Dew Crisp Properties (Pty) Ltd is the owner of Portion 127 of the Farm Rietfontein 21. On 20 October 1998, the second respondent (Meshack Mduduzi Shabangu) lodged a land claim under the Restitution of Land Rights Act 22 of 1994 for land incorrectly described as Guest SA (Pty) Ltd, Spring Valley Foods and Green World Farmers Estate. In 2014, after a site inspection using GPS coordinates, the description was corrected to reflect the applicant's property. The second respondent claimed as a direct descendant of Johannes Butana Shabangu, allegedly dispossessed from the land. On 6 March 2015, the Regional Land Claims Commissioner published Notice No. 186 of 2015 in the Government Gazette in terms of section 11(1) of the Restitution Act. The applicant made representations on 5 May 2015 for withdrawal of the notice, arguing that: (1) the second respondent had previously received settlement as part of the Benoni Urban Group claim; (2) the notice description was at variance with the original claim; and (3) the second respondent's father was constructively dismissed, not removed due to discriminatory laws. The applicant sought to review and set aside the Commissioner's decision to publish the notice.
The application for review was dismissed. There was no order as to costs. The conditional counter-application by the second respondent was not dealt with due to the order granted. Condonation for late filing of the answering affidavit was granted.
The binding legal principles established are: (1) Under section 11(1) of the Restitution of Land Rights Act, a Regional Land Claims Commissioner is required only to be satisfied on a prima facie basis that a claim is lodged in prescribed manner, is not precluded by section 2, and is not frivolous or vexatious before publishing a notice in the Government Gazette; (2) The Regional Land Claims Commissioner is not required to adjudicate or determine the merits of a land claim before publishing the notice - this is the function of the Land Claims Court; (3) The threshold for publication of a notice under section 11(1) is low - the claimant need only show an arguable case, even if weak; (4) The investigation of the substantive merits of a claim occurs after publication of the notice, not before; (5) The Commission has an investigative and facilitative role, while adjudicative powers rest with the courts; (6) Section 12(3) places the duty of sourcing information on the Commission, not the claimant; (7) A decision by a Regional Land Claims Commissioner to publish a notice under section 11(1) constitutes administrative action subject to review under PAJA, but will only be set aside if the Commissioner failed to apply his mind to the preliminary threshold requirements.
The Court made observations about the nature of land claimants and the need to avoid overly complicated and sophisticated approaches at the preliminary stage that might prejudice claimants. The Court noted that requiring claimants to prove their cases before the Regional Land Claims Commissioner would exceed the constitutional and statutory mandates conferred on the Commission. The Court also observed that none of the procedural steps culminating in a hearing before the Land Claims Court is clothed with absolute finality, and that there is a further investigative stage after publication in which interested and affected parties are entitled to participate. The Court commented on the overlap between different grounds of review under section 6(2) of PAJA, particularly between the principle of legality (s 6(2)(a)), procedural fairness (s 6(2)(c)), and unauthorized action (s 6(2)(f)).
This case clarifies the threshold test and scope of inquiry required of Regional Land Claims Commissioners when deciding whether to publish notices under section 11(1) of the Restitution of Land Rights Act. It confirms that the Commission's role at the preliminary stage is investigative and facilitative, not adjudicative, and that only a prima facie assessment is required before publication of a claim notice. The judgment reinforces the separation of functions between the Commission (investigation and mediation) and the Land Claims Court (adjudication). It establishes that substantive determinations on the merits of land claims, including whether dispossession occurred due to discriminatory laws, are not required at the preliminary notice stage but occur during subsequent investigation. The case is important for understanding the phased approach to land restitution claims and the limited grounds for reviewing a Commissioner's decision to publish a notice.