African Socialism and its

Application to Planning
in Kenya
 STATEMENT BY THE PRESIDENT
Since attainment of our Independence just over eighteen
months ago, the Government has been deciding the measures
that will ensure rapid economic development and social progress
for all our citizens. Apart from the Budget statement last year,
the Government produced a Development Plan covering the
years 1964-70. This Plan was prepared at very short notice and
was intended to be flexible to enable Government to adjust any
of its provisions on the basis of experience and new ideas.
Already much has been accomplished in the short space of time
since Independence, but a lot remains to be done if we are to
achieve our declared goals. In a recent statement the Minister
for Finance has promised the country a balanced Budget in 1965
and also stated that for the first time since 1952 Kenya will meet
all her recurrent expenditure from her own resources. It is also
good to note that our foreign exchange and balance of payments
positions have shown considerable improvements since Indepen-
dence. There have been numerous delegations and inquiries
about investment in Kenya in addition to the actual investments
that have taken place. We have gone out to find new markets
and new areas of technical and trade co-operation in the world.
From the recently published Economic Quarterly Report it will
be seen that our own small farmers increased the value of their
gross marketed produce from £11.6 million in 1963 to £14 million
in 1964, or an increase of nearly 21 per cent. In education, while
we await the final report of the Education Commission, primary
school enrolment has been increased from 891,553 in 1963 to
1,028,000 in 1965, and secondary school education is being
vigorously expanded. In economic terms eighteen months is a
short period in which to attain decisive accomplishments, but it
is obvious that everything points to rapid progress.
All along the Government has been guided in its approach
to developmental matters by the declarations contained in the
KANU Manifesto. In this we declared that our country would
develop on the basis of the concepts and philosophy of Demo-
cratic African Socialism. We rejected both Western Capitalism
and Eastern Communism and chose for ourselves a policy of
positive non-alignment.
 Our entire approach has been dominated by a desire to
ensure Africanization of the economy and the public service.
Our task remains to try and achieve these two goals without
doing harm to the economy itself and within the declared aims
of our society.
The Government has produced this Sessional Paper which
discusses in detail both the theory of Democratic African
Socialism and its practical application to planning in Kenya.
There has been much debate on this subject and the Govern-
ment's aim is to show very clearly our policies and also explain
our programme. This should bring to an end all the conflicting,
theoretical and academic arguments that have been going on.
The Minister for Economic Planning and Development and
his Cabinet colleagues will help explain and interpret this paper
to Parliament and to the public so as to ensure that it is fully
understood. I thank him and his colleagues for the time and
effort they have devoted to the preparation of this paper, which
has received the unanimous support of my Cabinet.
To the nation I have but one message. When all is said and
done we must settle down to the job of building the Kenya
nation. To do this we need political stability and an atmosphere
of confidence and faith at home. We cannot establish these if we
continue with debates on theories and doubts about the aims of
our society. Let this paper be used from now as the unifying
voice of our people and let us all settle down to build our nation.
Let all the people of our country roll up their sleeves in a spirit
of self-help to create the true fruits of UHURU. THIS IS
WHAT WE MEAN BY HARAMBEE.
 TABLE OF CONTENTS
INTRODUCTION 1
Objectives of Societies 1
PART I: AFRICAN SOCIALISM 2
The Independence of African Socialism 2
African traditions 3
Adaptability 5
Relationships with other countries 8
The Operating Characteristics of African Socialism 9
Use of resources 9
Control of resource use 11
Class problem 12
Summary 16
PART II: APPLICATION OF AFRICAN SOCIALISM TO PLANNING
IN KENYA 18
Resource Limitations 18
Domestic capital 19
Skilled manpower 20
Foreign exchange 22
Proper use of domestic resources 24
Critical Issues and Choices 25
Nationalization 26
Africanization, asset transfers and citizenship 27
Welfare services and economic development 30
Stimulating and retaining domestic saving 32
Tax structure 33
Self-help and community development 36
Agriculture and land tenure 36
Conservation of natural resources 39
Education, training and experience 39
Public utilities 41
Industry, commerce and tourism 42
Trade unions 44
Consumers 45
Provincial balance and social inertia 46
Strategy for Development 48
Planning and Control 49
Policy Considerations 50
AFRICAN SOCIALISM AND ITS APPLICATION
TO PLANNING IN KENYA
INTRODUCTION
With independence, Kenya intends to mobilize its resources
to attain a rapid rate of economic growth for the benefit of its
people. Under colonialism the people of Kenya had no voice in
government; the nation's natural resources were organized and
developed mainly for the benefit of non-Africans; and the
nation's human resources remained largely uneducated, un-
trained, inexperienced and unbenefited by the growth of the
economy.
2. Kenya is in a period of multiple transition set in motion
by the attainment of Independence. We are in transition from
a subsistence to a monetary economy, from an economic depen-
dence on agriculture to a more balanced growth, from a develop-
ment of natural resources for others to a development of human
and natural resources for the benefit of the people of Kenya.
The progress wanted cannot be easily won and it cannot be
achieved by reverting to pre-colonial conditions. The best of
Kenya's African social heritage and colonial economic legacy
must be reorganized and mobilized for a concerted, carefully
planned attack on poverty, disease and the lack of education
in order to achieve social justice, human dignity and economic
welfare for all.
3. The major economic mobilization and reorganization of
resources that these transitions imply cannot be realized without
planning, direction, control and co-operation. But planning and
direction imply objectives and mechanisms. We are bound to
ask ourselves where we are going and how we will get there.
It is in answering these questions that this paper has been pre-
pared.
Objectives of Societies
4. The ultimate objectives of all societies are remarkably
similar and have a universal character suggesting that present
conflicts need not be enduring. These objectives typically
include—
(i) political equality;
(ii) social justice;
 2

(iii) human dignity including freedom of conscience;

(iv) freedom from want, disease, and exploitations;
(v) equal opportunities; and
(vi) high and growing per capita incomes, equitably distri-
buted.
Different societies attach different weights and priorities to these
objectives, but it is largely in the political and economic means
adopted for achieving these ends that societies differ. These
differences in means are, however, of paramount importance
because ultimate objectives are never fully attained. Every time
one target is attained a new one becomes necessary. Indeed, we
forever live in transition.
5. Kenya is already committed to these same objectives,
and now must choose and put into working order the system or
set of mechanisms that will advance the country as quickly as
possible toward these goals, meeting at the same time the im-
mediate and pressing needs of the country and its people.
This paper is written in two parts. The first part is defini-
tive—it seeks to clarify the meaning of African Socialism. The
second part examines practical measures and steps to implement
African Socialism within Kenya's Development Plan.

PART I—AFRICAN SOCIALISM

6. The system adopted in Kenya is African Socialism, but
the characteristics of the system and the economic mechanisms
it implies have never been spelled out fully in an agreed form.
The Independence of African Socialism
7. In the phrase "African Socialism", the word "African"
is not introduced to describe a continent to which a foreign
ideology is to be transplanted. It is meant to convey the African
roots of a system that is itself African in its characteristics.
African Socialism is a term describing an African political and
economic system that is positively African not being imported
from any country or being a blueprint of any foreign ideology
 3

