Conceptualising Poverty under Capitalism: From John Locke to Sam Brittan Bill Jordan We are at a historical moment when, perhaps especially in Ireland, poverty is no longer a technical issue, but one which asks fundamental questions about the political and economic order. From John Locke to Karl Marx, poverty was analysed as part of an account of how money, property, markets, taxation and even government itself could be justified. Now once again we look for an explanation of poverty – the income shortfalls experienced by the ‘squeezed middle’, mortgage defaulters and debtors, now rubbing shoulders in charity food dispensaries with claimants of unemployment and other state benefits – in the failures of global capitalism and public finance, rather than the technicalities of transfer mechanisms. My claim to be allowed to take a historical approach relies only partly on my knowledge of the literature of early theorists of capitalism and poverty; it also rests on my great-great-grandfather’s role in the Irish uprising of 1848, at the height of the famine. I think he was in correspondence with Karl Marx after his return from transportation to Tasmania – there is certainly a reference to him in a paper in the Karl-Marx-haus in Trier. Anyway, I believe they would have agreed on this much at least, that poverty should be conceptualised in terms of the political economy of capitalist development. Questions about how to define and measure poverty have always seemed to me to be secondary to ones about why some people are so rich and others so poor. In Ireland those questions had been in the public mind as long as landowners and rulers were either English, or else had strong links to the English church and state. But they rather waned after independence was won, partly because until quite recently conspicuous affluence was not entirely socially acceptable. The revelation that the sudden emergence of an Irish plutocracy was based on a mixture of speculation and corruption restores the case for an eighteenth or nineteenth century approach to conceptualising poverty. Before 2008, Ireland seemed to have found a way of plugging the material welfare of its whole population into global capitalist development, through inward investment, European markets and 1 rural prosperity. Now it is clear that this was all based on a bubble in finance and construction, Ireland is in the same position as every other heavily indebted country in the eurozone – trying to find an alternative rationale for those parts of the economy that are not linked with global corporations, and a role for those citizens who lack such connections. From the start of the modern era, political philosophers and political economists have tried to argue that no-one need be excluded from the advantages that arise from money, property and markets, indeed that every member of a society founded on these institutions is necessarily better off than any member of a society which lacks them. Most of them argued that there were iron laws of economics preventing governments from significantly reducing poverty without inflicting all sorts of damage on the economy as a whole. Marx, of course, argued the opposite – that poverty could never be abolished, or even reduced, unless the rich were expropriated, property was abolished, and markets made subservient to social needs. So I shall start with the conceptions of poverty in the works of those early theorists of money, property and markets, and try to show how the issues they addressed have returned today. How can capitalism justify itself to the millions of people now falling into, or back into, poverty, and how can governments justify their continuing commitment to supporting its most egregious expressions of irresponsibility and greed? I shall conclude by giving an example of the recurrence of old issues in new guises in the work of the distinguished Financial Times economic columnist, Samuel Brittan. He has recently proposed that property can be legitimately taxed as a source of revenue to prevent poverty, thus giving rise to a new and morally defensible form of capitalism. But just in case you are dismayed at the prospect of a diversion into intellectual archaeology, let me first quote to you a piece from the last chapter of the last book of Adam Smith’s Wealth of Nations (1776), ‘Of Public Debts’. How’s this for contemporary relevance. ‘The progress of the enormous debts, which at present oppress and will in the long run probably ruin all the great nations of Europe, has been pretty uniform. ... When national debts have once been accumulated to a certain degree, there is scarce, I believe, a single instance of their having been fairly and completely paid. The liberation of the public revenue, if it has been brought about at all, 2 has always been brought about by a bankruptcy, sometimes by an avowed one, but always by a real one, though frequently by a pretended payment’ (Smith,1776, Pt V, ch.3). On a day of muted optimism about the future of the euro after the Greek and French elections, heed the words of Adam! How Can Free and Equal Citizenship be Reconciled with Unequal Property? Questions about the legitimacy of property ownership have a long history in Ireland, of course, but they also underpin the justification of government in England. Just as the English seized the land of Ireland by conquest, so too the Normans seized English land from its Saxon owners in 1066; Norman