Report On Consideration Of Presidential Memorandum On Referral Of The National Land Commission (amendment) Bill, 2023

REPUBLICOFKENYA

THENATIONALASSEMBLY

THIRTEENTHPARLIAMENT-FOURTHSESSION-2025

DIRECTORATEOFDEPARTMENTALCOMMITTEES

DEPARTMENTALCOMMITTEEONLANDS

REPORTONTHEPRESIDENTIALMEMORANDUMOFREFERRALONTHE

Published by:

TheDirectorateofDepartmental Committees Clerk's Chambers Parliament Buildings NAIROBI

TABLEOFCONTENTS

| CHAIRPERSON'SFOREWORD. | |--------------------------------------------------------------------------------------------------------------------| | CHAPTER ONE. | | 1.0 PREFACE | | 1.1EstablishmentandMandateoftheCommittee | | 1.2 Subjects under the Committee. | | 1.3 Oversight.... | | 1.4CommitteeMembership | | CHAPTERTWO | | 2.0PRESIDENTIALMEMORANDAOFREFERRALTOTHENATIONALLAND COMMISSION(AMENDMENT)BILL(NATIONALASSEMBLYBILLNO.43OF 2023)... | | 2.1Background | | 2.2 Legislative Process.. | | 2.3LegislativeFramework | | CHAPTERTHREE. | | 2.4Analysisof thePresidential Memorandum of Referral | | CHAPTERFOUR. | | 4.0 COMMITTEEOBSERVATIONS | | CHAPTERFIVE | | 5.0 COMMITTEERECOMMENDATIONS |

5.0

ANNEXUREI

ANNEXUREII

ANNEXUREIII

Adoption List

Minutes

PresidentialMemorandaofReferral

CHAIRPERSON'SFOREWORD

ThisReport containsa detailed analysisof thePresidential Memorandum of Referral on the National Land Commission (Amendment) Bill (National Assembly Bills No. 43 of 2023). On Tuesday, 1st July, 2025, the Rt. Hon. Speaker conveyed a message from His Excellency, the President referring the National Land Commission (Amendment) Bill (National Assembly Bills No.43 of 2023). accompanied by a memorandum to the Departmental Committee on Lands.

The message from His Excellency the President, dated 26th June, 2025, stated that His Excellency the President had,declined to assent to the National Land Commission (Amendment)Bill(NationalAssemblyBillsNo.43of2023)and attached amemorandum of referraldetailing thereasonsfordecliningtoassent,inexerciseofthepowersconferred to him by Article 115(1)(b) of the Constitution.

The National Land Commission (Amendment) Bill (National Assembly Bills No. 43 of 2023) was published on 16th August 2023videKenya GazetteSupplement No.129 of 2022 and was Read a First time on 27th September, 2023. The Bill, sponsored by the Deputy Chief Whip, the 13thFebruary,2025.

It is upon this premise,that the National Assembly Departmental Committee on Lands convenedtodeliberateonthePresidentialMemorandumofReferralinaccordancetoArticle 115oftheConstitutionwhichprovidesthatthePresidentmayreferaBillbackfor reconsiderationtoParliamenttoamendtheBillinlightofthereservationsofthePresident; orpasstheBill a second timewithoutamendment.

I takethisopportunity tothank andcommendCommitteeMembersfor theirdevotion and commitment to duty,the Speaker and the Clerk of the National Assembly for providing leadership and direction and finally the Committee Secretariat for their exemplary performance in the provision of technical and logistical support.

Onbehalf of theDepartmental Committee onLands andpursuant toprovisions of Standing Order 216 (5) (g), it is my pleasant privilege and honor to present the Report of the Committee on its consideration of thePresidential Memorandum of Referral on theNational Land Commission(Amendment)Bill,(National Assembly Bills No.43 of 2023).

