Remembering Cheddi Jagan
Dr. Jagan’s People Centered Approach to Development
by Dr. Frank C. S. Anthony.
(The annual Cheddi Jagan Memorial Lecture was held at Red House on March 23, 2010 and the feature address, which follows, was given by Dr. Frank C. S. Anthony)
Allow me first of all to thank the Cheddi and Janet Jagan Research Center, for bestowing upon me this great honor and privilege to deliver this prestigious lecture to commemorate the life work of Dr. Cheddi Jagan. It is obvious that we cannot cover the intellectual depth, or the diverse range of Dr Cheddi Jagan’s principles, philosophy or political ideas in one lecture.
In fact since the introduction of this annual lecture on the 22nd March, 2000 many close political associates and Caribbean thinkers have been invited to speak on Dr. Jagan’s ideas, its impact on and relevance to our present context. I also will follow this tradition of identifying a key concept from Dr. Jagan political writings and practice, and to evaluate its impact, the merits or demerits for continued application to our present circumstances.
The concept that I will like to scrutinize is Dr. Jagan’s idea of Development. In an address to the Guyana Teachers Union, he made a very profound statement:
“We see development as people–centered. When some speak of development, they see only foreign capital and private investment. We see also social capital and human resources. And when we talk of development, we mean” development with a human face”. For us people come first; they are the centre of everything.”i
This passion for people centered development has been a cardinal principle that Dr. Jagan has practiced while in political office and advocated for when he was out of office.
He recognized early, that the touted developmental theories such as the modernization theory, which implies that the development of Third World countries, can be accomplished if they copy a path taken by the First World was flawed. This theory put into practice did not bring the rapid development anticipated, but instead created greater inequity between First world and Third world countries, and even created greater stratification within the countries themselves.
And while many countries during this period became politically independent, almost all still remained economically dependent on the First World economies. Sir Arthur Lewis around this time was also promoting a developmental model based on “industrialization by invitation” and this too was characterized by failure in the Caribbean region.
What was inherent in all of these theories and models was that developmental successes were to be measured in dollars and cents. People’s welfare, people’s development was miniaturized, marginalized or removed from the developmental agenda.
This ugly concept of neglecting people’s welfare was the prevalent trend in the colonial period, and the brutal systems of slavery and indentureship are shameful examples of how humans degraded and exploited their fellow humans. And even after the abolition of these systems, the conditions under which people lived and labored remain quite atrocious.
The Venn Commission established after the 1948 shootings at Enmore, was able to document the dire living conditions of those times, in their report they stated:
“In quite a number corrugated iron roofs were leaking and the fabric of the buildings was in a general state of decay. In numerous instances temporary sheets of awnings have been fixed over the beds to keep off the rain. They had mud floors and, consequently, with the rain dripping from the roofs, these were made slippery and dangerous; in many cases we found bags laid over the floor to prevent slipping.”ii
The limited education provided in the colony at the time was poor. In the West on Trial, we read that, “Educational facilities were also inadequate. Primary education was free, but schools were understaffed, ill-equipped and overcrowded.” iii In 1946 the levels of illiteracy among Indians was 44.02 percent, and among Amerindians was 49.55 percent.iv Placement at secondary school was for a privileged few, as was stated by the Director of Education, “No grammar school education is or can be provided for 99 percent of the elementary school children.” To paraphrase him, it simply means that 99% of primary school children could not find a place in a secondary school.
It was against this backdrop, this stultifying milieu with its impositions and restrictive opportunities, this inequitable and undemocratic society that Dr. Cheddi Jagan emerged as a dependable voice against these social injustices. He was truly became a transformational leader, a man who was unafraid to stand up for his beliefs, even if he stood alone.
The oppressive colonial system tried but could not break him, it could not bend nor mould him into a colonial clone, instead he was an outlier, righteously angered, and morally outraged, pained by these experiences, it forced him to generalized from a sense of his own dignity, to envision a better world of opportunities and fairness for oppressed peoples everywhere.