rule was based on this violent occupation and expropriation of property. When the intellectual and aristocratic elite of England was trying to find a constitutional rationale for the new regime after the overthrow of James II in 1689, one was conveniently at hand in the work of John Locke, who had crossed back to his native land with the Dutch king William, having been living in exile in his court. Locke tackled the question head-on. He argued that all men (sic) were born free and equal, and had equal rights to a share in the earth’s bounty, which God gave them to hold in common. He explicitly described this state of nature as underpinning the ‘ancient constitution’ of Saxon England; although he did not try to justify the Norman conquest, he did aim to show how wealth and power came to be held by the few, while the many remained poor. But he also had to show that in some circumstances revolution to overthrow a tyrant (i.e. James Stuart) was justified, when power was not exercised properly (Locke, 1690, especially Second Treatise, secs 25-57 and 11). Locke thought that people made nature into productive resources by their labour, using natural materials, and that in this way they turned nature into property; but unequal ownership only became justifiable with the invention of money. In a type of argument which anticipated Adam Smith’s Invisible Hand legitimation of markets, he claimed that the hoarding up of money allowed individuals to purchase land and raw materials, and by new technology to increase productivity, 3 without any harm to others. When all the land had been bought up in this way, governments were formed to protect property and make just laws about economic relations. Because the higher productivity enabled by private property allowed higher wages to be paid, and hence higher standards of living to prevail, no one suffered any wrong in these processes, so long as government respected the fundamental liberties of all Englishmen (which James did not). Locke had to present some very convoluted reasoning to show how employment relations did not violate these fundamental liberties, since his definitive ‘free-born Englishman’ was someone working on his own land and producing for subsistence. Unconvincingly, and with lots of tricky footwork, he said that, just as the poor ‘consented’ to the introduction of money when they used it for their convenience (shopping implies the endorsement of markets), so they agreed to their own subservience to the disciplines of employment when they signed a contract with an employer (rather as defeated nations, such as the Irish, signed away their freedom, and could in fact be enslaved, when they surrendered at the end of a war). The situation of destitute people, with no means of support, was even worse. When they threw themselves on the mercy of the Poor Law authorities, they were abandoning all their liberties, so they could be put to do any kind of work or service (e.g. military service) by the authorities (Locke, 1697). This was the original justification for workfare under modern economic conditions; Locke would have heartily endorsed David Cameron and Iain Duncan Smith’s enthusiasm for compulsory unpaid shelf-stacking in Poundland. So the Glorious Revolution in England, which established the basic civil and political rights of which the British Constitution rests, was also the foundation for a commercial society in which very unequal holdings in land, and the beginnings of capitalist production, were also justified. Locke was openly contemptuous about the poor, whom he described as living from hand to mouth, and incapable of political consciousness. In many ways the situation in relation to land holdings in Ireland is much better than in England, because of the redistributions that took place in the last years of British rule. In Ireland, the average holding of land by all home owners is roughly 10 times that in England, where much of the land owned by the aristocracy is not even registered. 4 I shall return to all this when we come to look at Samuel Brittan’s proposal for a tax on land in England. Do the Poor Really Benefit from a Market-Based Economic System? The next question to be addressed by Enlightenment thinkers was what form the most justifiable social order should take. In England, the Glorious Revolution of 1689 had brought an end to absolute monarchy, but it was unclear how a coherent and cohesive society could be sustained by commercial relations. The Scottish Enlightenment philosophers, David Hume and Adam Smith, set themselves the added challenge of starting from the assumption that there were no natural laws to supply blueprints for such a society; it had to be kept running by people’s everyday desires and emotions (the ‘passions’), and not by reason seeking some kind of hidden design feature of the universe. In Hume’s case, his account of what kept things together was substantially in terms of sex, but that is another story. For Adam Smith, complex modern societies were possible because a benevolent Deity had endowed human beings with all sorts of fairly base emotions (greed and admiration for splendour, as well as natural sympathy for others’ sufferings), and the combination of these and the market mechanism meant that a viable social order could become self-sustaining’ even though no one actually intended it. Even the poor could benefit from this order, and any attempt to shift it in their favour would make everyone worse off. Smith gave the first real account of a dynamic capitalist system, indeed a global system, in which development was moving from rural subsistence and commercial production towards urban industrial production, to the advantage of all. His model is today completely recognisable in China and Indonesia, though no longer in Europe, as we shall see. Expansion was fuelled by innovation in methods of production, by investment from a financial sector with international reach, and by a plentiful supply of workers from the countryside, displaced by enclosures, by machinery and by sheer poverty. 