Hon.JoashNyamacheNyamoko,HSC,M.P. Chairperson,Departmental Committee onLands

1.0PREFACE

1.1EstablishmentandMandateoftheCommittee

1. TheDepartmental CommitteeonLands is oneof theDepartmental Committees of the National Assembly established under Standing Order 216 whose mandates pursuant to the Standing Order 216 (5) are as follows: 2. To investigate, inquire into, and report on all matters relating to the mandate, management, activities,administration,operations and estimates of the assigned ministries and departments;

• ii. To study the programme and policy objectives of ministries and departments and the effectivenessof theimplementation;
• iii. on a quarterly basis, monitor and report on the implementation of the national budget in respect ofits mandate;
• iv. To study and review all legislation referred to it;
• V. To study, assess and analyse the relative success of the ministries and departments as measured by the results obtained as compared with their stated objectives;
• vi. To investigate and inquire into all matters relating to the assigned ministries and departments as they may deem necessary, and as may be referred to them by the House;
• vii. To vet and report on all appointments where the Constitution or any law requires the National Assembly to approve, except those under Standing Order 204 (Committee on Appointments);
• viii. To examine treaties,agreements and conventions;
• ix. To make reports and recommendations to the House as often as possible, includingrecommendation ofproposed legislation;
• X. To consider reports of Commissions and Independent Offices submitted to the Housepursuanttotheprovisions ofArticle 254 of theConstitution; and
• xi. To examine any questions raised by Members on a matter within its mandate.

CHAPTERONE

1.2Subjectsunder theCommittee

2. In accordance with the Second Schedule of the Standing Orders,the Committee is mandated to oversee: matters related to lands and settlement including, land policy, land transactions, survey and mapping, land adjudication, settlement, land registration,landvaluation,administration of community andpublic land and land information and management system.

1.3 Oversight

3. In executing its mandate, the Committee on Lands oversees the

• i. State Department for Lands and Physical Planning
• ii. TheNationalLandCommission.

1.4 CommitteeMembership

4. The Departmental Committee on Lands was constituted by the House on Thursday, 27thOctober2022andcomprisesthefollowingMembers:

Chairperson

Hon.JoashNyamacheNyamoko,MP North Mugirango Constituency UDA Party

Vice-Chairperson

Hon.FatumaAbdiJehow,MP Women Representative Wajir County ODM Party

Members

Hon.Dr.Rachael Kaki Nyamai,MP Kitui South Constituency JUBILEE Party

Hon.Irene Mrembo Njoki, MP Bahati Constituency JUBILEE Party

Hon.Dr.Gideon Ochanda,MP Bondo Constituency ODM Party

Hon.Leah Sopiato Sankaire,MP Women Representative Kajiado County ODM Party

Hon.MathiasRobi Nyambabe,MP Kuria West Constituency UDA Party

Hon. Ali Wario Guyo, MP Garsen Constituency ODM Party

Hon. Maj. Barrow Dekow, MP Garissa Township Constituency UDA Party

Hon. Omar Mwinyi, MP Changamwe Constituency ODM Party

Hon.Paul Katana,MP

Hon.Thaddeus Nzambia,MP Kilome Constituency WIPERParty

Kaloleni Constituency ODM Party

Hon.Josses Lelmengit,MP Emgwen Constituency UDA Party

Hon.Anthony Kenga Mupe, MP Rabai Constituency JUBILEE Party

Hon.Gachoki Gitari,MP Kirinyaga Central Constituency UDA Party

1.5CommitteeSecretariat

• 5.The Committee isfacilitated by thefollowing staff secretariat:

Mr.Joshua Ondari ClerkAssistantI/LeadClerk

Mr.Nebert LomechuIkai ClerkAssistantI

Mr.Binensa Mabungu

ClerkAssistantIII

| Mr. Sidney Lugaga Senior Legal Counsel | Ms Audrey Ogutu Legal Counsel II | |------------------------------------------|---------------------------------------| | Ms. Judith Kiprop Fiscal Analyst II | Ms.Brenda Michira Research OfficerIII | | Mr.Murimi Mwangi | Mr.YezielJillo | | MediaRelationsOfficer | SeniorSerjeant-At-Arms | | Public Communications Officer | Mr. Cosmas Akhonya AudioOfficer | | Ms.Patricia Gichane | | | Legal Counsel II | |

