Professional Documents
Culture Documents
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doi:10.1093/hwj/dbt019
Advance Access Publication 21 August 2013
This book is about the informalization of formal-sector jobs in India, that is,
the transfer of jobs out of Indias modern industrial sector into an
employment sector which is almost wholly unregulated. Rohini Hensman
attributes this change to government policies which discriminate in favour of
small-scale production and the informal sector and which encourage the
relocation of factories to areas with weak union presence, rather than to
globalization as such. As she points out, the policy framework which
facilitates informalization, and the consequent shifts in employment
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patterns, both started to develop in the late 1970s and have continued ever
since. Thus informalization of employment in Indian industry predates
globalization, though the process did speed up in the late 1990s. Hence,
primary responsibility for the worsening of employment conditions in
Indian industry, attendant on informalization and casualization of (at least
partially protected) formal-sector jobs, lies with successive Indian governments, rather than with pressures unleashed by the integration of the Indian
economy with global trade and capital flows in the 1990s.
This argument is unexceptionable but also, I believe, inadequate.
Integration of an economy as large as that of India with global commodity
and capital markets necessarily leaves a large amount of discretionary policy
space open to national government. This is especially so when capital
inflows and outflows constitute a very small part of aggregate investment,
and commodity trade a rather minor proportion of domestic output. In
2012, when its Gross Domestic Product (GDP) was approximately $2
trillion, India imported commodities worth $500.3 billion and exported
commodities worth $309.1 billion (Central Intelligence Agency, World
Factbook). The import bill for oil alone stood at about $140 billion in 2011
12. Thus, after more than two decades of globalization, exports accounted
for only about 15% of Indias GDP, while imports constituted less than a
quarter of domestic consumption and investment taken together; value of
imports of goods and services other than petroleum products amounted to
less than a fifth. At 30% of GDP, gross fixed investment constituted about
$600 billion in 2012, but total Foreign Direct Investment into India was only
around $10 billion. Hence international pressures, whether in the form of
import competition, export exigencies or domestic presence of foreign
investors, affect only limited segments of the Indian economy to any
significant extent even now. It follows that what afflicts workers in Indian
industries can hardly be explained without giving the pride of place to policy
stances actively and deliberately chosen by successive governments in India,
when other policy stances were indeed feasible.
Seen in this light, Hensmans central argument is clearly right. Yet it
suffers from two major inadequacies. First, it does not explain why the pace
of informalization and casualization picked up substantially after liberalization of the external sector. Second, it does not explain why successive
governments in India chose to favour the small-scale sector through
discriminatory tax, credit and labour policies, to the detriment of large-scale
organized capital and labour. Without an understanding of the causal
linkages between trade and capital-market deregulation on the one hand,
and greater informalization of formal-sector jobs on the other, trade-union
and progressive strategies for better work conditions are left bereft of a
coherent position on trade issues. Without an understanding of the political
economy of state support for the small-scale sector in India, these actors are
left without a coherent long-term political counter-strategy.
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Given that the Indian state was building capitalism within the
framework of an electoral democracy, this denouement was inevitable.
Socialist rhetoric notwithstanding, the state was essentially engaged in
breeding a broad-based class of industrial capitalists from a mass of
informal bankers, small and medium traders, rich farmers and artisanal
producers. Large business provided election funding and was rewarded
with protection, but it was really the small, indeed tiny capitalists, both
urban and rural, who provided the electoral numbers and social depth
necessary for the survival of the system. Pampering of the small-scale
sector was inevitable under the circumstances.
Such pampering did yield tangible benefits as well. The social base of
entrepreneurial capitalism has expanded rapidly in India over the last three
decades. Upstarts have displaced traditionally dominant family-controlled
big business houses such as the Birlas as the leading players in many key
sectors, others such as the Tatas have been forced to modernize and become
globally competitive. Enlargement of the social basis of entrepreneurial
capitalism and accumulation has brought sections of many formerly
marginalized groups closer to substantive political power, certainly in
Delhi but even more so in many regional capitals. To a large extent, it was
this non-traditional upstart capitalist class which provided, and continues
to provide, the core support base for both internal and external liberalization: they perceive the old command economy, the licence permit raj, as
having been played under rules rigged to favour the traditionally dominant
family-controlled big business houses, with their historical ties to the
Congress Party. Without the hot-house growth of the small-scale sector in
India through the kind of discriminatory tax and regulatory policies that
Hensman excoriates, it is highly unlikely that there would be any politically
salient domestic constituency for trade liberalization, which she extols, in
India today.
The price that has been paid for this broadening of the social basis of
entrepreneurial capitalism is a commensurate restriction of the tax base, and
thus the fiscal muscle, of the Indian state. According to the Central
Intelligence Agencys World Factbook, taxes and other revenues constituted
less than nine per cent of the countrys GDP in 2012, putting India ahead of
only Sudan, Nigeria, Puerto Rico and Burma in this regard. Other measures
yield a slightly higher tax to GDP ratio, but one that is nevertheless pathetic
by global standards.
Whatever the key politico-economic processes that have led to the current
state of employment relations in India, the basic problem remains, as
Hensman correctly points out, that over ninety percent of the workforce
today enjoys practically no protection or regulation of work conditions, and
this proportion is rising as better protected jobs are outsourced,
informalized or casualized. This leads to growth being associated with
worsening income inequality. Worsening inequality increases social tensions
and sporadic low-level conflicts. By restricting the social basis of the
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Seen in this light, it is evident that the interests of the working class in
India today are best served by the attenuation of private-ownership rights
over the disposal of a scarce natural resource, namely land, in favour of
far greater public control. If not outright nationalization of all land, this
implies at least a much more vigorous, intelligent and consistent use of
existing eminent-domain powers of the state to build up high-quality
infrastructure at low cost for a post-agrarian economy. The interests of
the working class are thus naturally contradictory to those of the kulaks
as well as the middle peasantry in the current evolutionary stage of the
Indian economy. The broader universalist demands of the working class
for an effective welfare system, and for a core set of workplace rights
irrespective of ones sectoral location, are both predicated on public
control over land.
It is thus the substantive supersession of private property rights in land in
India, rather than the feel-good, largely symbolic, articulations of proletarian internationalism favoured by Hensman, that holds the political
programmatic key to the advancement of the working class in India over
the next few decades. It is only the organized mainstream left in India today,
in particular the much-reviled Communist Party of India (Marxist) in West
Bengal, that has staked out a consistent position in favour of public control
over land as a necessary condition for industrialization that benefits the
entire working class. Hensmans non-engagement with the issue ultimately
renders her overall analysis, much like the government policies she critiques,
evasive at its core.