5 In his Theory of Moral Sentiments (1759), Smith had already put forward the famous Invisible Hand analysis of the distributive effects of markets, insisting that they shared out the benefits of this dynamic to all, including the beggar sunning himself on a rural bank, in the fairest feasible way. ‘The rich only select from the heap what is most precious and agreeable. They consume little more than the poor, and in spite of their natural selfishness and rapacity, though they mean only their own conveniency, though the sole end which they propose from the labour of the thousands whom they employ, be the satisfaction of their own vain and insatiable desires, they divide with the poor the produce of all their improvements. They are led by an invisible hand...’ (Theory of Moral Sentiments, part 4, ch.1). Smith was trying to give an account of how individual liberties and ‘good government’ could emerge spontaneously from free-market economic development. But his problem was, that on his own very honest account, the institutions of existing wealthy societies, such as Britain, had been established under quite different conditions, and that these institutions included the property of the rich, the criminal justice system and the coercive features of the poor laws. He readily conceded that these were all oppressive and unjust in their operation, and that there was no automatic mechanism to get rid of them in his accounts of either human nature or the laws of capitalist development. What’s more, although Smith advocated generous wages, and considered that rising living standards would increase the number of ‘independent’ citizens who came to own property, get an education, etc., he also thought that any attempt by government to increase the share of national income going to labour, or to protect the poor, would be counter-productive. And he anticipated Malthus and Ricardo in insisting that the growth in the incomes of the poorest people only led to population increase, which would eventually produce famine and disease, and hence a fall in survival rates among children. So Smith was unable to give a convincing account of why the poor would not be exploited and oppressed, by the rich and by the state, even under the specially favourable conditions for capitalist development which he identified. And Ricardo went on to show, In Chapter 31 of his Principles of Political Economy and Taxation (1817), that under other conditions the introduction of machinery in 6 an industry could cause mass unemployment and destitution. This led to the formation of a small group of Ricardian socialists, later referred to approvingly by Marx, to develop an alternative theory of labour, wages and value, in which the goal of economic development was to improve the quality of life of the many. Redistributing Property Meanwhile in America political thought had moved away from the attempt to justify the property holdings of the super-rich aristocracy, for the obvious reason that there was plenty of land to be claimed from ‘nature’ (i.e. the indigenous inhabitants). Jefferson, for instance, thought that independent landowning citizens were the best basis for a political society of freedom and equality. Following the same line of thought, but taking it in a slightly different direction, Tom Paine proposed the following solution to the problem of poverty in his Agrarian Justice (1797): ‘To create a national fund out of which shall be paid to every citizen, when arrived at the age of twenty-one years, the sum of fifteen pound sterling, as compensation in part for the loss of his or her natural inheritance, by the introduction of the system of landed property. And also the sum of ten pounds per annum, during life, to every person now living, of the age of fifty years, and for others as they shall arrive at this age. It is proposed that the payments, as already stated, be made to every person, rich or poor.’ Paine’s proposal implied that landed property represented a form of expropriation of the rightful claims of each citizen to a part of the natural resources of the country, and that taxes should be levied on those who owned those resources to provide this compensation. This idea developed the economic insight first put forward by the Earl of Lauderdale in his Inquiry into the Nature and Origin of Public Wealth (1804) which drew attention to the paradox that natural resources became a source of profit only after they had acquired scarcity value, i.e. other potential users had been excluded, and a price charged. Air is free, but land is costly after it is enclosed, the trees are felled and sold as timber, and the streams diverted to irrigate crops. In this way, private developers (‘improvers’ as they were called in the eighteenth century euphemism) grow rich, but most of the costs are borne by the rest of the population. 