CHAPTERTWO

2.0PRESIDENTIALMEMORANDUMOFREFERRALTOTHENATIONALLAND COMMISSION (AMENDMENT) BILL (NATIONAL ASSEMBLY BILL NO.43 OF 2023)

2.1 Background

6. On Tuesday, 1st July, 2025, the Rt. Hon. Speaker conveyed a message from His Excellency,thePresidentreferringtheNational Land Commission(Amendment) Bill (National Assembly Bills No. 43 of 2023) accompanied by a memorandum to the Departmental Committee on Lands. 7. The message from His Excellency the President, dated 26th June, 2025, stated that His Excellency the President had,declined to assent to the National Land Commission (Amendment) Bill (National Assembly Bills No. 43 of 2023) and attached a memorandum of referral detailing thereasonsfor declining to assent, in exercise of the powers conferred to him by Article 115(1)(b) of the Constitution.

2.2LegislativeProcess

• 8.The National Land Commission (Amendment) Bill (National Assembly Bills No. 43 of 2023)was published on 16th August, 2023 vide Kenya Gazette Supplement No.129 of 2022 and Read a First time on 27th September, 2023. The Bill, sponsored by the Deputy Chief Whip,the Hon. Owen Baya,MP was passed,with amendments,by the NationalAssembly on13thFebruary,2025.

2.3LegislativeFramework

9. Article 115of the Constitution regulatesPresidential assent andreferral.Article 115(1)of the Constitution providesthatwithinfourteen days after receiptof a Bill, the President shall—assent tothe Bill;or refer the Bill backtoParliamentfor reconsideration by Parliament, noting any reservations that the President has concerning the Bill. 2. 10.Article 115(2) of the Constitution provides that if the President refers a Bill back for reconsideration,Parliamentmayamend theBill inlight of thereservations of the President; orpass theBill a second timewithout amendment.

• 11.Article115(3)of theConstitutionprovidesthatif Parliament amends theBillfully accommodating thereservationsof thePresident,theSpeaker shallre-submit the Bill tothePresidentfor assent.

12. Article 115(4) of the Constitution provides that Parliament, may pass the Bill a second time,without amendment,or with amendments that do not fully accommodate thereservationsfrom thePresident,by avotesupportedby two-thirds ofmembersoftheNationalAssembly.

CHAPTERTHREE

2.4AnalysisofthePresidentialMemorandumofReferral

• 13.Attached below is a matrix containing an analysis of the memorandum of referral on the National Land Commission (Amendment) Bill (National Assembly Bills No.43 of 2023) detailing the reasonsfor declining to assent,

| No | Clause | Proposedamendment | EffectoftheAmendment | |------|-----------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------|----------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------|----------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------| | 1 | (1)Subject to Article 68(c)(v) of the Constitution, the Commission shall,on its own motion or upon a complaint by the national or a county government, a community or an individual,review any grants or dispositions of publiclandtoestablish their propriety or legality. | (a)deleting the proposed section 14(1) and substituting therefor the followingnewsubsection (1)SubjecttoArticle 68(c)(v) of the Constitution, the Commission shall, within five years of the coming intoforceofthis section,onitsownmotion or upon a complaint by the nationalora( county government, a community or an individual, review all grants or dispositions of public land issued before the 27th 1August,2010 to establish their propriety or legality, upon hearing all | Introducesa5-yearlimitfor reviewing grants or dispositions, and limits the scope of the National Land Commission to reviewing all grants or dispositions to apply topublic land issued before the 27th August, 2010. | | 2 | (9)A person may register a determination that complies swithArticle 40(6) of the Constitution made under subsection (6) in the High Court. | parties affected. b) deletingtheproposed section 14(9) and substitutingthereforthe followingnewsubsection— (9) A person may register a determinationmadeunder | Narrowsregistrationcriteria provided under subsection (4) and removes constitutional reference to Article 40(6). |

