One of the defining features of democracy is the recognition that all
human beings are equal as citizens of the state, just as the basis of
feudalism is the perception that the feudal lord is inherently superior
to the serf. In a democratic system the fundamental equality of all citizens
is guaranteed in the constitution and the practice of law. By contrast,
in feudalism the superiority of the feudal lord and the subordination
of the serf are built into the structure of the localized state where
law and authority are both embodied in the person of the feudal lord.
Consequently, any opposition to the feudal is a threat to the basis of
feudal power and must be demolished in a way that demonstrates the arbitrary
authority of the feudal. Since feudal power is embodied in the individual,
its exercise against the opponent has a personalized dimension of humiliation
and terror. Examples of this abound in Pakistan. Two recent cases are
illustrative: In the political sphere there is the case of Mr. Najam Sethi
during the Nawaz Sharif government, when he was physically beaten, dragged
from his home and incarcerated because he dared to speak against the policies
of the government. In the social sphere the horrendous case of Mukhtaran
Bibi in Muzzaffargarh where she was publicly gang raped, is another painful
example of the same phenomenon.
One of the fundamental obstacles to building a democratic state in Pakistan
is the persistence of feudal economic and political power at the local
level, and indeed in the very political culture within which both state
and society function. As Pakistan’s experience during the 1990s
has shown, the major manifestation of this phenomenon is: Use of the state
apparatus by whichever government is in power to bring the opposition
under its heel. Conversely the opposition attempts to bring an elected
government down by whatever means necessary even if it means involving
the army. During Pakistan’s brief interludes of democracy between
various periods of military rule, the elected government and opposition
tended to get locked into a visceral vendetta, where the existence of
one became intolerable for the other. The conduct of those in authority
has been as if they were above the law. At a social level there is a perception
that the status of the individual is determined by the extent to which
he/she can operate above the law. Power in its feudal form therefore means
being able to transcend legal authority.
The persistence of such features in the political culture and the functioning
of the state tend to erode the internal balance between various institutions
of the state on the one hand and between state and society on the other.
Consequently, there is a danger that an increasing number of common citizens
in society begin to lose confidence in both the viability of laws and
the ability of executive authority to implement them. Overtime there is
then a tendency of individuals to organize themselves into armed groups,
mobilized on the basis of various sub-national identities (whether ethnic,
linguistic or regional) which are psychologically proximate to the individual
and which can generate an intense emotional charge. Such tendencies were
immensely exacerbated during the Zia regime which cultivated sectarian
groups as a matter of state policy. The emergence of such groups equipped
with weapons, and the apparatus of social control within their domains,
tend to progressively fragment the nation and undermine the authority
of the state. Such a process if allowed to continue, can lead to a situation
where both the nation and the state may begin to disintegrate.
At an economic level the existence of a powerful landed elite is indicated
by the fact that 30 percent of total farm area is owned by landowners
with ownership holdings above 150 acres, and yet they constitute less
than one percent of the total number of landowners. Elements of this landed
elite dominate the major political parties, local governments, institutions
and markets for credit and agriculture input distribution.
When the ‘Green Revolution’ technology became available
in the late 1960s it became possible to substantially accelerate agriculture
growth through an elite farmer strategy which concentrated the new inputs
on large farms. Now the crucial determinant in yield differences became
not the labour input per acre in which small family farms had been at
an advantage in earlier decades, but the application of the seed-water-fertilizer
package to which the large landlords with their greater financial power
had superior access. Thus the ‘Green Revolution’ had made
it possible to accelerate agricultural growth without having to bring
about any real change in the rural power structure. Today, after almost
four decades of the elite farmer strategy, the imperative of land reform
is re-emerging, albeit in a more complex form than before. As the large
farms approach the maximum yield per acre with the available technology,
further growth in agricultural output increasingly depends on raising
the yield per acre of small farms and reversing the trend of land degradation
brought about by improper agricultural practices.
The small-farm sector whose yield potential remains to be fully utilized,
constitutes a substantial part of the agrarian economy. Farms below 25
acres constitute over 80 percent of the total number of farms and over
50 percent of the total farm area. From the viewpoint of raising the yield
per acre of small farms (i.e. farms of less than 25 acres) the critical
consideration is that almost 50 percent of the total farm area in the
small farm sector is tenant operated. Since tenants lose half of any increase
in output to the landlord, they lack the incentive to invest in technology
which could raise yield per acre. Because of their weak financial and
social position they also lack the ability to make such investments. Their
ability to invest is further eroded by a nexus of social and economic
dependence on the landlord which deprives the tenant of much of his investible
surplus.
This problem is further exacerbated by the absence of an efficient land
market where productive land can move to the more efficient operator.
Flexible and secure tenancy contracts, and a competitive land market which
can allow efficient operation of farm land, can only emerge if the extra
economic power currently enjoyed by the feudal elite is constrained. Thus
the objective of raising yields in the small farm sector is inseparable
from removing the institutional constraints to growth arising out of tenancy
within feudal power. A land reforms program that gives land to the tiller
is therefore an essential first step in providing the small farmers with
both the incentive and the ability to raise their yields/acre.
Thus the imperative of land reform today arises not only from the need
to accelerate agricultural growth and alleviate rural poverty, but also
from the need to build a sustainable democracy. A society based on tolerance,
merit and the supremacy of law would require overcoming feudal forms in
the conditions of production, in society, and in the very functioning
of the State.
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