THE ECONOMIC WEEKLY January 25, 1964 Economic Implications of Democratic Socialism Some Reflections on the Indian Economic Conference Vaikunth L Mehta Planning is not necessarily identical with socialism. At the same thought all over the world have held the view that for developing countries, order is incapable of achievement without fundamental social change. In most developing countries so great that to reduce, if not to control of the economy by the State trial or nated. societies methods today, however, the disparities between certain sections of society are eliminate, these disparities — essential for averting resort to violence-— becomes more or less inevitable. Statism is repugnant to economic other business undertakings. The It of of time many leaders of economic economic growth of a large democracy, because it makes the State the employer in conflict between the employer and the employed is thus is time that we appreciated that the decentralization of productive workers in cottage industries producing consumer goods can become establishing a socialist society of the democratic variety. alt indusnot elimi- effort through cooperative one of the most suitable The Planning Commission has stated in the Third Five Year Plan that "the basic objective of Indians development must necessarily be to provide the masses of the Indian people the opportunity to lead a good life". Therefore, that form of democratic senilism will be acceptable which best subserves this purpose and is most in consonance with the fundamental principles enshrined in the Constitution of India. AT the recent session o f the Indian Economic Conference, the c u r r e n t t o p i c t h a t was selected f o r discussion was the v e r y t o p i c a l one o f the " E c o n o m i c I m p l i c a t i o n s of Democratic Socialism", Initiati n g the discussion, Professor C N V a k i l asserted t h a t the p r e a m b l e t o the C o n s t i t u t i o n o f I n d i a r e a d together w i t h the articles setting f o r t h the D i r e c t i v e s o f State P o l i c y — especially a r t i c l e s 38 a n d 39 — p r o v i d e d the basis of the social o r d e r as conceived of by the f r a m e r s of the C o n s t i t u t i o n a n d accepted b y the people o f I n d i a . The main features of the o r d e r , as v i s u a l i z e d b y the C o n s t i t u t i o n , according to Professor V a k i l , are ( 1 ) adequate means o f livelihood for a l l , and ( 2 ) such f o r m o f e c o n o m i c o r g a n i zation as w o u l d f u n c t i o n f o r the common good and avoid things w h i c h l e a d t o the c o m m o n d e t r i ment. What democratic socialism s h o u l d represent and comprehend would be determined, Professor V a k i l u r e e d . i n the l i g h t o f these two principal criteria. No G r o w t h W i t h o u t Social Change I t i s p e r t i n e n t t o note here t h a t i t i s i n o r d e r t o give effect t o the p r i n c i p l e s e n u n c i a t e d i n the Constit u t i o n t h a t the g o v e r n m e n t o f the country, w i t h the approval of the p e o p l e as r e c o r d e d at the g e n e r a l election of 1952, embarked upon planning for social and economic development by inaugurating a series of five-year p l a n s . P l a n n i n g means the conscious a n d deliberate choice of e c o n o m i c p r i o r i t i e s by a p r o p e r l y constituted p u b l i c authority. Planning is not necessarily identical with socialism. A t the same t i m e , m a n y leaders of econom i c t h o u g h t a l l over the world have h e l d the v i e w t h a t f o r developi n g countries, economic growth of a l a r g e o r d e r is i n c a p a b l e of achievement w i t h o u t f u n d a m e n t a l social change. U n d e r the pressure of ext e r n a l d a n g e r such as w a r it m a y be t h a t p l a n n i n g has been achieved w i t h o u t resort t o s o c i a l i s m . I n norm a l t i m e s , however, i t o f t e n happens, as B a r b a r a W o o t o n says in "Freedom Under P l a n n i n g " , that government plans w h i c h are not also government-executed