in all Government leasehold titles is that
any dealings require the consent of the Commissioner of Lands whose functions
under the Land Laws will be carried out by the National Land Commission. This
consent is an administrative step and does not prevent dealings with leasehold
land.
9.0 Does it affect the value and marketability of
the land owned by a foreigner?
At the moment, in our experience, the market value
of a new 99 year leasehold or freehold property is the same.
10.0 Can a Kenyan citizen purchasing a leasehold
property from a foreign entity upgrade it to a freehold? If so, what is the
procedure and would it be costly?
A Kenyan citizen purchasing land from a foreigner
only purchases the 99 year leasehold interest held by the foreigner. There is
no provision for “upgrading” the interest to a freehold interest or a leasehold
interest of more than 99 years.
11.0 Do the Land Laws affect a mortgagee's right to
enforce its security?
With regard to a mortgagee’s right to exercise its
statutory power of sale, S. 106 of the Land Registration Act provides that the
rights, liabilities and remedies of the parties under any mortgage, charge,
memorandum of equitable mortgage, memorandum of charge by deposit of title or
lease that, immediately before the registration under this Act of the land
affected, was registered under any of the repealed Acts shall not be affected.
This section is replicated under S.162(1) of the Land Act. This means that the
mortgagee under a mortgage existing as at 2nd May 2012 can exercise its rights
under any instrument registered prior to the enactment of the Land Laws.
12.0 What happens to mortgages over freeholds where
the freeholds are owned by foreigners? Does it change anything if the banks who
have lent the money are local banks?
The freehold interest held by a foreigner is deemed
to have automatically converted to a 99 year leasehold interest and therefore
the security attaches to the converted property interest.
Another concern would be the effect on freehold
property that at the time the Constitution came into effect was mortgaged by a
foreigner to a local bank. Although a local bank (without a single foreign
shareholder) could argue that the freehold title was preserved because the
Constitution came into effect after the mortgage was created, we think this is
academic because:
- it is highly unlikely that any bank in Kenya
is 100% owned by Kenyan citizens; and
- the freehold interest would be lost at the
time the loan is paid back and the property is reconveyed to the
foreigner.
13.0 What guarantees or assurances are there for
foreign companies investing in Kenya that their investment will be secure?
Foreign companies investing in Kenya are assured
that their investment is secure for the following reasons:
One of the guiding principles in the management and
use of land as stated in Article 60(1)(b) of the Constitution and S.4(2)(b) of
the Land Act is the security of land rights. As stated earlier, Article 40 of
the Constitution protects the right to property save for the provisions of
Article 65 which limit land ownership by foreigners to 99 year leaseholds.
Article 40(3)(b) of the Constitution provides that no one shall be deprived of
property or any interest in property by the State unless the land is needed for
public use and prompt payment in full, of just compensation to the person so
deprived is made.
The Kenyan court system is relatively advanced and
it upholds the rule of law as relates to protection of property rights. Article
27 of the Constitution provides that every person is equal before the law and
has the right to equal protection and equal benefit of the law.
There is little freehold land remaining in Kenya
and most of that is agricultural. Most land in urban areas is held under
leasehold tenure for terms that are for 99 years or less.
The value of long leaseholds and freehold land in
the market is not starkly different in our experience.