Why managing land reform problems works better than trying to solve them

In land administration reform, policymakers tend to pursue definitive solutions to the issues they face. Such solutions rarely work due to the complicated nature of the field. Approaching land reform as a wicked problem may be more effective.

Land administration reforms are an inherently complex affair. Making the transition from traditional systems to modern digital ones involves a multitude of challenges, such as initiating and managing organisational culture shifts, taking into account the dynamic nature of land-related problems, and solving stakeholder conflicts.

Practice shows that there are no clear-cut solutions to the intricate problems encountered.

Recent research suggests that issues in this area can be better understood and dealt with by approaching land reforms as wicked policy problems.

What are wicked problems? 

The concept of “wicked” problems was introduced in planning studies in the 1970s and has since influenced various research fields.

Unlike “tame” problems (e.g., mathematics and engineering) that can be solved using expert knowledge and technical methods, wicked problems tend to be too poorly defined to allow straightforward solutions.

They involve multiple actors and are subject to constant change under the influence of political, social, and economic factors. Different stakeholders may see a wicked problem in entirely different ways, which makes it hard to reach a consensus.

Because of all this complexity, a wicked problem only allows for partial fixes or small wins. Trying to provide a definitive solution can even worsen the problem. 

Why land reform is a wicked problem by nature

The researchers of the recent study argue that land reforms, particularly on a large scale, are inherently wicked problems due to their profound political and societal implications.

Improving land governance and reforming land administration systems is a complex and politically sensitive process, and land reforms are unique to each context. There are no universal solutions; strategies that work in one place may not be effective elsewhere.

What’s more, addressing one issue, such as land tenure, often exposes or exacerbates other problems within the system.

Consequently, land reforms require adaptive, iterative, and collaborative approaches that are similar to those used for tackling any wicked problem.

The need for behavioural change 

The researchers specifically mention behavioural change as a key challenge in land reform.

Land professionals often have established views on technical, legal, and procedural standards, which makes it difficult for them to adapt.

Other stakeholders, including citizens, tend to stick to their ways as well.

Policymakers must be careful, as land reforms involve uncertainty and risks, particularly when it comes to their impact on property rights and people-to-land relationships. Mistakes can lead to resistance and long-term negative consequences.

Case study 

To support their argument, the researchers use Greece’s ongoing Hellenic Land Administration Reform (HLAR) as a case study. The HLAR case is described in terms of two dimensions that are central to any kind of wicked problem: complexity and conflict.

Complexity 

The HLAR was launched in 1994 to address various land administration problems, such as informal development, land speculation, and complicated property laws. These issues were blamed on the outdated French-influenced paper-based cadastre system. The reform aimed to create a German-influenced central digital framework to replace the old, fragmented records.

In this process, many agencies and organisations with overlapping responsibilities had to be coordinated and a shift from paper to digital was required.

In addition, the HLAR had to overcome longstanding, complex regimes of land tenure and existing practices. The economic crisis of 2009–2018 only added to the enormous complexity of the entire operation.

Conflict 

Conflict was a vital feature from the start of the HLAR. One approach, rooted in a technical framing of the problem, advocated for a fully integrated cadastral system.

The other, shaped by legal perspectives, favoured modernising the existing land registries and maintaining separation between mapping and legal records.

The economic crisis introduced new pressures, actors, and incentives, reshaping not only the pace but also the priorities and power dynamics of reform. It served as a catalyst that enabled the accommodation of the diverse frames towards a level of policy change that might otherwise have faced prolonged resistance.

Conclusion

The complexity and conflict exhibited by the HLAR mark land reform as a wicked policy problem instead of a tame one that can be solved using linear or technocratic approaches.

In the specific case of Greece, the economic crisis only served to reveal and exacerbate latent complexities, increasing conflict and making reform even more challenging.

The researchers express the hope that their study may help policymakers achieve the United Nations’ Sustainable Development Goal 1.4.2 (secure land rights for all people) through state-led land administration reforms.

For future scientific work, the researchers recommend exploring adaptive and collaborative approaches, focusing on small-scale interventions and addressing challenges as they arise

Focusing on adaptive practice, rather than predefined outputs, may lead to more resilient and context-sensitive approaches to managing the wicked nature of land administration reforms, where the path emerges through learning and collaboration.

This story is an adaptation of a published journal article: Balla, E., Madureira, A. M., & Zevenbergen, J. (2025). Land Reforms Revisited: An Emerging Perspective on the Hellenic Land Administration Reform as a Wicked Policy Problem. Land, 14(2), 282. It has been adapted with permission from the authors and in accordance with the copyright license CC BY 4.0

To read the original paper, follow the link below: