1.3.1 Objectives of Agrarian Reforms
Agrarian reforms usually have an entire package of goals.
They are often imprecisely formulated and can only be deduced
by looking at the list of measures. This is because the laws
are passed during unsettled periods in which there is very
little time to formulate them precisely. Sometimes it is also
done on purpose, especially if the government is forced to
introduce the reforms through inner or external pressure.
Imprecise formulating of the goals makes it easier to effect
changes later on and increases, therefore, flexibility. Most
reforms comprise political, social, and economic components.
Classifying them is somewhat arbitrary because there are many
overlappings, even goal conflicts.
The kernel of agrarian reforms are changes in the power structures,
i.e., political events. The goal behind abolishing large scale
land ownership and feudal forms of power and liberating the
small farmers and tenants is to put an end to unrest among
the rural population and integrate it, in many cases, in the
overall society for the first time. Stabilizing the political
system likewise often plays an important role as a goal. Reforms
passed shortly before a revolution maintain the old order,
while reforms carried out after a revolution help legitimize
the new order.
In the social sector, the goal is to reduce inequality in
income, wealth, and chances in life. Since this inherently
means a conflict of interests between those who own property
and those who own nothing, it is as impossible to separate
this target from the political goals as in the case of improving
the status of the rural population and liberating it from
feudal bonds.
The economic goals consist of increasing production and productivity
in agriculture, improving capital formation and transfer,
employing more labourers, and later on discharging them with
progressing development, as well as increasing the demand
for inputs and services that work as incentives towards development
in non-agricultural sectors. An improvement in the balance
of payments by increasing exports or avoiding imports by raising
domestic production is likewise an aspiration. In addition,
mutual promotion of the agricultural and non-agricultural
sectors by increasing coordination between them is a goal
of some agrarian reforms.
In the individual cases, the goals and goal combinations
are determined by the existing situation and are especially
influenced by the conditions at the beginning, by the already
achieved degree of economic development, and the existing
social system. The package of goals has grown continually
more complicated over the years. Whereas in past centuries
more equality was the main goal of most struggles for agrarian
reform, there are many variations today. According to the
particular political ideology, the target will be collectivization
of family farms based on individual property or permanent
rights of use. In these cases the attempt is also made to
attain the advantages of larger units by founding cooperatives.
If the priority is given to making a contribution towards
economic development, the measures may concentrate on an increase
in production and more employment. In the case of an already
achieved higher level of development. and already existing
occupational alternatives, income distribution gains more
significance than the distribution of land. Higher incomes
bring with them a tendency towards larger farm units. The
changing technology that results presents special demands
on the agrarian structure, especially the suitability for
mechanization. Just as agrarian reform is not a one time process,
but rather an adoption to changing requirements and circumstances,
the reform goals shift in type and intensity in the course
of time.
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