His concept of fairness, of liberty, of social justice, stems from a personal conviction of democratic equality - namely socialism. He used this theoretical and scientific framework to analyze the prevailing conditions, and then fashioned solutions to create a more humane, a more equitable society.
He strongly espoused a different belief against a prevailing trend that true development cannot be measured by economic numbers alone, but by improving the well being of all people.
It is this attitude; this mindset that has prevailed in every PPP government, that caused us to consistently invest in the social sectors. That is investing in people. It would be instructive to review successive PPP government’s accomplishments in the social sector, but I will limit my focus on education.
The PPP’s achievements in this area have been pioneering and groundbreaking. Something that is now unrecognized because it is so widely accepted and integrated into our way of life.
That is why, we need to stop, and take a step back to see from whence we came, the arduous road that was traveled, then perhaps we can better appreciate the magnitude, profundity of the educational revolution that Dr. Jagan initiated and instituted.
The records show that rudimentary primary education started in Guiana in 1808v, by Rev. John Wray funded by Dutch planter Hermanus Post (whose grave is behind Grand Coastal Hotel). Over time a number of Christian churches founded their own schools, so by 1876 the then Governor James Longden announced that the system of Compulsory Denominational Education would be introduced from January, 1877vi.
By 27th April, 1953 after the first general election under Universal Adult Suffrage, there were 297 primary schools of which 269 were denominational schools or church schools. This practice of denominational schools was inherently discriminatory since it caters primarily for Christians or those willing to convert to Christianity; it therefore, disenfranchised thousands of persons from other faiths.
This practice promoted assimilation, rather than respect and tolerance of other cultures and religious practices. It sought to undermine the multicultural richness of our society.
This malpractice was recognized by Dr. Jagan who has constantly and consistently advocated changing the system of denominational schools to publicly run schools. In parliament in 1953 he said:
“Certainly I have not changed my position so far as the control of schools is concerned. I have always been a strong advocate of Government control of all schools and not of dual control. I do not agree with the procedure and practice of Government constructing school buildings and then turning them over to the religious denominations to be run"
Dr. Jagan and the PPP started to take practical measures to dismantle this lopsided system. The evidence of how this was done lie in the numbers. In 1953, the 297 primary schools catered for 89,000 children, but there was a huge unmet need. Analyzing why, more children were not attending school it was clear that the discriminatory policies of the denominational schools were one of the main barriers.
The PPP decided to counter this by introducing more government run schools or government aided schools, that is if you are receiving funding from the government then you will have to follow the non discriminatory policies of the government. The effects of this policy were clearly visible by 1964. When 61 new primary schools were added, increasing the amount to 358 primary schools.
But that alone was not the good news, government schools increased from a meager 19 to 133 a jump of (600%), while denominational schools declined from 269 to 221.
But an even more revealing story was the huge jump in primary school enrolment from 89,000 in 1953 to 156,918 in 1964, an increase by 76.3% of students.
That was the impact, 68,000 more persons became educated by the PPP government breaking the church monopoly on the education system by providing a choice in government run schools. This is a clear demonstration of Dr. Cheddi Jagan’s people centered approach, provided the poor and under privileged with the opportunity to get a basic education, regardless of race, social stature or religion.
Despite the obvious glaring impact it would take some time before the system of denominational control was abolished.
If primary education was difficult, secondary education was quite a luxury in British Guiana. To begin with there was scarcity of secondary schools, Dr. Jagan writing in the West on Trial vii pointed out during the period 1961- 1964 “government secondary schools increased from 2 to 10.” Entry in secondary schools was highly restrictive, not only were limited places available, but the cost of tuition was prohibitive. This effectively denied the poor a chance at getting a secondary education. As an immediate but interim solution
“the number of secondary school scholarships increased from 12 in 1952 to more than 200 in 1963 and scholars were given preference in the entry of the best high schools..”
The PPP government recognized that if they were going to remedy this grave inequity, then they will have to provide much more secondary spaces. Building new secondary schools alone, with the limited resources will still not meet the needs of the existing student population.