but capable of incorporating useful and compatible techniques

from whatever source. The principal conditions the system must
satisfy are—
(i) it must draw on the best of African traditions;
(ii) it must be adaptable to new and rapidly changing cir-
cumstances; and
(iii) it must not rest for its success on a satellite relationship
with any other country or group of countries.
AFRICAN TRADITIONS
8. There are two African traditions which form an essen-
tial basis for African Socialism—political democracy and mutual
social responsibility. Political democracy implies that each mem-
ber of society is equal in his political rights and that no indivi-
dual or group will be permitted to exert undue influence on the
policies of the State. The State, therefore, can never become the
tool of special interests, catering to the desires of a minority at
the expense of the needs of the majority. The State will represent
all of the people and will do so impartially and without prejudice.
9. Political democracy in the African traditional sense
provided a genuine hedge against the exercise of dispropor-
tionate political power by economic power groups. In African
society a man was born politically free and equal and his
voice and counsel were heard and respected regardless of the
economic wealth he possessed. Even where traditional leaders
appeared to have greater wealth and hold disproportionate poli-
tical influence over their tribal or clan community, there were
traditional checks and balances including sanctions against any
possible abuse of such power. In fact traditional leaders were
regarded as trustees whose influence was circumscribed both in
customary law and religion. In the traditional African society,
an individual needed only to be a mature member of it to par-
ticipate fully and equally in political affairs. Political rights did
not derive from or relate to economic wealth or status. When
this is translated into our modern state if means that to partici-
pate in political matters and party activities as an equal, the
individual must prove nothing beyond age and citizenship and
need take no oath beyond allegiance to country.
 4
10. Political democracy in the African tradition would not,
therefore, countenance a party of the elite, stern tests or dis-
criminatory criteria for party membership, degrees of party mem-
bership, or first and second class citizens. In African Socialism
every member of society is important and equal; every mature
citizen can belong to the party without restriction or discrimina-
tion; and the party will entertain and accommodate different
points of view. African Socialism rests on full, equal and un-
fettered democracy. Thus African Socialism differs politically
from communism because it ensures every mature citizen equal
political rights and from capitalism because it prevents the
exercise of disproportionate political influence by economic
power groups. Another fundamental force in African traditional
life was religion which provided a strict moral code for the
community. This will be a prominent feature of African
Socialism.

11. Mutual social responsibility is an extension of the

African family spirit to the nation as a whole, with the hope
that ultimately the same spirit can be extended to ever larger
areas. It implies a mutual responsibility by society and its
members to do their very best for each other with the full
knowledge and understanding that if society prospers its mem-
bers will share in that prosperity and that society cannot prosper
without the full co-operation of its members. The State has an
obligation to ensure equal opportunities to all its citizens, elimi-
nate exploitation and discrimination, and provide needed social
services such as education, medical care and social security.

12. To ensure success in the endeavours of the Government,

all citizens must contribute, to the degree they are able, to the
rapid development of the economy and society. Every member
of African traditional society had a duty to work. This duty
was acknowledged and willingly accepted by members because
the mechanism for sharing society's benefits, the reciprocal
response of society to the individual's contribution, was definite,
automatic and universally recognized. But the response of
society was not simply a passive one. African society had the
power and duty to impose sanctions on those who refused to
contribute their fair share of hard work to the common
endeavour.
 5
13. Drawing on this background African Socialism expects
the members of the modern State to contribute willingly and
without stint to the development of the nation. Society in turn,
will reward these efforts and at the same time will take measures
against those who refuse to participate in the nation's efforts to
grow. Sending needed capital abroad, allowing land to lie idle
and undeveloped, misusing the nation's limited resources, and
conspicuous consumption when the nation needs savings are |
examples of anti-social behaviour that African Socialism will not
countenance.
14. While the modern economy is more complex than
traditional society, the principle remains that to be successful,
society and its members must each acknowledge fully and
willingly its responsibility to the other. But the movement to-
wards a modern, monetary economy changes the nature of these
responsibilities and the mechanisms by which a member contri-
butes to society and society shares benefits among its members.
The people must be continually and carefully informed of what
society expects of them and how these efforts will promote the
welfare of all.

ADAPTABILITY
15. African Socialism must be flexible because the problems
it will confront and the incomes and desires of the people will
change over time, often quickly and substantially. A rigid,
doctorinaire system will have little chance for survival. The
system must—
(i) make progress toward ultimate objectives; and
(ii) solve more immediate problems with efficiency.
16. No matter how pressing immediate problems may be,
progress toward ultimate objectives will be the major considera-
tion. In particular, political equality, social justice and human
dignity will not be sacrificed to achieve more material ends
more quickly. Nor will these objectives be compromised today
in the faint hope that by so doing they can be reinstated more
fully in some unknown and far distant future.
 6
17. Given the paramount importance of ultimate objectives,
African Socialism must also confront and solve efficiently many
immediate problems whose nature will change over time. In
Kenya today, the pressing problems include the rapid develop-
ment of agricultural land; laying a basis for accelerated growth
of industry; attracting capital, domestically and from abroad
while ensuring that it is used in a socially desirable way; modi-
fying the tax structure in the interests of equity and larger
revenues; guarding foreign exchange reserves; providing for a
fuller participation by Africans in an expanding economy;
relieving unemployment; removing idleness; reconciling pressures
for expanding welfare schemes with the need to grow rapidly;
and conserving our natural resources of land, water and forests.
As some of these problems are solved or alleviated others will
rise to take their place and the circumstances in which solutions
must be found will also have altered. African Socialism must
be prepared to cope with a vast range of problems, some of
which cannot even be visualized in the present. A rigid system,
however appropriate to present circumstances, will quickly
become obsolete.
18. Indeed, we can learn much from history in this regard—
both from the history of thought and from the history of
practice. In particular ideologies and the theoretical systems on
which they are based are rigid and uncompromising while the
development over time of all viable practical systems has been
marked by adaptability to change, frequently of substantial pro-
portions. Marxian socialism and laissez-faire capitalism are both
theoretical economic organizations designed to ensure the use
of resources for the benefit of society. Both settled on the
ownership of property as the critical factor in economic orga-
nization and advocated rigid systems based in the one case on
State ownership and in the other on private ownership. But
ownership is not an absolute, indivisible right subject only to
complete control or none. Practical systems have demonstrated
that the resources of society are best guided into proper uses
by a range of sensitive controls each specifically designed for
the task to be performed.
19. Marx' criticism of the society of his time and place was
a valid one. Political equality and democracy did not exist in
Europe and Great Britain before the middle of the nineteenth
century when Marx was writing. The enclosure movement and
 7
the industrial revolution had created a landless proletariat that
was ruthlessly exploited by those with economic power who had
much the same absolute rights as those of the feudal lords.
Sharp class distinctions had been commonplace for centuries;
the close association of political and economic power was
traditional; and the general welfare was identified with the
welfare of the few. The Industrial Revolution brought out the
worst elements of the situation—hours of work were dawn to
dusk; few safety precautions existed; there was no job security
or protection against injuries, illness and old age; children
started work as early as the age of four; and no established
avenues of political appeal existed. The situation was one of
government by the few, sharp class distinctions, unfettered
property rights, subsistence living standards for the masses, and
exploitation of a large and growing proletariat.
20. Valid as Marx' description was, it bears little similarity
to Kenya today. Under colonialism Kenyans did not have
political equality or equal economic opportunities, and their
property rights were not always respected. Even so, African
traditions have no parallel to the European feudal society, its
class distinctions, its unrestricted property rights, and its accept-
ance of exploitation. The historical setting that inspired Marx
has no counterpart in independent Kenya.
21. As predictive models of what would happen to factory
system societies, both Marxian socialism and laissez-faire capi-
talism have been failures. The economic systems in actual use
throughout the world today bear little resemblance to either
model. The Industrial Revolution quickly led to the social protest
of which Marx was a part and this in turn resulted in sweeping
political and economic changes as the systems of the world
adapted to the new state of technological change. Political demo-
cracy was achieved; private property rights were diluted; the
State accepted increasing responsibilities for social services, plan-
ning, guidance and control; taxes were made progressive to
distribute benefits more widely. Capitalism did not evolve into
Marxian socialism, as Marx predicted, but was indeed modified
in directions that Marx might well have approved.
22. The adaptability of these systems has a parallel in those
countries that have attempted to follow Marx. To become
effective, these systems, too, have had to demonstrate an ability
to adapt to changing circumstances. They have adopted wage
 8
differentials arid management incentives, permitted various forms
of ownership, and utilized interest rates or the equivalent in their
planning procedures. All practical economic systems, regardless
of their origin have demonstrated adaptability. The problems of
today are not the problems of a century ago. African Socialism
is designed to be a working system in a modern setting, fully
prepared to adapt itself to changing circumstances and new
problems.
RELATIONSHIPS WITH OTHER COUNTRIES
23. The third conditioning factor is the need to avoid
making development in Kenya dependent on a satellite relation-
ship with any country or group of countries. Such a relationship
is abhorrent and a violation of the political and economic
independence so close to the hearts of the people. Economic
non-alignment does not mean a policy of isolation, any more
than political non-alignment implies a refusal to participate in
world affairs. On the contrary it means a willingness and a
desire—
(i) to borrow technological knowledge and proven economic
methods from any country—without commitment;
(ii) to seek and accept technical and financial assistance
from any source—without strings; and
(iii) to participate fully in world trade—without political
domination.
24. The ability of Africa to borrow advanced technological
knowledge, modern methods of industrial organization and
economic techniques of control and guidance from more
advanced countries provides the opportunity to leap over many
of the hurdles that have restrained development in these modern
societies in the past. It means also that African Socialism as a
system can profit from the mistakes of others. Unlike many
countries that have eliminated many successful economic
mechanisms on narrow ideological grounds, Kenya is free to
pick and choose those methods that have been proven in practice
and are adaptable to Kenya conditions regardless of the ideolo-
gies that others may attach to them. Kenya, therefore, is free
to choose among other things—
(i) a wages and incomes policy that recognizes the need for
differential incentives as well as an equitable distribu-
tion of income;
 9

