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to talk to each other freely and openly. without being censored by authoritarian guardians.

Democracy and Security
Democracy and freedoms of association and participation, thus. have a constructive
role as well as intrinsic importance. In addition. there is a fundamental connection between

democracy and security. The instrumental role of democracy (including elections. multi party
politics. a free media. etc.) in making sure that the government does respond to people's
needs and predicament can be of great practical significance. 11 In analyzing this connection.
we have to consider the political incentives that operate on governments and on the persons
and groups who are in office. The rulers have the incentive to listen to what people want if
they have to face their criticism and seek their support in elections.
It is. thus. not astonishing at all that no substantial amine has ever occurred in any
12
independent country with a democratic form of government and a relatively free press. They
have occurred in ancient kingdoms and contemporary authoritarian societies. in primitive
tribal communities and in modern technocratic dictatorships. in colonial economies run by
imperialists from the North and in newly independent countries of the South run by despotic
national leaders or by intolerant single parties. Despite China's superior economic perfor-
mance over India even before the economic reform, it is China that has experienced a major
famine. during 1958-61 (in which. it is estimated, between 23 and 30 million people died).
whereas no famine has occurred in India since independence. Indeed. famines have never

materialized in any country that is independent. that goes to elections regularly. that has
opposition parties to voice criticisms, and that permits newspapers to report freely and ques-
tion the wisdom of government policies without extensive censorship. Right at this moment.
the two countries that are experiencing severe famines North Korea and Sudan are quintessentially
authoritarian regimes.

Security. Asian Crises and the Voice of the Poor

When things are routinely good and smooth, the protective role of democracy may
not be desperately missed. But it comes into its own when things get fouled up. for one reason
or another. And then the political incentives provided by democratic governance acquire great
practical significance. There may be some important economic as well as political lessons here.
Many economic technocrats recommend the use of economic incentives (which the market
system provides) while ignoring political incentives (which democratic systems could guaran-
tee). But economic incentives, important as they are. are no substitute for political incentives.

and the lacuna of the absence of an adequate system of political incentives cannot be filled by
the operation of economic inducement.

IIThese issues are more fully discussed in my develop-ment as Freedom (1999).
120n this see my "Development : Which Way Now?" Economic Journal. 93 (December 1983). and Resources.
Values and Develop-men! (Cambridge. MA : Harvard University Press. 1984. 1987).