7 The idea that poverty stemmed from the fact that the many could not implement their claims to their historic legacy from resources which rightly belonged to all was a more logical conclusion from Locke’s premises than was his own convoluted reasoning about the positive consequences of a commercial society. The poor were properly regarded as the intentionally dispossessed, and poverty was a direct consequence of this dispossession. Either they should be compensated by a revolutionary government which in turn expropriated the rich, or the latter should have their wealth, and especially their land, taxed to supply a fund to pay them a regular income. Indeed, Ricardo justified a land tax. These arguments have always had more purchase in colonial situations such as Ireland’s towards the end of British rule, when indeed substantial land redistribution did occur. Much the same happened in British and French colonies in South-East Asia in the 1950s and ‘60s, though not in Africa. This helps to explain why the countries of South-East Asia embarked on a steep upward curve of development at that time, while those of Africa, even those which started at higher levels of per capita income, did not. But in fact Paine’s proposal was adopted by the State of Alaska (not exactly a hotbed of socialism) in the early 1980s. Since then, the Alaska Permanent Fund has paid each adult resident in the state an annual sum now over $1,200, out of its oil revenues. Mongolia is committed to a similar scheme, to be paid from its recently-discovered mineral wealth; and Namibia has a local version of the fund in one region (Standing, 2009). What these countries have in common is that enormously valuable natural resources are supplying huge profits for minerals companies, while indigenous people live lives of traditional hardship and poverty. So Paine’s and Lauderdale’s conditions apply, and the prominent solution to poverty as a justifiable claim by those excluded from the direct benefits accruing to the exploiters of such resources is adopted. But other countries have used ‘sovereign wealth funds’ from natural resources to prevent poverty, notably Iran, which has recently replaced food subsidies by payments from oil revenues to all its citizens. And Brazil may well be next in line; there a bolsa familia has been successfully trialled in Sao Paulo, and new discoveries of oil are likely to be used in this way. 8 The conceptualising of poverty as dispossession of the many by the rich few again has resonance in the present situation in Europe. Here in Ireland, you might reflect that a tax on land sold for speculative development might have prevented the bubble in construction that led to the financial crash, even if it had not supplied enough revenue to fund a dividend for all. In the UK, of course, chances to create a sovereign wealth fund from oil revenues in the 1980s and ‘90s were squandered, as were those of taxing financial transactions in the past decade. There are sovereign wealth funds in 41 countries worldwide, and it is never too late to start one. Under advanced capitalism, the other obvious source for taxes giving rise to sovereign wealth funds is the super-profits earned by those entrepreneurs whose innovative uses of new technologies allows them to create globally popular products. The obvious recent examples are Microsoft, Google and Facebook. It has been far more profitable for them to prolong the period in which they had control over their innovative creations than to allow other companies immediate access to the opportunity for imitation. This can be seen as an instance of ‘rent-seeking’, a concept used by public choice theorists to describe the actions of anyone who uses a position or resource to earn an extra income that could not be gained in a perfectly competitive situation. The standard examples of rent-seekers are mafia bosses who extort protection money and politicians who use their office to gain corrupt payments for favours. But Lauderdale’s enclosers of the commons and monopolistic entrepreneurs are both also getting such rents, and so it would be justifiable to tax them on these, and redistribute these revenues to the general population. Poverty and Labour The twentieth century saw the rise of labour movements committed to the labour theory of value, and welfare states which operationalised this theory by offering poor people benefits on condition that they performed labour for employers. In this version of political economy, since all value derived from the work done by employees, the state took responsibility for the income shortfalls of those unintentionally excluded from labour markets, or whose earnings did not meet their subsistence needs. Officially recognised poverty was that which occurred despite the best efforts of 9 those willing to labour; other forms of indigence were dealt with by therapeutic or punitive measures. This view was re-enforced by mass unemployment in the Great Depression, and by the rapid growth of European economies after the Second World War, when the share of national income going to wages and salaries rose to around 65 per cent in the UK, and many people made the transition from proletarian to middle-class lifestyles by way of further and higher education. But it has been shaken by the succession of fiscal crises of the state all over the affluent world since the early 1970s, and by the stagnation of earnings