founder on the rocks of vested interest o r are wrecked by exploitation. While a c c e p t i n g the l e t t e r of a government programme, a l l att e m p t s are made to defeat the substance, a n d an e n t i r e l y new apparatus of c o n t r o l s has to be devised to t h w a r t such a t t e m p t s , the operat i o n o f w h i c h c o n t r o l s presents f o r m i d a b l e difficulties. T h e recent experience o f r a p i d economic d e v e l o p m e n t a n d resurgence i n W e s t G e r m a n y a n d J a p a n is c i t e d as d e m o n s t r a t i n g that q u i c k transformation of the economy is possible w i t h o u t a d o p t i n g socialist m e t h o d s . B o t h the countries, before t h e i r l i f e was l e f t ravaged at the close o f W o r l d W a r I I , were, however, at its commencement t w o of the i n d u s t r i a l l y a n d scientifically most advanced countries i n the world. F o r t h e m , the programme was one of recovery. T h e same was the experience of Czechoslovakia, i n the r e h a b i l i t a t i o n o f the economy o f w h i c h the i n t r o d u c t i o n o f c o m munism m i g h t not have been the determining factor. Control of Economy Inevitable I n m o s t d e v e l o p i n g countries today, however, the disparities between c e r t a i n sections of society are so great, t h a t to reduce, if not to e l i m i n a t e these disparities — essent i a l f o r a v e r t i n g resort t o violence — c o n t r o l of the e c o n o m y on the p a r t of the State becomes m o r e or less i n e v i t a b l e . Hence, those w h o aspire to establish a h e a l t h y s o c i a l , e g a l i t a r i a n social o r d e r have to accept the proposition — implicit in a n y concept of d e m o c r a t i c social i s m — t h a t in m a t t e r s that cone e n the e c o n o m i c l i f e o f the c o m m u n i t y what is required m a y be m o r e p u b l i c c o n t r o l a n d not less. It is f o r this reason that no d e f i n i t i o n of s o c i a l i s m is complete unless it has a reference to social owners h i p or r e g u l a t i o n of the means of production, d i s t r i b u t i o n , a n d exchange. Since the socialistic order 121 January 25, 1964 THE ECONOMIC WEEKLY T H E E C O N O M I C W E E K L Y of o u r conception is to be democ r a t i c , i t i s i n c u m b e n t o n those i n charge o f t h e a f f a i r s o f the State t o s a t i s f y t h e people o f t h e country that it is in consonance w i t h the Concepts of justice, e q u a l i t y , l i b e r t y a n d f r a t e r n i t y a s e n s h r i n e d i n the C o n s t i t u t i o n . T h e e c o n o m i c system s h o u l d , besides, guarantee the livel i h o o d of the people a n d be so designed as to subserve the c o m m o n g o o d a n d to a v o i d o p e r a t i n g to the common detriment. T h e r e are some amongst us w h o equate s o c i a l i s m w i t h nationalization and statism. For an authorit a r i a n State, this m a y b e the f o r m of o r g a n i z a t i o n t h a t has the greatest a p p e a l , b u t not to a d e m o c r a t i c State. B u t just a s i n the p o l i t i c a l field, social t h i n k e r s consider that d e m o c r a c y has i m p l i c a t i o n s other t h a n the setting up of a p a r l i a m e n t a r y f o r m o f g o v e r n m e n t , s o also i n the economic f i e l d democracy is i n adequate unless a c c o m p a n i e d by d e v o l u t i o n . I t i s o n l y then t h a t i t is possible to prevent the concentration of power, whether p o l i t i c a l o r economic. Statism i s r e p u g n a n t to economic democracy, because it m a k e s t h e State the e m p l o y e r i n a l l i n d u s t r i a l or other business undertakings. T h e conflict b e t w e e n the e m p l o y e r a n d the e m p l o y e d is thus not eliminated. In a sense, the employed may find themselves p l a c e d in a worse p o s i t i o n than vis-a-vis p r i v a t e e m p l o y e r s , because the State can no longer f u n c t i o n as a n independent i m p a r t i a l a u t h o r i t y , competent t o