Mater et Magistra, 1961
Sections on agriculture
123. First, with regard to agriculture, it would not appear that the rural population as a whole is decreasing, but it is an undeniable fact that many people are moving away from their farms into more thickly populated areas as well as into the cities themselves. When we realize that this movement of population is going on in nearly every part of the world, often on a large scale, we begin to appreciate the complexity of the human problems involved and their difficulty of solution.
124. We know that as an economy develops, the number of people engaged in agriculture decreases, while the percentage employed in industry and the various services rises. Nevertheless, We believe that very often this movement of population from farming to industry has other causes besides those dependent upon economic expansion. Among these there is the desire to escape from confining surroundings which offer little prospect of a more comfortable way of life. There is the lure of novelty and adventure which has taken such a hold on the present generation, the attractive prospect of easy money, of greater freedom and the enjoyment of all the amenities of town and city life. But a contributory cause of this movement away from the country is doubtless the fact that farming has become a depressed occupation. It is inadequate both in productive efficiency and in the standard of living it provides.
125. Nearly every country, therefore, is faced with this fundamental problem: What can be done to reduce the disproportion in productive efficiency between agriculture on the one hand, and industry and services on the other; and to ensure that agricultural living standards approximate as closely as possible those enjoyed by city dwellers who draw their resources either from industry or from the services in which they are engaged? What can be done to persuade agricultural workers that, far from being inferior to other people, they have every opportunity of developing their personality through their work, and can look forward to the future with confidence?
126. It seems to Us opportune to indicate certain directives that can contribute to a solution of this problem: directives which We believe have value whatever may be the historical environment in which one acts--on condition, obviously, that they be applied in the manner and to the degree allowed, suggested, or even demanded by the circumstances.
127. In the first place, considerable thought must be given, especially by public authorities, to the suitable development of essential facilities in country areas--such as roads; transportation; means of communication; drinking water; housing; health services; elementary, technical and professional education; religious and recreational facilities; and the supply of modern installations and furnishings for the farm residence. Such services as these are necessary nowadays if a becoming standard of living is to be maintained. In those country areas where they are lacking, economic and social progress is either prevented or greatly impeded, with the result that nothing can be done to retard the drift of population away from the land, and it even becomes difficult to make a good appraisal of the numbers involved.
128. If a country is to develop economically, it must do so gradually, maintaining an even balance between all sectors of the economy. Agriculture, therefore, must be allowed to make use of the same reforms in the method and type of production and in the conduct of the business side of the venture as are permitted or required in the economic system as a whole. All such reforms should correspond as nearly as possible with those introduced in industry and the various services.
129. In this way, agriculture will absorb a larger amount of industrial goods and require a better system of services. But at the same time it will provide both industry and the services and the country as a whole with the type of products which, in quantity and quality, best meet the needs of the consumer and contribute to the stability of the purchasing power of money--a major consideration in the orderly development of the entire economic system.
130. One advantage which would result from the adoption of this plan would be that it would be easier to keep track of the movement of the working force set free by the progressive modernization of agriculture. Facilities could then be provided for the training of such people for their new kind of work, and they would not be left without economic aid and the mental and spiritual assistance they need to ensure their proper integration in their new social milieu.
131. In addition, a sound agricultural program is needed if public authority is to maintain an evenly balanced progress in the various branches of the economy. This must take into account tax policies, credit, social insurance, prices, the fostering of ancillary industries and the adjustment of the structure of farming as a business enterprise.
132. In a system of taxation based on justice and equity it is fundamental that the burdens be proportioned to the capacity of the people contributing.
133. But the common good also requires the public authorities, in assessing the amount of tax payable, take cognizance of the peculiar difficulties of farmers. They have to wait longer than most people for their returns, and these are exposed to greater hazards. Consequently, farmers find greater difficulty in obtaining the capital necessary to increase returns.
134. For this reason, too, investors are more inclined to put their money in industry rather than agriculture. Farmers are unable to pay high rates of interest. Indeed, they cannot as a rule make the trading profit necessary to furnish capital for the conduct and development of their own business. It is therefore necessary, for reasons of the common good, for public authorities to evolve a special credit policy and to form credit banks which will guarantee such capital to farmers at a moderate rate of interest.
135. In agriculture the existence of two forms of insurance may be necessary: one concerned with agricultural produce, the other with the farm workers and their families. We realize that agricultural workers earn less per capita than workers in industry and the services, but that is no reason why it should be considered socially just and equitable to set up systems of social insurance in which the allowances granted to farm workers and their families are substantially lower than those payable to other classes of workers. Insurance programs that are established for the general public should not differ markedly whatever be the economic sector in which the individuals work or the source of their income.
136. Systems of social insurance and social security can make a most effective contribution to the overall distribution of national income in accordance with the principles of justice and equity. They can therefore be instrumental in reducing imbalances between the different classes of citizens.
137. Given the special nature of agricultural produce, modern economists must devise a suitable means of price protection. Ideally, such price protection should be enforced by the interested parties themselves, though supervision by the public authority cannot be altogether dispensed with.
138. On this subject it must not be forgotten that the price of agricultural produce represents, for the most part, the reward of the farmer's labor rather than a return on invested capital.
139. Hence, in Quadragesimo Anno Pope Pius XI rightly observed that "a proper proportion between different wages is also a matter of importance." He continued: "And intimately connected with this is a proper proportion between the prices charged for the products of the various economic groups, agricultural, industrial, and so forth."
140. While it is true that farm produce is mainly intended for the satisfaction of man's primary needs, and the price should therefore be within the means of all consumers, this cannot be used as an argument for keeping a section of the population--farm workers--in a permanent state of economic and social inferiority, depriving them of the wherewithal for a decent standard of living. This would be diametrically opposed to the common good.