(ii) techniques of production that combine efficiencies of

scale with diffused ownership;
(iii) various forms of ownership—State, co-operative, cor-
porate and individual—that are efficient for different
sectors or that compete with each other provided only
that the form promotes the objectives of Government;
and
(iv) techniques of control that vary with the needs of society
and its members.
25. Similarly, the fact that other countries are more
advanced is not a matter of jealousy but of opportunity. Kenya's
ability to borrow funds and trained personnel from other coun-
tries means that development here need not be limited quite so
severely by the shortage of domestic savings and education.
Growth can proceed while these domestic limitations are over-
come. On the other hand, aid from abroad will not be welcomed
if it is designed to promote the economic or political dominance
of the aiding country. For this reason, Kenya would welcome
any scheme that channelled more aid through world bodies, such
as the International Bank for Reconstruction and Development
and the United Nations, and provided for such aid to be distri-
buted on the basis of the per capita incomes and domestic
efforts of the receiving countries.
26. Finally, modern methods of production, distribution,
transportation and communication mean that no country can
progress rapidly in isolation. Means for promoting trade, ensur-
ing fair and stable prices for primary products, and reducing
market barriers must be sought and supported. Kenya places
no ideological barriers on trade and expects that trade relations
should be conducted in general on the basis of economic con-
siderations.
The Operating Characteristics of African Socialism
U S E OF RESOURCES
27. To be consistent with the conditions specified, African
Socialism must be politically democratic, socially responsible,
adaptable and independent. The system itself is based on the
further idea that the nation's productive assets must be used in
the interest of society and its members.
 10

28. There is some conflict of opinion with regard to the

traditional attitude towards rights to land. Some allege that land
was essentially communally or tribally owned; others claim that
individual rights were the distinguishing feature; still others
suggest that ownership did not really exist in any modern con-
text in many African tribes. Undoubtedly these traditions
differed substantially from one tribe to another. In every case,
however, and in sharp contrast to the European tradition, owner-
ship was not an absolute indivisible bundle of rights. The ulti-
mate right of disposal outside the tribe was essentially tribal
and in this land was tribally owned. It must be remembered,
however, that the political arrangements within the tribe were
such that every mature member of the tribe would have a say
in such a decision. Short of this right, others were assigned or
allocated to clans, families and individuals, including the right to
transfer and reclaim property within the clan. Rights to use land
were, in effect, assigned in perpetuity to various groups within
the tribe, subject always, however, and this is significant to an
understanding of African Socialism, to the condition that
resources must be properly used and their benefits appropriately
distributed, not merely held idle, abused or misused, or the
benefits hoarded. The rights normally associated in Europe with
ownership as such scarcely mattered.
29. What does emerge with clarity and force and as a
single, unifying principle from these discussions of traditional
property rights is that land and other productive assets, no matter
who owned or managed them, were expected to be used, and
used for the general welfare. No individual family or clan could
treat productive assets as private property unless the uses to
which those assets were put were regarded as consonant with the
general welfare. Unlike the traditional European approach to
ownership, no person could treat a piece of land as his own
with the freedom to use it or not as he chose. It is worth noting
that over the past century, the European tradition of absolute
ownership has gradually been eroded so that today the right
of the State to guide, plan, and even order the uses to which
property will be put is universally recognized and unquestioned.
30. These African traditions cannot be carried over indis-
criminately to a modern, monetary economy. The need to
develop and invest requires credit and a credit economy rests
heavily on a system of land titles and their registration. The
 11,
ownership of land must, therefore, be made more definite and
explicit if land consolidation and development are to be fully
successful. It does not follow, however, that society will also
give up its stake in how resources are used. Indeed, it is
a fundamental characteristic of African Socialism that society
has a duty to plan, guide and control the uses of all productive
resources.
CONTROL OF RESOURCE U S E
31. Under African Socialism the power to control resource
use resides with the State. To imagine, however, that the use of
resources can only be controlled through their ownership or
that the appropriate ownership will guarantee the proper use of
productive assets are errors of great magnitude. Ownership can
be abused whether private or public and ways must be found
to control resource use in either case. African Socialism must
rely on planning to determine the appropriate uses of productive
resources on a range of controls to ensure that plans are carried
out.
32. Economic activities are varied in function, importance
and purpose. Some are directed towards satisfying the needs of
society as a whole, others are undertaken by the individual for
himself and many others serve both purposes in varying degrees.
The measure of control needed for each of these many activities
differs from that needed for others. In order to control
effectively, sufficiently and not excessively in each case many
types and degrees of control are needed ranging from none,
through influence, guidance and the control of a few variables
such as prices or quantities, to absolute control represented by
State ownership and operation. Price, wage, rent and output
controls, import duties, income taxes and subsidies can be used
selectively and in combinations to direct the uses of private
property, limit profits, and influence the distribution of gains.
33. The use of a range of controls also has as its counter-
part the permission of varying degrees of private participation
and initiative. The idea of mutual social responsibility pre-
supposes a relation between society, its members and the. State.
It suggests that the State is a means by which people collectively
impose on individual members behaviour that is more socially
constructive than that which each would impose on himself. The
State, therefore, has a continuing function to perform, not in
 12
industry. The management training programme at Nakuru,
Egerton College, the farm management work contemplated at
Thomson's Falls, the U.N. Special Fund Management and Pro-
ductivity Centre, are programmes sponsored by Government to
alleviate the shortage of managerial resources and to qualify
more Africans for management tasks. In addition, there is an
urgent need for a commercial training and apprenticeship pro-
gramme and for a co-operative school to train personnel to run
producer, marketing and consumer co-operatives. Capital and
advice will be provided on an increasing scale through the
Industrial and Commercial Development Corporation and the
Agricultural Finance Corporation to give Africans the useful
experience necessary to become successful entrepreneurs.
115. Even with these programmes and educational efforts
Kenya will not be able to meet from domestic sources the
rapidly growing need for high and middle level manpower for
many years to come. Therefore, every effort will be made to
retain qualified expatriates, to use sources of technical assistance
wisely, and to mount recruiting campaigns abroad for particu-
larly critical shortages like teachers, doctors, water engineers,
surveyors, etc. These efforts will not, however, be enough. The
Government must also take steps to ensure that Kenyans aided
in their education by the Government are guided into those
studies and occupations where skilled manpower is most
urgently needed.
PUBLIC UTILITIES
116. Information and broadcasting, railways and harbours,
posts and telecommunications, secondary and trunk roads,
irrigation facilities, airports, national parks, statistical services,
water and sewage facilities, and forest plantations are responsi-
bilities of Government. They will all be expanded as a basis for
development. The critical issues in this sector concern public,
utility services that continue to be run by private operators.
117. Surface transportation, outside of the railways, is
privately owned and operated through many small enterprises.
As such it is proving to be an excellent training ground for
African entrepreneurs. Unfortunately, the services provided are
varied in standard and quality and frequently are wholly un-
satisfactory. When funds are available, nationalization of many
 13