a r b i t r a t e o n m a t t e r s i n dispute. Decentralisation of Production U n d e r a democratic system, there s h o u l d be scope f o r effective p a r t i c i p a t i o n b y the w o r k e r s i n the u n d e r t a k i n g i n w h i c h t h e y w o r k . One o f the most a p p r o p r i a t e ways o f e n s u r i n g such p a r t i c i p a t i o n is by the a d o p t i o n o f the principle of d e c e n t r a l i z a t i o n of production to t h e largest extent possible. It is o n l y then that w o r k e r s can exercise c o n t r o l over the e n t e r p r i s e i n w h i c h t h e y are engaged. A share in the c o n t r o l o f s m a l l e r bodies, B e r t r a n d Russell observes in h i s recently p u b l i s h e d ' P o l i t i c a l I d e a l s ' , enables a m a n to develop a sense of personal o p p o r t u n i t y a n d responsibility. Such c o n t r o l s h o u l d compreh e n d the a c c r u i n g , principally, to t h e m , a n d n o t t o the c a p i t a l investe d , o f the f r u i t s o f t h e enterprise, s u b j e c t to financial a l l o c a t i o n s be- i n g m a d e t o reserves a n d f o r deprec i a t i o n o n the standards g e n e r a l l y accepted. T h i s f o r m o f o r g a n i z a t i o n p r o v i d e s j u s t the economic incentive that i s required to stimulate i n creased p r o d u c t i v i t y . In our planned e c o n o m y , the decentralized f o r m of organization has been f a v o u r e d f o r c e r t a i n sect o r s , m a i n l y because of its e m p l o y ment potential. It is time that we appreciated the fact that the decentralization of productive effort through cooperative societies of w o r k e r s i n cottage industries prod u c i n g consumer goods can b e c o m e , one of the most s u i t a b l e methods of e s t a b l i s h i n g a socialist society of the d e m o c r a t i c v a r i e t y . T h e v o l u n t a r y cooperative system of i n d u s t r y , as a w r i t e r has said, s h o u l d be j e a l o u s l y preserved a n d encouraged, f o r it is nearer the socialist ideal t h a n a semi-corporated state industry. Cooperatives Nearer Socialist Ideal S i m i l a r l y , i n the f i e l d o f r e t a i l t r a d e , the interest of the consumer can be aroused a n d his p a r t i c i p a t i o n i n r e g u l a t i n g the economy f o r the c o m m o n g o o d secured b y organizing a well-knit consumers cooperative m o v e m e n t . T h i s is a f o r m of social c o n t r o l w h i c h m a y be as effective as that under State t r a d i n g in consumer's goods, as several E u r o p e a n countries w h i c h c l a i m t o have i n t r o d u c e d d e m o c r a t i c social i s m have c l a i m e d . I n the f i e l d o f b a n k i n g also, there is a d i s t i n c t place f o r m o b i l i z i n g the savings of the c o m m u n i t y through people's banks over w h i c h , subject to social r e g u l a t i o n , the groups o f p a r t i c i pants concerned, organized functionally or territorially, exercise control. State r e g u l a t i o n o r cont r o l can b e enforced t h r o u g h t h e i r representative federal o r g a n i z a t i o n s . For the a g r i c u l t u r a l sector, the e m i n e n t s u i t a b i l i t y of the cooperative f o r m of o r g a n i z a t i o n has been g e n e r a l l y accepted by the b u l k of public o p i n i o n a n d the planning authorities in our country. Some a m o n g us, however, do not adequa t e l y appreciate the need f o r agrar i a n r e f o r m as the sine qua non of the economic change essential f o r the development of t h i s sector of o u r . e c o n o m y . As a c o r o l l a r y to the f i x a t i o n o f c e i l i n g s o n land h o l d i n g s a n d the r e d i s t r i b u t i o n o f l a n d , encouragement has to be given a n d incentives p r o v i d e d f o r coope- January 25, 1964 rative f a r m i n g . This is already p a r t o f the f i v e - y e a r p l a n s , b u t i t has yet to become a n a t i o n a l effort, as m u c h f o r the social change it spells as f o r the influence it has on increased