levels, first apparent in the USA, since that time. The underlying question has always been whether the Adam Smith model of development, which seemed to have been enhanced and complemented by welfare states, was actually sustainable under conditions of globalisation, when most mass manufacturing had been moved to China and elsewhere in the developing world, and the affluent ones had become largely financial centres and service economies. Even if the labour theory of value were tenable (and economists had by then shown it was not) how could the labour theory of poverty relief continue to apply, when productive labour (in Smith’s terms) was done in those other countries? No real attempt was made to address that question. Instead, much effort was put into trying to rejig the welfare state model to fit it for new global conditions. The dominant solution to emerge was the USA’s, where labour ‘flexibility’ was matched by subsidisation of wages through tax credits, but enforcement of labour obligations through workfare or other ‘activation’ schemes became a prominent part of benefits administration. So just as the material basis for labourist versions of value and income support were collapsing, the ideological justification for state intervention in the field of poverty became more frenetically linked to the enforcement of labour conditions on benefits. The crisis which began in 2008 reveals the futility of this whole project. Even before the crash, activation schemes were fruitless; of the 21 OECD countries, only in Australia and Canada were spells of male unemployment reduced during the boom years 2000-7, and in most they rose substantially (OECD, 2011). In the UK, youth unemployment rose inexorably in the New Labour period. And real wages in almost all these countries had stopped rising, even though profits forged ahead; the gap 10 between the top 3 per cent of incomes and the median widened alarmingly, while the poor fell further behind the middle. The share of national income going to wages and salaries in the UK fell to little over 50 per cent. In other words, the notion that poverty in these societies could be eliminated from capitalist development with rapid growth, leading to rising employment levels and wages, was no longer tenable. After the crash, the stock markets quickly recovered, as real earned incomes continued to fall. The UK had become a rentier economy, where 70 per cent of the profits of the FTSE leading 100 companies were made abroad. Austerity measures, required through sovereign debts incurred in bank bail-outs, simply re-enforced these features. So it is time to re-conceptualise poverty, using an analysis which dispenses with the baggage associated with labourism, and especially the apparatus of state enforcement of the obligation to perform labour for an employer. The only justification for that obligation was that labour was necessary for the creation of value, and that it supplied a reliable route out of poverty. Neither of these claims is now credible. Towards a New Understanding of Poverty The present crisis shows that the theorists whose ideas I have reviewed were right to recognised that the institutions of money, property, markets and the state itself could only be justified if they supplied (in combination) a plausible way of preventing poverty. After all, our Stone Age ancestors, who had none of these institutions, had no concept of poverty either. They saw their lives as rich in meaning and value, as we can tell from the study of the few hunter-gatherer societies which survive today. We have started to talk about the moral defensibility of capitalism again as austerity bites, and we have recognised how the state is hopelessly implicated in its least attractive features in the bail-out of the financial sector. In the UK, we have even glimpsed its involvement in the exploitation and oppression of the poor in the scandal over ‘work experience’ schemes and corruption in the firms 11 which run them. But actually it is not just the present problem of capitalism in affluent societies that is at stake; all the other institutions which sustain it should come under scrutiny. So it is interesting that one of the few original new voices to emerge during the crisis has been Phillip Blond, the brains behind most of David Cameron’s Big Society project. Blond tries to be even handed in his critique between the big state and monopoly capital; but he shines a spotlight on concentrations of property as the source of much that is unacceptable in present-day British society. In arguing for property to be redistributed from the state and big business to individuals and communities, he draws on liberal dissidents from the Lloyd George era, when the labourist welfare state was founded. Hilaire Belloc and G.K. Chesterton, celebrity intellectuals of their day, had been all but forgotten, but it is to them that he has turned for his proposals on property redistribution, as an alternative to the state as enforcer of low-paid or unpaid labour (Blond, 2010). Blond seeks to create a society of small proprietors and entrepreneurs, rather in the tradition of Jefferson or Paine, and he acknowledges Paine’s scheme for abolishing poverty by a universal grant or income stream for every citizen. But the author he quotes in support of this idea is not Paine, but Samuel Brittan, whose work on how to justify capitalism by such a programme has been around since the early 