Dr. Jagan and the PPP came up with a simple, yet brilliant solution that is they will continue to build specialized secondary schools, while at the same time will provide secondary education at primary schools, these schools were then called “all aged schools”, that is these schools catered for students of all ages. The education at these “all age schools” was free of cost.
This simple act, not only helped thousands of children to access free secondary education but also revolutionized the education system in British Guiana.
Having made secondary education at government schools free, another way had to be found on how to place students in secondary schools. This was done by the introduction of countrywide secondary school examinations. In 1964, Dr. Jagan himself remarked,
“this year’s intake into First forms has been the largest to enter school in any one year on the basis of a competitive examination open to all children of the required age. This is in keeping with our belief that education should be democratically organized.”
These strides in the education sectors were really quite outstanding, yet in Dr. Jagan thinking while primary and secondary education was necessary it was not enough. We needed to create a total system of education, from nursery to university.
But as we have seen the pre-existing colonial education system was designed to make primary education difficult, secondary education a luxury then as you can imagine tertiary education was almost an impossibility!
In fact for many years only one Guiana scholarship was available, tenable to an overseas university in 1950s, but by 1963 this was increased to three Guiana Scholarships, with student loan scheme that was funding 132 students at a cost of $200,000 US dollars. By 1964 the sum increased to $289,000 US, to allow for scholarships and to give scholars for the first time adequate funding to pursue six years courses such as medicine. viii
But sending students aboard was an expensive and unsustainable venture, so an alternative solution had to be found. With this in mind as Dr. Harold Drayton ix recalls, “on the 29th September, 1961 the Minister of Education Vernon Nunes set up a working party to consider the feasibility of establishing a local University. It reported on the 30th November that it would be feasible. Cabinet on 6th December, 1961 agreed in principle to the establishment of a University of British Guiana.” This was subsequently taken to parliament in on the 18th 1963, eventually assented to by Governor, Ralph Grey on the 18th April, 1963, paving the way for the inaugural opening of the University of Guyana on the 1st October, 1963.
In anticipation of that opening moment Dr. Drayton writing in the Thunder in an article entitled, The University of Guyana: a People’s University said this “ …that in the West Indies despite the foundation of the UCWI in 1948, higher education was still restricted to the few. For the bulk of Guianese, education had meant until then, primary education or no education at all. It is only now in 1963 with a PPP Government in office that the tracks are being widened for the building of a great new highway which will lead to University education for All the people of Guyana.”
He went on to point out, “the fact that nearly 700 persons applied for admission to the first year’s classes is evidence of our people’s thirst for education, and our people’s desire to avail themselves of opportunities for study which are bound to become greater after independence is won.”
Yet despite the obvious benefits to be derived from this institution there were many obvious detractors, those that call the university, “Jagan night school”, Dr. Jagan himself recalls in an article Revolutionalized Education, the challenges that he experienced, “One recalls the objections raised about the University of Guyana. The PNC leadership did everything to obstruct. The UNESCO experts at first said it would take three years to make a start. I virtually told them they were mad.”
He went on to say, “If we had followed the conventionalist, we would not have started or perhaps would have been in a position to start now. Obviously, one needs a revolutionary approach to the question of education.”x
Indeed, 47 years on, the University of Guyana has already made a substantial contribution, think for a moment of the thousands that have passed through its doors, the many careers launched, the jobs created, the contribution made and the dreams realized, think about the parents, proud of their accomplishments, and about this generation of students looking to the future with confidence all because Dr. Jagan had the vision to create this university.
Where he led, others are now following.
Indeed Dr. Jagan and the PPP’s have transformed the lives of many by providing access to education. He has revolutionized for all times the system of education in Guyana. In his own words he said,
“No one can deny that the whole foundation of the educational system was well laid by the PPP regime….comprehensively it took in all aspects of the question, from kindergarten to university, from denominational “dual” control to Teachers Service Commission and teacher training, from curriculum planning to standardization of school books.”
The reforms of the educational sector from the 50’s to the 60’s were quite revolutionary at the time; it laid the foundation for the transformation of Guyana. It is also a testimony to Dr. Jagan’s approach of improving the welfare of people and putting people at the center of the development agenda. It is a testimony of his humanity.