| | | subsection (4) in the High Court; | | |----|---------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------|-------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------|----------------------------------------------------------------------------------------------------------------------| | 3 | (10) Wherea registersa determination under subsection 9, (a) the High Court shall enter judgmentinaccordance with the determination; and (b) includes any consequential orders issued asa result of the | ? deleting the proposed section 14(10); | Removes automatic court enforcement, meaning Commissiondecisionsrequire separate legal action to be upheld in court. | | 4 | (12) The Commission shall publish all determinations made under subsection (6). | (d) deleting the proposed section 14(12) and substituting therefor the followingnewsubsection- (12)The Commission shall publish in the Gazette all determinationsmadeunder subsection (4). | Requiresallmattersthatare published tobegazetted. | | 5 | (No existing text; this is a new provision) | e inserting the following new subsectionimmediately aftertheproposedsection 14(13) (13) The Commission may, where it considers it necessary, petition Parliament to extend the period undertaking the review specified in subsection (1). | Empowers the Commission to seekanextensionofthe5- year window, promoting flexibilityunder legislative oversight. | | 6 | (1)Pursuant to Article 67(3) of the Constitution, the Commission shall initiate,receive,admitand | (a)deleting the proposed section 15(1) and substituting therefor the following new subsection- | Linits the role of the Commission to investigating historical land injustices, removing itsauthority |

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ReportonthePresidentialMemorandumofReferralontheNationalLandCommission (Amendment)Bill,(NationalAssemblyBillsNo.43of2023)

| | investigate a complaint on present or historical land injustices,complaint and recommend an appropriate redress. | (1) PursuanttoArticle 67(2)(e)of the Constitution, the Commission shall initiate,receive,admit and investigate any historical land injustice complaint and recommendanappropriate redress. | investigate present-day disputes. | |----|--------------------------------------------------------------------------------------------------------------------|------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------------|---------------------------------------------------------------------------------------------------------| | 7 | (3)For the purposes of this section,a historical land injusticeincludesa subsistingland injustice | (b) deleting the proposed section 15(3); | Limits the application of the Bill to historical land injustice. | | 8 | (12) The Commission shall publish all determinations made under this section. | ? deleting the proposed section 15(12) and substituting thereforthe following new subsection —— (12)The Commission shall publishintheGazetteall determinationsmadeunder this section. | Insertsarequirementthat National Land Commission shall publish all determinations in the Kenya Gazette. | | 9 | (15) The Commission shall publish regulations to operationalize this sectionwithinsixmonths ofenactingthisAct. | (d) deleting the proposed section 15(15) and substituting thereforthe followingnewsubsection (15) The Commission shall make regulations to operationalize this section within sixmonthsfrom the coming into force of this section. | Insertsthewords“make regulations to"to make the sentence clear and simple to understand | | 10 | (No existing text; new clause being added) | (e) adding the following new subsection after the proposed section 15(15) | Introducesasunsetclauseto limit application of thesection to 5 years,meaning that all |

ReportonthePresidentialMemorandumofReferralontheNationalLandCommission (Amendment)Bill,(NationalAssemblyBillsNo.43of2023)

| (16) The provisions of this section shall stand repealed withinfiveyearsfromthe comingintoforceofthis section. | historicallandinjusticesmust beresolvedwithin5yearsof enactmentofthisAct. | |------------------------------------------------------------------------------------------------------------------|-----------------------------------------------------------------------------|

CHAPTERFOUR

4.0COMMITTEEOBSERVATIONS

• 14.The memorandum proposes to amend clause 1 of the Bill by deleting the proposed section14(1) andsubstitutingwith anewsubsectiontointroduce a5-yearlimitfor reviewing grants or dispositions, and to limit the scope of the National Land Commission to reviewing all grants or dispositions to apply to public land issued before the 27th August, 2010.