In addition, Kenya has the special problem of eliminating classes

that have arisen largely on the basis of race. This matter of
Africanization in Kenya is reserved for discussion in Part II.
37. The class divisions that Marx deplored in Europe a
century ago were supported and strengthened by three factors—
(i) a concentration of economic power;
(ii)the treatment of private ownership as an absolute, un-
restricted right; and
(iii) the close relationship between economic power and
political influence.
The concept of political equality in Africa rules out in principle
the use of economic power as a political base. The vigorous
implementation of traditional political democracy in the modern
setting will eliminate, therefore, one of the critical factors
promoting class divisions. The policy of African Socialism to
control by various means how productive resources are used
eliminates the second of the factors supporting a class system.
Without its two supporting allies, the concentration of economic
power cannot be the threat it once was, but African Socialism
proposes to restrict and guard against this factor as well with
regard to both foreign and domestic concentrations.
z)RUHLJQ,QYHVWRUV
38. Foreigners have no vote and can only have a political
voice now that independence has been achieved by enlisting the
support of Kenya citizens. Nevertheless, the foreign ownership
and management of productive assets could mean that economic
decisions in Kenya might be dominated by foreign rather than
domestic considerations. Foreign investors should therefore be
prepared to accept the spirit of mutual social responsibility, for
example—
(i) by making shares in the company available to Africans
who wish to buy them;
(ii) by employing Africans at managerial levels as soon as
qualified people can be found; and
(iii) by providing training facilities for Africans.
 14

39. Foreign investors should be willing to sell an increasing

number of shares and in some cases perhaps all to Africans as
savings become available for buying them. It is accepted, how-
ever, that given the urgent need for domestic saving for new
development, the amount available for the purchase of foreign
investment is likely to be much smaller than the annual amounts
of new foreign investment for some time to come. That is,
foreign investment is likely to be a growing sector rather than
a shrinking one. It is important, therefore, that new foreign
investors should understand fully their other obligations to the
society in which they are investing. The Government has a duty
to take appropriate action to ensure that these obligations are
appreciated.
40. The employment in management of qualified Africans
is not a serious constraint on the foreign investor because the
intimate knowledge of the country and its people that they can
bring to bear on management problems, in addition to their
professional skills, will in general improve the efficiency of the
enterprise. The provision of training facilities is also in the
long-term interest of foreign enterprises and the very real contri-
bution these facilities will make to the development of the nation
is a consideration that must be entertained by both foreign and
domestic investors in the true spirit of mutual social respons-
ibility.
II.—Domestic Accumulation
41 . The concentration of economic power in domestic hands
carries with it the possible exercise of undue influence in political
affairs and must be watched closely. The problem is a complex
one because while it is desirable to ensure that the wealth of
the country is distributed as widely as possible, it is also neces-
sary for the development of the country to ensure that the steps
taken do not—
(i) inhibit the rapid accumulation of domestic savings;
(ii) prohibit methods of large scale production where they
are necessary for efficiency; or
(iii) discourage the inflow of private capital.
42. The principal long-term techniques for controlling the
rate of individual accumulation while at the same time stimu-
lating the rate of national accumulation will be progressive
income, inheritance and capital gains taxes, and death duties.
 15

47. The company form of business organization is a de-

parture from the direct individual ownership typical in Marx
day. By permitting many to contribute capital, a company can
operate large economic collections of assets while their owner-
ship remains diffused. The partnership form of organization
permits a similar arrangement but on a smaller scale.
Summary
48. The main features of African Socialism include—
(i) political democracy;
(ii) mutual social responsibility;
(iii) various forms of ownership;
(iv) a range of controls to ensure that property is used in
the mutual interests of society and its members;
(v) diffusion of ownership to avoid concentration of
economic power;
(vi) progressive taxes to ensure an equitable distribution of
wealth and income.
Characteristics (i), (ii), (iii) and (iv) are based directly on African
traditions and are emphasized time and again in our Constitution
and the KANU Manifesto. Taking political democracy first,
our Constitution states that, subject to the rights and freedoms
of others and for the public interest, "every person in Kenya is
entitled to the fundamental rights and freedoms of the individual
whatever his race, tribe, place of origin or residence or other
local connexions, political opinions, colour, creed or sex." (Page
32.) The KANU Manifesto also states "The KANU Govern-
ment will steadfastly uphold the rule of law and guarantee the
position of every citizen according to the Bill of Rights." (Page
18.)
49. In the case of mutual social responsibility generally and
in the use of property, the following quotes from the KANU
Manifesto show the KANU Government's commitment to pre-
serve this most important African Tradition: —
"We aim to build a country where men and women
are motivated by a sense of service and not driven by a
greedy desire for personal gain." (Page 1.) "The traditional
respect and care for the aged among our people must
continue . . . " (Page 3.) "The first aim of (seven years free
 
education) will be to produce good citizens inspired with a
desire to serve their fellowmen." (Page 4.) "We are confi-
dent that the dynamic spirit of hard work and self-reliance
which will motivate the Government will inspire the people
throughout the land to great and still greater efforts for the
betterment of their own communities" (Page 13.) Moreover,
"every individual has a duty to play his part in building
national unity. Your duties are not limited to the political
sphere. You must endeavour to support social advance."
(Page 19.)
50. With regard to the characteristics of various forms of
ownership our Constitution says "no property of any description
shall be compulsorily taken possession of, and no interest in or
right over property of any description shall be compulsorily
acquired," except in strictly defined cases where such action
would be necessary "to promote the public benefit"—and in
the latter case there is guarantee for "prompt payment of full
compensation." (Page 35.) The KANU Manifesto also says
"citizens will have the right to follow the profession and trade
of their choosing and to own property according to the law."
(Page 18.) "We shall welcome both governmental and private
investment in Kenya . . . we shall (also) encourage investors to
participate jointly in projects with our own government" (Page
21.) In connexion with land, the Manifesto says "every farmer
must be sure of his land rights (and to this end) consolidation
and the registration of title will be encouraged wherever people
desire." (Page 6.)
51. Both the Constitution and the KANU Manifesto also
emphasize the fourth characteristic of African Socialism—that
there must be controls to ensure that property is used in the
mutual interest of the society and its members. The KANU
Manifesto clearly states that "we believe in a wide measure of
governmental control of the economy in the national interest
(and) there are many ways of participation without acquiring
public ownership" (page 22); the KANU Government, while
encouraging private investment, will ensure that "the under-
taking is being directed according to our national policy and
needs . . .; while we intend following a liberal policy with
regard to foreign capital, investments must be made in accord-
ance with Kenya's interests . . . , (and) special consideration
will be given to local investors but we shall have no time for
 1
those who make large profits and then fail to invest them in
the country." (Page 21.) In connexion with land, the Manifesto
says, "the KANU Government will not tolerate holding of
large underdeveloped tracts of land by anyone". (Page 8.)
52. Characteristics (v) and (vi) are additions made neces-
sary in a modern, developing, monetary economy in which
accumulation is both a necessary and important feature.
PART II- APPLICATION OF AFRICAN SOCIALISM
TO PLANNING IN KENYA
53. The ultimate objectives of African Socialism are clear
and have been set forth in Part I, The high priorities placed on
political equality, social justice and human dignity mean that
these principles will not be compromised in selecting policies
designed to alleviate pressing and immediate problems. The
most important of these policies is to provide a firm basis for
rapid economic growth. Other immediate problems such as
Africanization of the economy, education, unemployment,
welfare services, and provincial policies must be handled in
ways that will not jeopardize growth. The only permanent solu-
tion to all of these problems rests on rapid growth. If growth
is given up in order to reduce unemployment, a growing popu-
lation will quickly demonstrate how false that policy is; if
Africanization is undertaken at the expense of growth, our
reward will be a falling standard of living; if free primary
education is achieved by sacrificing growth, no jobs will be
available for the school leavers. Growth, then, is the first con-
cern of planning in Kenya, but the responsibility for the success
of African Socialism in attaining this objective is a dual one.
In addition to the efforts of Government, the people them-
selves must contribute zeal for exertion and efficiency, and
high standards of personal and professional integrity in every
walk of life.
Resource Limitations
54. The achievement of rapid growth requires careful
planning and firm discipline in implementing plans to ensure
that Kenya's limited resources are increased as rapidly as pos-
sible and used wisely in the promotion of growth. The critical
shortages in Kenya at the present time are—
 18