The concept of development with a human face, has gained resonance, and more developmental advocates have embraced this approach putting people and the center of development. This was further institutionalized by UNDP which since 1990 has fashioned a new measurement for development that is Human Development Index. But while these indices rightfully measure the progress of peoples and their welfare, the dominant ideology of our times contradicts investments in people.
In fact the premise of neo-liberal ideology is to accelerate growth and raise efficiency by reducing the role of government, and correspondingly increasing the role of the private sector, this ultimately should lead to higher growth, better income distribution and a reduction in poverty. The reality is that this model like its previous incarnations has not worked to expectations, and we must not use this as a panacea for salvation.
The evidence that is emerging is that economic inequities have increased in the last quarter of the 20th century, as the gap between rich and poor countries have increased, and within countries there is greater disparity between rich and poor. So it is clear that neo liberal model of markets and globalization while bringing prosperity for a few, has condemned a significant many to persistent poverty. In some cases it has undermined and eroded the progress that many countries made.
We have to guard the gains that people made and resist any attempts to erode them. We have seen when economic health deteriorates the first casualty is the people centered investments.
This was clearly demonstrated by the PNC regime during their reign; their policies had such deleterious consequences on this nation. That the wounds they inflicted which are now healed, have left a permanent scar on our collective psyche, and significantly retarded our country’s development.
Thankfully the PPP under a victorious Dr. Jagan in 1992 has once again restored and increased those people centered investments, in education, in health and other social services.
Upon assuming office in1992, 5% of the budget 34 billion dollars was for education. This year 14% of a 142 billion dollar budget is for education. So you see this people centered approach is not just a catch phrase; it is long standing tradition, born out of necessity to improve people welfare and a conviction that people are at the center of our development agenda.
The people centered approach has become the distinguishing feature for successive PPP governments. It is what sets us apart from our political opponents and it is what will continue to give us that competitive edge in the 21st century world.
We are proud of this Jaganite tradition, where his people centered approach to development has helped to wipe away the tears of despair off the faces of the poor.
Indeed this was the essence of Dr. Jagan, a man driven by a passion, by a quest to help the oppressed, the exploited and the downtrodden, and all his political actions were directed at eliminating this scourge, so that people can live a better life.
Dr. Cheddi Jagan is a national hero, who while alive, had a popular appeal that sets him apart from, and above the ordinary. He has consistently displayed unquestionable loyalty to his country, which he served with undiluted, resolute and unswerving devotion for 54 years. And over those years he molded the political consciousness and the political will of our people to fight for independence and latter for democracy.
In the face of tremendous difficulties he championed the cause of national unity, economic and people centered development. He was the anti-colonial rebel who waged an unrelenting crusade against the worst excesses of British colonialism and western imperialism.
Over the years he did not escape unscathed but experienced the crude vengeance of the Anglo-American alliance. With the remarkable patience of a twentieth century Moses he endured twenty eight years in political wilderness of constitutional opposition, never once doubting the correctness of his cause; all the while convinced that:
"Victory was inevitable, History and Time was on our side."
And he was right!
This is the measure of the man that we remember today, a true leader, a nationalist, regionalist, and internationalist - a humble man who was the quintessence of humanity.
This is the man whose ideas and dreams inspired us to progress. But not all those dreams have been realized, our task of nation building is still a work in progress.
We need all of you, to join with us, to work with us, to stand with us as we come together to bring more development for our people.
i Address to the 109th Annual Delegates Conference of the Guyana teachers Union on the 14th March, 1993.
ii West on Trial page 82.
iii West on Trail page 83
iv Report of the Education Department, 1947.
v 150 Years of Education in Guyana, 1808 – 1957 – Norman E Cameron page 14.
vi The Reaction of the Press to the compulsory denominational education Bill of 1876 – Hazel M. Woolford – December 1991.
vii West on Trial page 200
viii Cheddi Jagan Speech to Graduating Class of 1964 QC.
ix The University of Guyana Genesis and early years – Harold A. Drayton PhD
x Straight Talk, Revolutionalize education – Cheddi Jagan.