1990s. Brittan has never abandoned this proposal, but recently he has linked it with the idea of a land tax (‘Tax England’s Green and Pleasant Land’, Financial Times, 23 February, 2012), pointing out the respectable line of support for this idea, from Ricardo to Winston Churchill. ‘Gross UK trading profits of non-financial and non-oil corporations are running at over £200bn per year or about 20 per cent of gross domestic product. Some part of this – we do not know how much – is not true profit but the return on land. There is one way that the supply of land can increase. That is when land, previously off limits, is newly released by local authorities for development. This consequent increase in value, say some land tax campaigners, is created by “the community”, which is entitled to a share of the increment. But to argue in this way is to sell the case short. The case for a land tax is valid even for land which was always available for development or which remains in agricultural use’. 12 The piece caused a bit of a stir, and landed interests at once protested that it would be costly to assess any tax due; many large estates are not even registered. But the greatest landowners, including the Queen and Prince Charles, do go to the trouble of claiming their EU subsidies from the Rural Payments Agency, so this should not be too difficult. This is just one example of a new questioning of property ownership rights, which in turn raises issues about the rights and claims of poor people, and the role of government in arbitrating between the rich and the poor. What Brittan proposes is that universal sums should be paid unconditionally to all citizens, partly from a fund accumulated from taxes on land-based wealth. But the case for such payments, as a new compensation for those dispossessed by capitalism, and a new basis for free and equal citizenship under capitalism, is now beginning to be heard in surprising quarters. The Basic Income debate has been live in Ireland for several decades, and I found politicians here better informed about it than their British counterparts when I did some research here more than 10 years ago. It has a fresh urgency and relevance today. If an unconditional state income for all is a necessary condition for social justice in the age of globalisation, then perhaps poverty will at last be recognised as a symptom of the unacceptable face of capitalism, and workfare as the unacceptable face of the state. One final thought. The late eighteenth century was a seminal period for social policy in England and Ireland, as well as the cradle of capitalist industrialisation and democracy. From 1770 to 1830, real wages stagnated, and the share of national income going to capital grew rapidly. The households of workers were kept from starvation only by growing supplementation of wages out of the poor rates – schemes like the Roundsman and Speenhamland systems in England were the equivalent of welfare-to-work, and parish wage subsidies equivalents of Working Tax Credits. 13 In the UK under New Labour’s last few years, almost 9 out of 10 families with children received Tax Credits, probably the same proportion as those receiving poor law payments in that period, and again at a moment when real wages are stagnant or falling, and the share of capital in national income growing fast. It seems that at such moments, capital and capitalist regimes prefer to subsidise earnings through the state, rather than raise wages. This institutionalises poverty, and creates a huge class of official paupers. It may seem generous in times of boom, but it quickly turns nasty at times of bust, as austerity measures lead to cuts in earnings supplements. Eventually, if the advantages of investment in new technology are to be enjoyed by the many, all this has to change. In the twentieth century, labour’s share of national income increased through collective negotiating power and social insurance. But the twenty-first century cannot be a ‘Century of Labour’ for the developed nations by those same political processes (Standing, 2009). We need a new institutional settlement to reverse this era of impoverishment, and the political movements to achieve it are more likely to look like Los Indignados or the German Pirate Party than like Social Democrats. References Blond, P. (2010), Red Tory: How the Left and the Right Broke Britain and How We Can Fix It, London: Faber and Faber. Britain, S. (2012), ‘Tax England’s Green and Pleasant Land’, Financial Times, 23 February. Lauderdale, Earl of (1804) An Inquiry into the Nature and Origin of Public Wealth, Edinburgh: Tate. Locke, J. (1690), Two Treatises of Government, ed. P. Laslett, Cambridge: Cambridge University Press (1967). Locke, J. (1697), ‘Memorandum to his Fellow Commissioners of the Board of Trade, in The Works of John Locke in Four Volumes, ed. W. Strachan et al., Edinburgh: Tate. OECD (2011), Labour Market Statistics, Paris: OECD. Paine, T. (1797), Agrarian Justice, Edinburgh: Bell. 14 Ricardo, D. (1817), Principles of Political Economy and Taxation, London: Dent (1917). Smith, A. (1759), The Theory of Moral Sentiments, in H.W. Schneider (ed.), Adam Smith’s Moral and Political Philosophy, London: Harper (1948). Smith, A. (1776), An Inquiry into the Nature and Causes of the Wealth of Nations, ed. R.H. Campbell and A.S. Skinner, Oxford: Clarendon Press (1976). Standing, G. (2009), Work after Globalisation, Cheltenham: Edward Elgar. 15