(i) domestic capital;

(ii) trained, educated and experienced manpower; and
(iii) foreign exchange.
In addition there is the urgent need to conserve our natural
resources through national land-use planning and to create the
physical environment in which people can enjoy the fruits of
their labour. We must also use more intensively and effectively
not only our natural resources but our human resources as
well.
DOMESTIC CAPITAL
55. The shortage of domestic capital stems from the low
rate of domestic saving and the difficulties encountered in
raising local and central government tax revenues. While several
steps have been taken and other measures will be initiated to
stimulate domestic saving and increase tax collections, the
fundamental cause of the shortage of domestic capital is the
low per capita incomes out of which people must finance a
living before they can save and pay taxes. The real solution to
this problem is to raise per capita incomes, that is, to grow.
The dilemma we face is easy to state but much more difficult
to solve—to grow faster we must save more but to save more
we must grow faster.
56. It is unfortunate but true that if we had to depend
solely on domestic saving and tax surpluses to grow, our
growth might not even be rapid enough to keep pace with our
burgeoning population. In order to compensate for our short-
age of domestic capital, in order to grow rapidly so that our
aspirations can be realized, we must borrow from foreign
governments and international institutions and stimulate the
inflow of private capital from abroad.
57. The policy of borrowing from abroad does not mean,
however, that we can relax our efforts to promote domestic
saving and tax surpluses. Indeed, it is only to the degree that
we are successful in these efforts that we can—
(i) in the near future attract more capital from abroad to
raise our rate of growth; and
(ii) ultimately succeed in reducing our reliance on foreign
capital and increasing our share in the ownership of
productive assets.
 19

58. To attract more capital from abroad Kenya must be

able to finance more of the local costs of development, to
invest on an increasing scale in joint ventures with private
capital, and to improve more rapidly our infrastructure. The
more we can contribute to development, the more aid for
development we can obtain from other sources. Indeed, it is
estimated that for every pound Kenya can raise for develop-
ment at least two pounds can be raised abroad. This enables
us to grow three times as rapidly with foreign aid as we could
grow without it.
59. In the longer term, however, it is our aim to maintain
a rapid rate of growth with less dependence on foreign sources
of capital. As incomes rise, therefore, our vigorous efforts to
stimulate domestic saving and tax surpluses and to ensure their
investment in Kenya must continue so that we can finance
more and more of our own growth thus reducing our need for
borrowing savings generated in other countries. In particular
we must plan to raise the domestically financed share of
Government development expenditures from 25 per cent in
1965 to 33 per cent in 1970 by modifying the tax structure and
restraining recurrent costs so that an increasing surplus can be
generated for development; we must also stimulate savings by
citizens so that more and more of our capital formation is
financed and owned domestically; and we must also ensure
that domestic savings are retained and invested in Kenya.

SKILLED MANPOWER

60. Growth also requires ample supplies of skilled, trained

and experienced manpower. Large numbers of high and middle
level manpower are needed to teach in our rapidly expanding
secondary school system, teachers' colleges and the university;
to consolidate, survey and register land at a more rapid rate;
to do agricultural research, provide extension services, train
farm managers and operate National Farms, to manage private
industrial and commercial establishments; to plan and imple-
ment forestry development, to expand water supplies, to man
more hospital and health centres, to engineer and construct
roads and irrigation schemes, to administer the affairs of
Government, and even to prepare applications for foreign aid.
 
61. Kenya has ample numbers of unskilled manpower and
every effort will be made to use their services wherever pos-
sible. But untrained people cannot be used as teachers, planners,
engineers, surgeons, doctors, surveyors, architects, managers
and administrators without turning growth into decline. As
with capital, we can grow rapidly now only by supplementing
our meagre supply of domestic, trained manpower with large
numbers of skilled people borrowed from abroad. It is a
choice between rapid growth and little or none, not between
rapid growth and a little less. In order to grow rapidly and to
replace expatriates with comparably qualified Kenya citizens
as soon as possible, we must employ in the near future large
numbers of foreign experts both to assist in planning and
carrying out the work that needs to be done and also to
educate and train in the schools and on the job the Kenyans
who will ultimately make the foreign experts unnecessary.
62. The present situation can be indicated by noting that
the Government now employs 25 highly trained surveyors,
only two of whom are African, and has 11 vacancies; the
Government has 22 hydraulics engineers, one of whom is an
African, and has seven vacancies; of 811 doctors in Kenya,
approximately 50 are African; of 1,569 secondary school
teachers, 364 are African; and of 316 teachers in teachers'
training colleges, 126 are African. The full significance of
these figures cannot be realized unless it is appreciated that
many more than are now employed will be needed if desired
rates of growth of these services are to be achieved. In order
to provide secondary education for 50 per cent of the popu-
lation of eligible age, for example, nearly ten times as many
teachers would be required. The shortage of trained, educated
and experienced manpower is now so great that even the
preparation of applications for foreign aid becomes a major
and slow moving process and our ability to implement major
projects is being brought into question by several sources of
foreign aid. Indeed, the danger exists that we will build through
foreign aid and self-help, hospitals, health centres and school
buildings with little or no hope of filling them with doctors,
nurses and teachers.
63. Finally, the very long time it takes to train professional
people means that shortages of high level manpower will be
with us for several planning periods. The approximately
10,000 students now enrolled in Form I will be prepared to
 2
take jobs requiring a secondary level education only in 1969.
Probably only 5,000 of these will pass their Cambridge School
Certificate examinations and about 2,400 will continue into
Form V. Perhaps 1,800 will continue with University work
with about 1,600 receiving degrees in 1975. If 400 go on for
advanced work, they cannot be counted as part of our man-
power supply until 1976 or beyond. In the case of doctors,
for which the need is so great, none of the students now in
Form I will be available to us before 1978, and the numbers
emerging will still leave us far short of the number we must
have.
64. Our domestic supply of trained manpower must be
augmented as quickly as possible and used efficiently and
effectively. The expansion of educational facilities and appren-
ticeship and training programmes, the establishment of special
purpose training centres, and the promotion of adult education
will all help to meet immediate needs particularly for middle
level manpower skills. Those people already trained and
educated and in jobs must use their scarce skills fully, making
every working hour a genuine contribution to development
and willingly devoting extra hours to important tasks. The
organization of work must be carefully arranged to ensure
that scarce skills are not being wasted on more routine duties.
In these ways maximum development effort will be obtained
from our available domestic manpower.
FOREIGN EXCHANGE
65. Payments for goods and services bought from abroad
and repayments of foreign loans must be made in foreign
currencies. We can acquire these currencies by selling goods
and services abroad, promoting tourism, borrowing abroad and
reducing Kenya's holdings of foreign assets. A foreign exchange
problem arises when we cannot pay our bills abroad except
by emergency borrowing or reducing our holdings of foreign
assets (and our own currency because many of these assets
support our currency) to dangerously low levels.
66. Kenya does not now have a foreign exchange problem
but great care must be exercised to ensure that the steps we
take to promote development, including our foreign policy, do
not create this problem. More rapid growth means buying
more capital goods from abroad to generate growth and
 