15. The memorandum proposes to amend clause 1 of the Bill by deleting the proposed section 14(9) and substituting the proposed subsection with a new subsection to limit the criteria for registration to determination issued under subsection(4) and removes constitutional reference to Article 4O(6),streamlining the enforcement trigger. 16. The memorandum proposes to amend clause 1 of the Bill by deleting the proposed section14(io)andtheeffectoftheamendmentthatremovesautomaticcourt enforcement, meaning Commission decisions require separate legal action to be upheld in court.

• 17.The memorandum proposes to amend clause 1 of the Bill by deleting the proposed section 14(12) and substituting the proposed subsection with a new subsection to limit the criteriafor registration to determination issued under subsection (4) and removes constitutional reference to Article 4o(6), streamlining the enforcement trigger.

18. The memorandum proposes to amend clause 1 of the Bill by inserting a new subsection immediately after the proposed section 14(13) to empower the Commission to seek an extension of the 5-year window,promoting flexibility underlegislativeoversight.

• 19.The memorandum proposes to amend clause 2 of the Bill by deleting the proposed section 15(1) and substituting the proposed subsection with a new subsection to limit the role of the Commission to investigating historical land injustices, removing its authority to investigate present-day disputes. The Committee will

7

ReportonthePresidentialMemorandumofReferralontheNationalLandCommission (Amendment)Bill,(NationalAsseimblyBillsNo.43of2023)

• sponsor a Bill to amend the National Land Commission Act to empower the National Land Commission to investigate present-day disputes.
• 20.Thememorandumproposesto amend clause 2 of theBill by deleting theproposed section 15(3) to limit the application of the Bill to historical land injustice. The Committee will sponsor aBill to amend the National Land Commission Act to empower theNational Land Commission to investigate present-day disputes.
• 21.The memorandum proposes to amend clause 2 of the Bill by deleting the proposed section 15(12) and substituting the proposed subsection with a new subsection to insert arequirementthat the NationalLandCommissionshallpublish all determinationsin theKenyaGazette.
• 22.The memorandum proposes to amend clause 2 of the Bill by deleting the proposed section15(15)toinsert thewords"makeregulations to"tomake the sentence clear andsimpletounderstand.
• 23.The memorandum proposes to amend clause 2 of the Bill by inserting the following newsubsectionimmediately after theproposedsection14(13)tointroduce a sunset clause tolimit application of the section to 5 years, meaning that all historical land injusticesmust beresolvedwithin5years ofenactment of thisAct.

CHAPTERFIVE

5.0COMMITTEERECOMMENDATIONS

• 24.Article 115 of the Constitution provides that Parliament —(a) may amend the Bill fully accommodating the reservations of the President or (b) may pass the Bill a second time,without amendment, or with amendments that do not fully accommodatethereservationsfromthePresident.
• 25.Pursuant to Article 115 of the Constitution,the Committee may consider the reservations and recommend that the National Assembly:(a) amends the Bill fully accommodatingthereservationsofthePresidentor(b)passtheBillasecondtime, withorwithoutamendmentsthataccommodatethereservationsfromthePresident.
• 26.Pursuant to Article 115 of the Constitution,the Committee recommends to the House to amend theBill fully accommodating the reservations of thePresident relating to:
• proposedsubsectionwiththefollowingnewsubsection-
• "(1) Subject to Article 68(c)(v) of the Constitution, the Commission shall, within fiveyears of the coming intoforce of this section,onits own motion an individual, review all grants or dispositions of public land issued before the 27th August, 2010 to establish their propriety or legality,upon hearing all parties affected."
• (b) Clause 1 ofthe Bill by deleting the proposed section 14(9) and substituting the proposed subsection with the following new subsection—
• "(9) A person may register a determination made under subsection (4) in the High Court;"
• (c)Clause 1 of theBill by deletingtheproposed section14(10).
• (d) Clause 1 of the Bill by deleting the proposed section 14(12) and the proposed subsectionwith thefollowingnew subsection-