p r o d u c t i o n a n d p r o d u c t i vity. W h e n we consider the economic i m p l i c a t i o n s of democratic social i s m this l a t t e r . aspect has m u c h .significance. It is argued sometimes t h a t it is o n l y under what is t e r m e d free enterprise in the sense of a f f o r d i n g the freest p l a y for the p r o f i t m o t i v e to operate that an economy w i l l have the best opportunity of expanding. The p r i m a r y objective of the cooperative m e t h o d of o r g a n i z a t i o n is to p r o m o t e s i m u l taneously b e t t e r business, belter methods of p r o d u c t i o n and better living. T h e r e arc m a n y countries spread a l l over the w o r l d where this objective has been b r o a d l y achieved i n c e r t a i n sections. In I n d i a , the success t h a t has attended the estab l i s h m e n t of cooperative sugar factories for the p r o m o t i o n of the economic interests of sugar canegrowers has led the p l a n n i n g author i t i e s to treat such cooperatively o r g a n i z e d factories as the p r i n c i p a l agency f o r e x p a n d i n g sugar product i o n . T h e r e c o r d of achievement of some of these factories in M a h a r a shtra is better than that of factories r u n t h r o u g h j o i n t stock companies. A g a i n i n b r i n g i n g a b o u t a n increase in the p r o d u c t i o n of m i l k and its s u p p l y on efficient lines to u r b a n consumers, cooperative s u p p l y societies a n d t h e i r unions — p a r t i c u l a r l y e x e m p l i f i e d b y the U n i o n a t A n a n d in G u j a r a t — have had an important role to fill. The organization o f the supply o f m i l k t h r o u g h cooperative societies of cattle owners has p r o v i d e d the needed i n centive f o r securing an increase in production. Such instances, for e x a m p l e , in the field of fisheries or o f m i d d l e class housing i n A h m e dabad can be m u l t i p l i e d . In these fields, state ownership or capitalist ownership w i l l scarcely y i e l d results in the shape of increased p r o d u c t i o n t h a t are obtainable t h r o u g h the o p e r a t i o n of the incentive p r o vided by the active w o r k e r s ' p a r t i cipation a n d p a r t n e r s h i p . Diffusion of Authority Decentralization of production or management is, however, not feasible, f o r obvious reasons, i n certain business u n d e r t a k i n g s or f o r some 123 January 2 5 , 1964 THE ECONOMIC WEEKLY THE ECONOMIC January 25, 1964 WEEKLY establishments w h e r e c e n t r a l i s a t i o n is ineluctable. I n one o f h i s l a t e r p u b l i c a t i o n s , e n t i t l e d " T h e case f o r Industrial Partnership", G D H Cole has p r o p o u n d e d v a r i o u s p r o posals f o r i n t r o d u c i n g the democratic process in such e n t e r p r i s e or enterprises owned either b y the State o r b y the p r i v a t e c a p i t a l i s t . In nationalised i n d u s t r i e s , h e observes, the c e n t r a l c o n c e n t r a t i o n of p o w e r i n respect o f actual management of productive operations s h o u l d be k e p t d o w n to a m i n i m u m . As a m a t t e r of d e l i b e r a t e p o l i c y , steps s h o u l d be taken to achieve the greatest p r a c t i c a b l e d i f f u s i o n of responsible a u t h o r i t y i n the m o s t democratic f o r m s that can be reconciled w i t h t e c h n i c a l c o n d i t i o n s . Although there m a y b e central control o f p o l i c y , the m a c h i n e r y has t o b e p r o v i d e d f o r p r e v e n t i n g concentration of managerial authority. I f r e s p o n s i b i l i t y i s vested i n g r o u p s o f w o r k e r s , they w i l l feel a n i m a t e d b y the t e a m s p i r i t , i n d u c i n g t h e m t o m a k e themselves j o i n t l y respons i b l e f o r g e t t i n g the j o b done w e l l . T h e seme of w o r k i n g f o r a c o m m o n purpose can be aroused o n l y w h e n the r e l a t i o n s h i p o f employer and e m p l o y e d gets replaced by t r e a t i n g the w o r k e r s as p a r t