importing more consumer goods to satisfy the growing demands

of people with higher incomes. As capital goods do not create
immediately enough additional production to pay for them-
selves, the foreign exchange required to buy them must usually
be obtained through borrowing or a surplus of current exports
over imports. At the present time, Kenya is succeeding in
borrowing enough from abroad to pay for its excess of imports
over exports.
67. To avoid future foreign exchange problems, Kenya
must use these borrowed funds and imported capital goods
efficiently and in the production of more goods and services
either for export or for import substitution. Then the money
borrowed can be repaid out of the additional foreign exchange
earned or saved. If, however, Kenya uses foreign funds for
the transfer of existing assets or uses them inefficiently in
new development efforts, their use will not generate the
foreign exchange needed for repayment and development may
have to be curtailed. Foreign exchange needed to buy goods
and services for development can also be lost through capital
flight and excessive imports of consumer goods. Capital flight
is usually a sign of lack of confidence in the economy, fear
of one's future in that economy, or a deliberate attempt to
hamper national progress. The Government would prefer to
limit capital flight by building confidence and stimulating co-
operation rather than using quantitative controls but if
exceptional circumstances require the latter, they will be used.
If imports of consumer goods rise too rapidly, the Govern-
ment must be prepared to take steps to control such imports
or to make them more expensive through tariff increases,
purchase taxes, or differential exchange rates.
68. While foreign exchange is not generally a problem in
Kenya at the moment, bilateral trade and aid agreements can
lead to specific currency problems. If we sell goods to a
country whose currency is not convertible into the currency
of other countries, that foreign exchange is valuable to us only
if we can find useful goods to buy in that country at reason-
able prices. If not, Kenya, a developing country, is simply
advancing credit to the more developed country. Furthermore,
as the currencies of these countries are not convertible, a
serious difficulty arises in financing the local costs associated
with the capital equipment these countries can supply in
 2
foreign aid. Finally, to facilitate repayment to such countries
Kenya goods must be sold there or our supplies of convertible
currencies seriously reduced. These difficulties are not always
insurmountable but must be carefully considered when bilateral
arrangements are made in non-convertible currencies.
69. It will be seen from the foregoing that as a developing
country we must scrutinize all aid offers in relation to our
foreign exchange policies. We must avoid, for example, aid
which requires us merely to advance credit to a developed
country or to mortgage our future production to any given
country or which makes us a mere dumping ground for
products of a donor country. Aid terms must be related to
the productivity of the project and its positive contribution
to our economy. These are matters which must not be decided
upon just on political or emotional considerations.

PROPER U S E OF DOMESTIC RESOURCES

70. Much of our land, water and labour can be used
more intensively and effectively without substantial aid from
abroad. Opportunities of this kind must be quickly and fully
developed. Many acres of idle land could be producing crops
if farmers would put in more effort. If every person on the
land cultivated one extra row, the output of the nation would
be substantially larger. If people who are unemployed in the
cities would return to their land, further increases in output
could be achieved. Idleness, whether of land or labour, cannot
be countenanced in a nation that needs every ear of maize,
grain of wheat, and pound of cotton. Self reliance and inde-
pendence means the ability and willingness to do things for
ourselves.
71. While many of our domestic resources are not fully
utilized, still others are being dissipated, wasted and in some
cases destroyed. The use of outmoded farming techniques may
result in erosion; the cutting of windbreaks and the burning
of vegetation may turn fertile acres into desert; and the
destruction of forests may eliminate important water supplies.
Practices tending to harm rather than conserve our physical
environment must be curbed through education and legislation.
 2
Critical Issues and Choices
72. These limitations to growth are blunt, hard facts that
force choices on us. We want to grow rapidly; to transform
the economy from a subsistence to a market economy, to
develop our land and introduce modern agricultural methods;
to industrialize; to Africanize; to provide more employment
opportunities; to have universal primary education; to expand
secondary school enrolments; to build hospitals and health
centres; and to relieve the housing shortage. To do all of these
things quickly and simultaneously would require many more
resources than we have or can quickly acquire. We must,
therefore, make choices in deciding how to use our limited
resources. Some of the more crucial choices facing us now
and on which decisions must be made are: —
(i) Under what circumstances and to what extent should
we nationalize means of production?
(ii) What means should be used to promote Africanization?
(iii) In present circumstances, how much of our develop-
ment budget should be devoted to expanding welfare
services?
(iv) What means should be used to promote domestic saving
and retain it for investment in Kenya?
(v) What should be the role of the tax structure in increas-
ing revenue, establishing incentives, distributing income
and diffusing economic power?
(vi) What part should self help play in development?
(vii)What agricultural and land tenure policies should be
decided to promote growth and prevent concentrations
of economic power?
(viii)What means should be used to reverse the trend in
many parts of the country towards depleting natural
resources—land degradation, destruction of watersheds
and encroachment of desert?
(ix)What priorities should be adopted in building educa-
tional facilities and providing training programmes?
(x)How should public utilities be owned, regulated and
managed?
 2
(xi) What methods should be used to develop industry,
commerce and tourism?
(xii) What should be the role of trade unions in promoting
development?
(xiii) What means should be used to protect the interests of
consumers?
(xiv) How much should be spent and for what purposes to
help the less developed parts of the country?
Until policies on these matters are settled and agreed, develop-
ment planning will remain an academic affair in Kenya—a
paper exercise having little impact on reality.
NATIONALIZATION
73. Nationalization is a useful tool that has already been
used in Kenya and will be used again when circumstances
require. The pertinent questions are at what cost, for what pur-
pose, and when. The Constitution and the KANU Manifesto
make it clear that African Socialism in Kenya does not imply
a commitment to indiscriminate nationalization. These docu-
ments do commit the Government to prompt payment of full
compensation whenever nationalization is used. Kenya's policy
with respect to nationalization should be more clearly defined
within these stipulations.
74. It should be recognized that if the nation's limited
domestic capital is used to buy existing land, livestock, buildings,
machinery and equipment, the nation has no more productive
assets than before—only their ownership has changed. What may
be lost are the new resources that could have been purchased
instead—the new schools, hospitals, roads, water supplies, irriga-
tion schemes, rolling stock, land surveys, housing, lodges, air-
ports and harbour development—and the employment oppor-
tunities and added output that these new developments would
create. Further, the money paid for nationalized resources and
the people who managed them before nationalization would
most likely leave the country increasing our foreign exchange
and skilled manpower problems. There is also the firm likeli-
hood that nationalization would discourage additional private
investment, thus reducing further the rate of growth of the
economy. It is also the case that the use of domestic capital to
 26

nationalize would reduce our ability to match foreign aid funds

leading to an even greater reduction in development expenditure.
Finally, some speak of nationalization as though it should be
applicable only to non-African enterprises. If the policy were
applied to an economic activity, such as bus transportation, it
would affect everyone, African and otherwise, owning produc-
tive resources in the industry.
75. Though the cost is great there may be circumstances
when nationalization will be needed—
(i)when the assets in private hands threaten the security
or undermine the integrity of the nation; or
(ii)when productive resources are being wasted; or
(iii) when the operation of an industry by private concerns
has a serious detrimental effect on the public interest;
and
(iv)when other less costly means of control are not avail-
able or are not effective.
76. It must also be clear that in most cases when an indus-
try is nationalized it must be operated efficiently, cover its costs
and earn a profit at least equivalent to the taxes paid when
operated privately. If taxes must be used year after year to
subsidize its operation, the nation has gained little if anything
by the act of nationalization.
77. Nationalization then will be considered if the need is
urgent, if other less costly controls are ineffective, and if it is
understood that most industries nationalized will not be operated
at a loss. Nationalization would also be desirable regardless of
cost where a service is vital to the people and must be provided
by Government as part of its responsibility to the nation.
AFRICANIZATION, ASSET TRANSFERS AND CITIZENSHIP
78. Africanization is an urgent problem but in any reason-
able perspective is likely to be of short-term duration. That it
will be achieved in the not too distant future is unquestionable.
The problem is rather to reconcile the urgency of the matter
with citizenship guarantees and the desire for rapid economic
growth.
 
