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ABSTRACT

The association between widespread land speculation, the crash in the real estate

sector and the economic crisis that surfaced in the middle of 1997 have rekindled the

interests on the defects of land markets in Thailand. This has been the context where

the Thailand Research Fund has initiated this study on problems of land tenure

focusing in particular on the issue of land concentration, changes in land market and

land use during the post economic crisis period. Areas seeking clarification also

include the influence of the legal framework on the evolving land tenure system of

Thailand as well as the changes that might result from legal development to open up

channels for land acquisition by non-Thai nationals.

The working definition adopted in this study is that concentration of land size refers to

ownership of single parcels which are larger than 200 rai. Concentration of

landownership, on the other hand, is defined as a single landowner with more than

one parcels which may be scattered in different provinces add up to more than 200 rai.

Based on statistics of the Department of Lands and the surveys conducted within the

framework of this study, the majority of land holdings in Thailand, i.e. 87% were

found to be smaller than 5 rai. Holdings that are larger than 100 rai account for 5% of

the total number of holdings.

In terms of land utilization, approximately 44% of Sor Khor 1 landholdings which are

larger than 200 rai are utilized. Findings confirm the theoretical underpinnings of the

association between tenurial security and the higher level of utilization where land

parcels with title deeds are more intensively utilized, that is, from 66% upwards. The

survey data does not indicate any clear relationship between land concentration and

the level of land utilization. There are variations in the type and intensity of land use

among large landholdings ranging from 200 rai to 50,000 rai. No clear pattern can be

established that large holdings are inefficient or that land concentration necessarily

leads to underutilization. Rather, it is the types of economic activities that determine

the size of landholding which will ensure optimal scale of operation and returns from

land. Nonetheless, survey data suggests that regardless of size, there is

underutlization of land resources. Intensity of land use for 70% of the landholdings is

under 50% of full capacity. The level of intensity of some of these holdings are low

while some others are left entirely unutilized. The underlying reasons for the low

intensity of land use can be attributed to landholding for speculative purposes as well

as due to poor management decisions of the landowners themselves.

To quantify the loss from under-utilization of land, the value added from the

agricultural sector has been adopted. Presently, Thailands agricultural acreage of

132 million rai generate a value of 619,350 million Baht. If the highest level of land

use intensity, now at 70.5% of the land carrying capacity, can be increased to 85%,

the value added generated by the agricultural sector will increase to 746,734.03

million Baht, or an increase of 127,384.03 million Baht. It should be noted that the

value of 127,384.03 million is a conservative estimate of the monetary loss from

under-utilization of land resources.

On the legal aspects of land administration, the analysis undertaken in this study

confirms that the existing legal structures is part of the cause for problems of land

distribution and underutilization of land resources. As there are no laws which limit

the ceiling of land holdings, there are no legal restrictions on the size of land that can

be held by individual landowners. There are no effective taxes which can be used to

discourage concentration of landownership or acquisition of land for speculative

purposes. Furthermore, the emphasis of the Agricultural Land Reform Act is not on

private landholdings as a means of equitably distribute land but rather on confirmation

of occupancy rights of small and landless farmers in public lands. Ineffective

enforcement of Town and Country Planning Act, the Land Development Act generate

evolving pattern of land use that is inconsistent with the land use plans and utilization

of land that does not accord with land capability. As for the pieces of legislation that

came into being following the economic crisis in 1997, there has been no discernible

impacts on expansion of landownership of foreigners. This is partly due to

accompanying conditions that govern the process of land acquisition by non-Thais.

In conclusion, rationalization of the various types of land document into one single

document, namely the title deed is recommended to reduce management confusions as

well as provide some uniformity of rights and entitlements of landownership. Land

information needs to be revamped in the absence of which, no precise answers can be

provided on the degree of land concentration. The study supports the adoption of a

combination of land taxes based on the principle of progressive rates and land value

taxation. Again, this requires the existence of a comprehensive and reliable land

information system. Mechanisms should be sought whereby unutilized mortgaged

land from NPLs can be utilized on a leasehold basis during the interval period. Lastly,

combined with reinforcement of land use zones as opposed to the imposition of direct

legal and command measures to limit the ceiling size of landholdings is

recommended.

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