n e r s . Reduction of Disparity Essential D u r i n g the discussion on the subj e c t w h i c h ensued at the Conference, Dr V K R V Rao p u t f o r w a r d the v i e w that since d e m o c r a tic s o c i a l i s m was i n t e n d e d to usher in an e g a l i t a r i a n system as d i s t i n g u ished f r o m the present a c q u i s i t i v e society, as a means of a c h i e v i n g that goal there s h o u l d be a c e i l i n g imposed o n incomes f r o m a l l sources c o r r e s p o n d i n g to the c e i l i n g s imposed on the l a n d h o l d i n g s . T h e r e is no such c e i l i n g , a p p a r e n t l y , in all c o m m u n i s t countries n o r i n developed countries. But the disparities are n o t as w i d e as they are w i t h us. M o r e o v e r , sometimes those w h o are opposed to s o c i a l i s m allege that c o m m u n i s m has not e l i m i n a t e d disparities i n i n c o m e a n d w e a l t h . T h e reduction of d i s p a r i t i e s is, however, one of the d e f i n i t e objectives of o u r n a t i o n a l plans a n d , therefore, a move in that direction w o u l d be deemed as an essential feature of progress t o w a r d s a socialist society. W h i l e u r s i n e the imposition of a c e i l i n g , Dr Rao was e q u a l l y insistent on the f i x a t i o n of a floor. T h e r e s h o u l d be, a c c o r d i n g t o h i m , a national m i n i m u m which should be guaranteed to a l l . A d e m a n d f o r such a m i n i m u m m a y b e deemed t o be a measure of social s e c u r i t y such as is accepted as essential in a w e l f a r e State o r under a n y m o d e r n , let alone progressive, G o v e r n m e n t in developed c o u n t r i e s . In a devel o p i n g e c o n o m y , this f o r m o f social s e c u r i t y i s a l l the m o r e c a l l e d f o r , because of the large n u m b e r s — f i v e per cent at least of the p o p u l a t i o n — w h o l i v e on the m a r g i n of subsistence. T h e assurance of livelih o o d , t o w h i c h Professor V a k i l a l l u d e d i n his o p e n i n g r e m a r k s , can be made effective o n l y if a n a t i o n a l m i n i m u m is recognized as an o b l i g a t i o n of the State in a socialist society. Right to Livelihood T h e r e is one aspect of the r i g h t to an adequate means of l i v e l i h o o d as e m b o d i e d in the directives of State p o l i c y w h i c h needs e x a m i n a t i o n . T h e destitute m a y b e d i v i d e d into two groups. The m a i m e d , the p h y s i c a l l y h a n d i c a p p e d , the i n f i r m a n d the aged w h o are u n f i t o r u n able t o w o r k f o r m one g r o u p . T h e i r m a i n t e n a n c e s h o u l d , n a t u r a l l y , be the first concern of the State. B u t , besides, t h e r e are m i l l i o n s w h o are w i l l i n g to do a f u l l day's work whose f a m i l i e s have to r e m a i n in a p e r p e t u a l state of d e s t i t u t i o n because there is no w o r k t h a t can be provided for them. Livelihood should be ensured to t h e m a l o n g w i t h the p r o v i s i o n o f w o r k . T h e c o u n t r y cann o t a f f o r d to d e f r a y the cost of doles or gratuitous r e l i e f t o the mill i o n s now g o i n g w i t h o u t a f u l l day's w o r k or work for days and days together. T h e w o r k s h o u l d be such as is directly or indirectly productive and can p r o v i d e continuous e m p l o y m e n t . It has to be organized a l l over the country for vast n u m b e r s . If it meets the essential, g r o w i n g cons u m p t i o n needs of the c o m m u n i t y , such as is the ease w i t h the m a n u f a c t u r e of k h a d i that is handspun. h a n d w o v e n c l o t h , it exercises an a n t i - i n f l a t i o n a r y influence a n d s h o u l d hence be accorded preference in p l a n n i n g f o r increased e m p l o y m e n t . In the sense in w h i c h such product i o n is organized as a measure of social security, it f o l l o w s t h a t the p r o d u c t i o n s h o u l d be subsidized in a m a n n e r w h i c h w i l l raise the level