9

• "(12) The Commission shall publish in the Gazette all determinations made under subsection (4)."
• (e)Clause1of theBillbyinserting anewsubsectionimmediatelyafter the proposedsection 14(13)—
• "(13) The Commission may, where it considers it necessary,petition Parliament to extend theperiodfor undertaking thereview specifiedin subsection (1)."
• (f) Clause 2 of the Bill by deleting the proposed section 15(1) and the proposed subsectionwiththefollowingnewsubsection--
• "(1)Pursuant to Article 67(2)(e)of the Constitution,the Commission shall initiate, receive, admit and investigate any historical land injustice complaint and recommend an appropriate redress."
• (g) Clause 2 of the Bill by deleting the proposed section 15(3).
• (h) Clause 2 of the Bill by deleting the proposed section 15(12) and the proposed subsectionwiththefollowing newsubsection--
• "(12) The Commission shall publish in the Gazette all determinations made under this section."
• (i) Clause 2 of the Bill by deleting the proposed section 15(15) and the proposed subsectionwiththefollowingnewsubsection-
• "(15) The Commission shall make regulations to operationalize this section within six months from the coming into force of this section."
• (j) Clause 2 of the Bill by inserting the following new subsection immediately after the proposed section 14(13)—
• "(16) The provisions of this section shall stand repealed within five years from the coming into force of this section."
• (k)The Committeeresolves to sponsor a Bill to amend section 15(1) theNational Land Commission Act to operationalise the National Land Commission to investigate present land injustices in accordance with article 67(2)(e)of the Constitution.

117/2035

DATE.

HON.JOASHNYAMACHENYAMOKO,MP

(CHAIRPERSON)

THENATIONAL.ASSEMBLY PAPERSLAD

22 00

DAY.

MmKO,M (CHPIRAEASON)

IMZOPU Mugra,

DATE:

TABLED BY:

CLERK.AT

THE-TABL

REPUBLICOFKENYA THENATIONALASSEMBLY THIRTEENTHPARLIAMENT

DEPARTMENTAL COMMITTEE ONLANDS

REPORT ADOPTION LIST

We,themembersof theDepartmental CommitteeonLands,havepursuanttoStanding Orders 216 (5)(c), adopted this report and affix our signatures to affirm our approval and confirm its accuracy, validity and authenticity.

Date: (7 lo7 /3o)

| No. | MEMBER | SIGNATURE | |-------|----------------------------------------------------|-------------| | 1. | Hon. Nyamoko Joash Nyamache, HSC, MP - Chairperson | | | 2. | Hon.JehowFatumaAbdi,MP-ViceChairperson | | | 3. | Hon.(Dr.) Rachael Kaki Nyamai,CBS,MP | | | 4. | Hon. (Dr.) Ogolla Gideon Ochanda, MP | | | 5. | Hon. Shimbwa Omar Mwinyi, MP | Vir+ual. | | 6. | Hon. Robi Mathias Nyamabe, MP | | | 7. | Hon. Gitari Joseph Gachoki, MP | | | 8. | Hon.Katana Paul Kahindi,MP | iVthal | | 9. | Hon. Mupe Anthony Kenga, MP | | | 10. | Hon. Guyo Ali Wario , MP | | | 11. | Hon. (Eng.) Nzambia Thuddeus Kithua, MP | rMa | | 12. | Hon. Lelmengit Jossess Kiptoo Kosgey, MP | | | 13. | Hon.Maj. (Rtd) DekowBarrow Mohamed, MP | | | 14. | Hon. Sankaire Leah Sopiato, MP | | | 15. | Hon. Mrembo, Irene Njoki MP | Virtal |