141. Moreover, the time has come to promote in agricultural regions the establishment of those industries and services which are concerned with the preservation, processing and transportation of farm products. Enterprises relating to other sectors of the economy might also be established there. In this case the rural population would have another means of income at their disposal, a means which they could exploit in the social milieu to which they are accustomed.
142. It is not possible to determine a priori what the structure of farm life should be, since rural conditions vary so much from place to place and from country to country throughout the world. But if we hold to a human and Christian concept of man and the family, we are bound to consider as an ideal that form of enterprise which is modeled on the basis of a community of persons working together for the advancement of their mutual interests in accordance with the principles of justice and Christian teaching. We are bound above all to consider as an ideal the kind of farm which is owned and managed by the family. Every effort must be made in the prevailing circumstances to give effective encouragement to farming enterprises of this nature.
143. But if the family farm is not to go bankrupt it must make enough money to keep the family in reasonable comfort. To ensure this, farmers must be given up-to-date instruction on the latest methods of cultivation, and the assistance of experts must be put at their disposal. They should also form a flourishing system of cooperative undertakings, and organize themselves professionally to take an effective part in public life, both on the administrative and the political level.
144. We are convinced that the farming community must take an active part in its own economic advancement, social progress and cultural betterment. Those who live on the land can hardly fail to appreciate the nobility of the work they are called upon to do. They are living in close harmony with Nature--the majestic temple of Creation. Their work has to do with the life of plants and animals, a life that is inexhaustible in its expression, inflexible in its laws, rich in allusions to God the Creator and Provider. They produce food for the support of human life, and the raw materials of industry in ever richer supply.
145. Theirs is a work which carries with it a dignity all its own. It brings into its service many branches of engineering, chemistry and biology, and is itself a cause of the continued practical development of these sciences in view of the repercussions of scientific and technical progress on the business of farming. It is a work which demands a capacity for orientation and adaptation, patient waiting, a sense of responsibility, and a spirit of perseverance and enterprise.
146. It is important also to bear in mind that in agriculture, as in other sectors of production, association is a vital need today especially in the case of family farms. Rural workers should feel a sense of solidarity with one another, and should unite to form co-operatives and professional associations. These are very necessary if farm workers are to benefit from scientific and technical methods of production and protect the prices of their products. They are necessary, too, if they are to attain an equal footing with other professional classes who, in most cases, have joined together in associations. They are necessary, finally, if farm workers are to have their proper voice in political circles and in public administration. The lone voice is not likely to command much of a hearing in times such as ours.
147. In using their various organizations, agricultural workers--as indeed all other classes of workers--must always be guided by moral principles and respect for the civil law. They must try to reconcile their rights and interests with those of other classes of workers, and even subordinate the one to the other if the common good demands it. If they show themselves alive to the common good and contribute to its realizations, they can legitimately demand that their efforts for the improvement of agricultural conditions be seconded and complemented by public authority.
148. We therefore desire here to express Our satisfaction with those sons of Ours the world over who are actively engaged in co operatives, in professional groups and in worker movements intent on raising the economic and social standards of the agricultural community.
149. In the work on the farm the human personality finds every incentive for self-expression, self-development and spiritual growth. It is a work, therefore, which should be thought of as a vocation, a God-given mission, an answer to God's call to actuate His providential, saving plan in history. It should be thought of, finally, as a noble task, undertaken with a view to raising oneself and others to a higher degree of civilization. 150. Among citizens of the same political community there is often a marked degree of economic and social inequality. The main reason for this is the fact that they are living and working in different areas, some of which are more economically developed than others.
Where this situation obtains, justice and equity demand that public authority try to eliminate or reduce such imbalances. It should ensure that the less developed areas receive such essential public services as their circumstances require, in order to bring the standard of living in these areas into line with the national average. Furthermore, a suitable economic and social policy must be devised which will take into account the supply of labor, the drift of population, wages, taxes, credit, and the investing of money, especially in expanding industries. In short, it should be a policy designed to promote useful employment, enterprising initiative, and the exploitation of local resources.
151. But the justification of all government action is the common good. Public authority, therefore, must bear in mind the interests of the state as a whole; which means that it must promote all three areas of production--agriculture, industry and services--simultaneously and evenly. Everything must be done to ensure that citizens of the less developed areas are treated as responsible human beings, and are allowed to play the major role in achieving their own economic, social and cultural advancement.
152. Private enterprise too must contribute to an economic and social balance in the different areas of the same political community. Indeed, in accordance with "the principle of subsidiary function," public authority must encourage and assist private enterprise, entrusting to it, wherever possible, the continuation of economic development.
153. It is not out of place to remark here on a problem which exists in quite a number of countries, namely, a gross disproportion between land and population. In some countries arable land abounds, but there is a scarcity of population; whereas in other countries the position is reversed: the population is large, arable land scarce.
154. Again, some countries use primitive methods of agriculture, with the result that, for all their abundance of natural resources, they are not able to produce enough food to feed their population; whereas other countries, using modern methods of agriculture, produce a surplus of food which has an adverse effect on the economy.
155. It is therefore obvious that the solidarity of the human race and Christian brotherhood demand the elimination as far as possible of these discrepancies. With this object in view, people all over the world must co-operate actively with one another in all sorts of ways, so as to facilitate the movement of goods, capital and men from one country to another. We shall have more to say on this point later on.
156. Here We would like to express Our sincere appreciation of the work which the F.A.0. has undertaken to establish effective collaboration among nations, to promote the modernization of agriculture especially in less developed countries, and to alleviate the suffering of hunger-stricken peoples.