of earnings f o r the w o r k e r s or offset p a r t i a l l y or w h o l l y the differ- ence in the prices of h a n d m a d e a n d c o r r e s p o n d i n g m a c h i n e m a d e goods. Real Economic Freedom M a n y who are opposed either to s o c i a l i s m or to p l a n n i n g do so on the g r o u n d that it deprives the people of the freedom to organize their economic l i f e . T o this a r g u m e n t , R H T a w n e y gave an effective reply in a p u b l i c a t i o n e n t i t l e d : " W h a t L a b o u r Can D o " . U u d e r the present day c o n d i t i o n s t h i s doctrine constitutes not a c t i o n to extend opp o r t u n i t i e s and to raise i n d i v i d u a l f a c u l t y to the highest possible l e v e l , but the c o n t i n u e d e n j o y m e n t b y individuals and groups of such powers, advantages a n d opportunities as past h i s t o r y and social arrangements m a y happen to have conferred on t h e m . It is not, moreover, easy to specify, as T a w n e y p o i n t e d out, what if any economic freedoms w o u l d disappear as a result of the s u b s t i t u t i o n of a p u b l i c a u t h o r i t y pursuing a deliberate production and investment p o l i c y for a g r o u p of l a r g e p r i v a t e combines or a w e l ter of s m a l l firms. In so f a r as economic f r e e d o m depends on the r e m o v a l of the fear o f u n e m p l o y m e n t , f a i r standards o f remuneration, opportunities of prom o t i o n uninfluenced b y p u l l a n d f a v o u r i t i s m , the a b o l i t i o n of private m o n o p o l y a n d the c o n t r a c t i o n of the area of l i f e where the b a t t l e is to the s t r o n g one w o u l d agree it w o u l d be s u b s t a n t i a l l y increased by the extension of social ownership or control. The democratic socialism we aspire f o r w o u l d ensure such freed o m , p r o v i d e d the social order is so designed as to be democratic in s m a l l t h i n g s and to give the s m a l l groups of w h i c h the great society is made up real o p p o r t u n i t i e s for demo c r a t i c a c t i o n , f o r , otherwise, a State or society cannot, as G D H Cole urged, be effectively democratic in large a f f a i r s , p o l i t i c a l o r economic. T h e conception of socialism at the t i m e of its genesis was that there s h o u l d be self-government in i n d u stry a n d that the status of the workers s h o u l d be changed to that of conscious p a r t n e r s . It is o n l y under such a dispensation that the worker p l i e s a tool not f o r p r i v a t e p r o f i t but for public ends that, according t o J i m Griffiths, h e w i l l have the person a i satisfaction t h a t the meanest 125 THE January 25, 1964 task he attends to hag a social p u r pose. There s h o u l d hence b e f u l l p l a y in any h e a l t h y stable social order f o r the u n f o l d i n g o f the h u m a n p e r s o n a l i t y , the u p h o l d i n g o f h u m a n d i g n i t y a n d the h a r m o n i z i n g of the g o o d o f the i n d i v i d u a l w i t h the good o f the c o m m u n i t y . T h e values t h a t we cherish are happiness, free- d o m , s e c u r i t y a n d the f u l f i l m e n t o f personalities i n h a r m o n y , n o t i n conflict, w i t h one another. T h e objectives o f n a t i o n a l p l a n n i n g m a y b e d e f i n e d m o r e categoric a l l y a n d it is to achieve these t h a t we need d e m o c r a t i c socialism. B u t as the P l a n n i n g C o m m i s s i o n has defined at the v e r y outset of the Third F i v e year P l a n , " t h e basic ECONOMIC WEEKLY objective of India's development m u s t necessarily b e t o p r o v i d e the masses of the I n d i a n p e o p l e the opportunity to lead a g o o d life". T h e r e f o r e , t h a t f o r m o f democratic s o c i a l i s m w i l l b e acceptable w h i c h best subserves t h i s p u r p o s e a n d is most i n consonance w i t h the f u n d a m e n t a l p r i n c i p l e s e n s h r i n e d i n the Constitution of India.
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