79. The Constitution provides for equal treatment of all
citizens and the KANU Manifesto states that the KANU
Government will "Guarantee the position of every Citizen
according to the Bill of Rights... Citizens will have the right
to follow the profession and trade of their choosing and to own
property". Thus political equality and equality of opportunity
are guaranteed for all citizens as a matter of right.
80. Nevertheless, imbalances have been inherited from the
past and these imbalances must be corrected. The most direct
way would be to use Government's limited development money
to buy existing properties for Africans. Such purchases could
be made on a willing buyer /willing seller basis without violating
the Constitution. However, such purchases would have the same
effect on development as indiscriminate nationalization; namely,
to reduce substantially the amounts the Government can spend
on new development. Further, the properties so transferred are
likely to be the least efficient (if only because it will be the
owners of these properties who will be most willing to sell),
placing the Africans at a disadvantage from the outset. If, in
addition, such transfers are made to untrained, inexperienced
people, they may go bankrupt making Africanization a tem-
porary rather than a lasting phenomena. Moreover, as such
transfers would reduce the rate of growth, more opportunities
for Africanization might be destroyed than could be created.
81. Africanization in agriculture has taken the principal
form of land settlement which is based primarily on the transfer,
reorganization and development of some of the land formerly
European-owned. This approach has been necessary for political
reasons—to ensure that areas formerly closed to Africans were
opened to them. These areas are now open to Africans; settle-
ment policy should hereafter be based on its economic benefits
and on Kenya's wishes and terms instead of those of the United
Kingdom as has hitherto been the case.
82. We have to consider what emphasis should be given in
future to settlement as against development in African areas.
The same money spent on land consolidation, survey, registra-
tion and development in the African areas would increase pro-
ductivity and output on four to six times as many acres and
benefit four to six times as many Africans. It therefore follows
 

that if our resources must be used to achieve maximum

growth we must give priority in the future to development in
the former African areas.
83. From the foregoing discussion it follows that the
principal policies for achieving Africanization should be those
that are consistent with growth and development. In this regard
the Government has already undertaken, and in its plans has
provisions for, various programmes for Africanizing the
economy. These programmes include—
(i) providing education, training and experience for
Africans to equip them for the efficient exercise of
entrepreneurial and farm-management functions;
(ii) making capital available to Africans with small down
payments and at low interest rates through such orga-
nizations as the Land Bank, the Agricultural Finance
Corporation, the Industrial and Commercial Develop-
ment Corporation, and the Marketing boards;
(iii) following up provision of capital with extension services
whether in agriculture, commerce or industry;
(iv) helping African traders and businessmen directly
through the Industrial and Commercial Development
Corporation (ICDC);
(v) stimulating large-scale investment through the Develop-
ment Finance Company of Kenya (DFCK) and the
proposed Kenya Tourist Development Corporation
which ensure that the Government has a direct interest
in this investment;
(vi) promoting producer, marketing and consumer co-
operatives and training people to run them so that
larger scale opportunities are opened to Africans with
limited capital;
(vii) promoting home ownership through tenant-purchase
schemes, self-help housing projects, co-operative
housing associations, and mortgage finance institutions;
(viii) participating with private capital in many ventures such
as the Kenya Power Company, East African Power
and Lighting Company, Tana River Development
Corporation, Chemilil Sugar Project, East African Pulp
and Paper Company, and the Kenya Canners;
 29

(ix) making direct investments through the Agricultural

Development Corporation and the Industrial and Com-
mercial Development Corporation.
(x) setting up certain State enterprises such as the National
Trading Company, the proposed Co-operative Bank,
and the proposed State Construction Company; and
(xi) Africanizing the Civil Service as rapidly as possible.
This process is being accelerated through training of
Africans, at home and abroad, to qualify them for new
positions and promotions. Here it is important to
realize that since the public sector will be expanding
more rapidly than the other sectors, it will be an
increasingly more important means for employing
Africans.
84. The bulk of these efforts are directed toward establishing
Africans in a firm position in the monetary sector by ensuring
that a large share of the planned new expansion is African
owned and managed. Thus the ICDC, for instance, will be
encouraged to participate in the construction of shopping centres
and industrial estates; and many enterprises financed with
foreign capital will provide for increasing African ownership
as domestic private savings permit. It might also be considered
whether, to facilitate the Africanization process, licensing for
certain types of trade and business should be restricted to citizens
only with a deliberate bias in favour of African applicants. In
any case, both foreign and domestic firms should be required
to provide training facilities for Africans at all levels.
WELFARE SERVICES AND ECONOMIC DEVELOPMENT
85. The declared aim of the Government is to provide
medical and hospital services, old age and disability benefits, free
and universal primary education, benefits for the unemployed,
and financial aid to all who need and merit it for university
work. These are the objectives of African Socialism, but to
provide them fully and freely now would bankrupt the nation
and mortgage economic growth for generations. Greater ex-
penditures by the Government on social services or on un-
productive, as opposed to productive, unemployment relief
projects reduce the amounts available for economic develop-
ment, retard growth and postpone even longer the time when a
full welfare programme can be implemented. Nevertheless, it is
the clear intention of Government to make steady and
substantial progress towards the attainment of these objectives.
 

86. The Government's capacity to achieve its desired

objectives is restricted by our limited resources, which restrain
our ability to expand, and by our high rate of population
growth, which rapidly increases the size of the task. With
population growing in excess of 3 per cent per annum nearly
seven million jobs will be needed by the year 2000 and over
230,000 adult males will at that time be added to the labour
force each year. A more moderate rate of population growth of
1.7 per cent per annum, approximating the world rate, would
mean a male labour force of 4.5 million growing at 60,000 per
annum in the year 2000. The effect of slower growth on
numbers of children of primary school age is even more pro-
nounced. With present fertility rates universal education would
require facilities for over six million children in the year 2000
at an annual recurrent cost of perhaps £49 million. More
moderate growth would reduce this cost to £18 million because
facilities would be needed for only 2.3 million children. A high
rate of population growth means a large dependent population,
reduces the money available for development, lowers the rate
of growth and makes exceedingly difficult the task of increasing
social services. A programme of family planning education will
be given high priority.
87. The problem of providing welfare services on a large
scale is not solely financial. The limitation of skilled manpower
is of perhaps equal importance. It takes a long time to train
doctors, teachers, nurses and social workers. Without supplies of
such people many times greater than are now available, the
offer of free services could not be supported. Financial and
manpower limitations again combine to limit progress toward
desired ends.
88. But progress is being made. Limited medical and
hospital services are being made available to the destitute;
primary education is being expanded more rapidly than
population and some children from poor homes can be exempt
from paying fees; bursaries are available to many in secondary
schools and universities; employment opportunities are being
created for some of the unemployed; and a National Provident
Fund and a National Health Insurance Scheme will be
starting soon. These efforts may seem meagre when compared
with desires but they are generous indeed, given our limited
resources. They form the basis for our future expansion of
services.
 3
STIMULATING AND RETAINING DOMESTIC SAVING
89. No nation can grow without saving some of its income
for investment in the development of the country. Domestic
saving must not only be increased, but must also be retained
and invested at home. The promotion of domestic saving must
be encouraged in order to assist in both private and public
development.
90. Compulsory saving should be accepted in principle
and means worked out to implement it. The National Provi-
dent Fund will be, of course, a type of compulsory saving.
In order to stimulate voluntary saving the variety of savings
methods open to the public should be increased including a
Unit Trust and savings bonds tailored to particular future
needs of families such as education, housing, and durable
consumer goods. The Government should take steps to
develop the nation's money markets and, in particular, to
stimulate wider interest and participation in the stock exchange.
Measures should also be adopted to encourage the retention
and reinvestment of profits. The full taxation of dividends—
i.e. without credit for company tax—would assist in this
regard.
91. Monetary and investment policies must be designed to
ensure that domestic savings are invested in Kenya and not
abroad. In particular, insurance companies and other financial
institutions that operate in Kenya should in future be required
through appropriate legislation to invest in Kenya except for
necessary external investments such as reinsurance. Many
businessmen in Kenya, Asians in particular, have money that
should be invested directly in their own enterprises or made
available through loans to the Government or to such agencies
for development as the Industrial and Commercial Development
Corporation, the Agricultural Finance Corporation, the Kenya
Tourist Development Corporation and the Development
Finance Company of Kenya.
92. The operation of commercial banks should be more
closely supervised and controlled either by a central bank for
East Africa or for Kenya. Enterprising Africans should be
encouraged to develop indigenous commercial banks so that
Kenya's dependence on monetary policies abroad can be
reduced.
 3
TAX STRUCTURE
93. The Government's tax structure performs several
functions including—
(i) supplying funds for recurrent costs and development;
(ii) providing incentives and disincentives to influence the
pattern and methods of production and consumption;
and
(iii) modifying the distribution of income and wealth.
The tax system should in fact be a major weapon for
implementing African Socialism—in providing funds for deve-
lopment, in guiding and controlling activities in the private
sector and in creating an equitable distribution of income and
wealth.
94. The highest priority must be assigned to increasing
tax collections by both the Central Government and Local
Authorities in order to provide a substantial margin over
recurrent costs for development. This requires positive action
because the present tax system is not sufficiently responsive
to changes in income. As more and more of our domestic
demand is satisfied with domestic production, import duties
will become less important as a source of revenue. Other
sources must be found. The main ways that must be considered
to increase tax collections in the future are—
(i) a full pay-as-you-earn system of collecting income
taxes;
(ii) reduction in personal tax allowances;
(iii) progressive inheritance taxes and review of death
duties;
(iv) excise duties on selected commodities;
(v) sales and entertainment taxes that exclude basic
necessities;
(vi) extension of the list of commodities subject to export
duties and revision of existing rates;
(vii) expansion of property taxes;
(viii) a capital gains tax;
(ix) elimination of foreign gambling pools and the like
from Kenya and collection by the Government of a
larger share of such gains;
 

(x) full taxation of dividends without credit for company

taxes;
(xi) charging for some services now rendered free by the
Government, in particular charging tolls on major
highways.
Finally, sources of revenue like school fees are really a
form of tax that is relatively easy to collect. Until Kenya's tax
base is substantially broadened and regular tax collections are
substantially more in excess of recurrent costs than they are
now, such fees must be retained. To reduce them in the near
future would force a substantial reduction in planned develop-
ment.
95. Other sources of Government revenue must also be
more intensively used than in the past. Government assets held
abroad should be invested in Kenya to the extent that this is
legal; fiduciary issue should be more fully utilized; and more
devices should be sought for channelling more domestic savings
into Government hands. These matters are continuously under
discussion in the Government with careful consideration given
to the timing and administrative problems involved.
96. The relationship between the development and re-
current budget is, of course, significant. Any economies on
the recurrent side increase funds for development. Indeed, when
development funds are matched with aid from abroad it is
likely that every pound saved on recurrent means three pounds
for development. Arbitrary cuts in recurrent costs, on the other
hand, cannot be considered. In general, every four pounds spent
on development increases recurrent costs by one pound. To
force recurrent costs below what is necessary would mean that
development projects could not be operated.
97. In modifying the tax structure, incentive efforts must
be considered. Import duties have the effect of switching
demand from imports to domestic production; duty drawbacks
stimulate domestic production also; excise taxes can modify
the composition of output; and excessive taxation can force
capital abroad and reduce the attractiveness of Kenya to out-
side investors. A particularly pressing problem is to modify
incentives to industry. The present investment allowance does
attract capital but it also stimulates the substitution of capital
 34
for labour. The incentives to industry should be modified so
that employment of labour is encouraged as a means of alle-
viating unemployment over the years. While incentives to
industry must be adequate to attract private investment, con-
cessions and protection must be carefully co-ordinated and
tailored to the needs of each industry to ensure that protection
is not excessive in relation to the needs of the industry or its
contribution to the economy. These matters should be inves-
tigated by the new Industrial Protection Committee. Idle
resources and underdeveloped land should be taxed in ways
designed to encourage efficient use and development. The
present system of taxing land on its unimproved site values has
this effect.
98. The tax structure must also be a major means for
effecting a more equitable distribution of income and wealth.
Those with high income and wealth must accept a greater
responsibility to pay the taxes needed for development and
social services. The following policies would have the desired
effects and will be considered: —
(i) Exempting from direct taxes people making extremely
low incomes. In particular, the objective should be to
begin at once to eliminate for this group the graduated
personal tax, substituting property taxes for it.
(ii) Retaining the progressive income tax, lowering allow-
ances. (Some of these allowances were designed
during colonial times to serve expatriate civil servants
and settlers who looked overseas for security, vaca-
tions, and education for their children.)
(iii) Adopting progressive inheritance taxes.
(iv) Making any capital gains tax progressive.
(v) Exempting basic necessities from sales and excise taxes.
(vi) Taxing luxury items heavily,
The tax structure will not, however, be made prohibitive or
confiscatory. Reasonable levels of profits, property accumula-
tion and standards of living are necessary and desirable if a
high rate of growth is to be achieved and enjoyed.
 35

SELF-HELP AND COMMUNITY DEVELOPMENT

99. In a country short of resources every method that
increases the allocation of resources to development must be
utilized. Self-help in Kenya has strong roots in African tradi-
tions and has therefore important potential for development.
But it, too, must be planned and controlled.
100. Self-help cannot provide all of the resources needed
to construct a project and keep it running. If the need for the
complementary resources, such as trained manpower and
revenues to cover recurrent costs, are not forthcoming or are
obtained at the expense of other planned developments, self-
help can slow growth and frustrate participants rather than
promote development and welfare. The development pro-
gramme for secondary schools prepared by the Ministry of
Education, for example, is tailored to the supply of domestic
and foreign teachers and a vigorous foreign recruitment pro-
gramme will be necessary to make the plan a success. If many
"Harambee" secondary schools are constructed, they will either
have no teachers, unqualified teachers or qualified teachers
taken away from the planned programme. If "Harambee"
schools cannot find teachers or the recurrent costs can't be met,
the resources of the country will have been wasted. Similar
examples could be cited with regard to health centres and other
projects. Self-help projects must be fitted into the plan and
self-help efforts must be guided into useful channels. Self-help
is an integral part of planned development and must be subject
to the same discipline as other parts of the developed effort.
Planning in this respect is very much like exchange controls—
one significant hole in the dike can reduce all other efforts to
nought.
AGRICULTURE AND LAND TENURE
101. Agriculture is the dominant sector of the economy,
encompasses the whole country and provides a living for the
majority of Kenya families. Our plans in Agriculture provide
perhaps the best example of African Socialism at work. Almost
every form of organization will be utilized in this sector
including national farms, co-operatives, companies, partner-
ships and individual farms. National farms will play their most
important role in providing essential national services such as
hybrid seeds and quality livestock. To conserve Kenya's limited
 36
development money, partnerships with private capital will be
considered provided that private participants will accept that
Government policies will be dominant in the operation of the
farms. Co-operatives and companies will be utilized where large-
scale methods of production or marketing are needed. The bulk
of individual ownership will be moderate size plots, but
marketing for many individually owned farms will be arranged
through co-operatives. The progressive Africanization of owner-
ship will be provided for through settlement schemes and
increasingly through schemes that permit the gradual substitu-
tion of African for foreign ownership as domestic savings
increase. Some of the tea factories are now organized in this
way, and this example will be extended to selected other agri-
cultural developments as well.
102. Development in agriculture will be given first priority
in the African areas. The use of funds here will increase out-
put, yields, employment and per capita incomes much more
rapidly and effectively and on four to six times the acreage
than the use of these funds for settlement. The present practice
of spending a large proportion of the Government budget on
the settlement and development of a limited acreage in former
European areas should be phased out and future funds chan-
nelled to the development of the great potential of the African
areas. What is now urgently needed is development, not merely
land transfer. Consolidation and registration will make farm
credit and modern methods of agriculture possible and should
expand employment much more rapidly than settlement can,
by bringing more land into productive use.
103. The settlement process was inherited from the British
and was designed more to aid those Europeans who wanted to
leave than the Africans who received the land. Our land pro-
blems should not be settled on terms decided in the United
Kingdom. Instead, our policies and plans in agriculture should
be determined by our need to develop, and financial support
sought for these plans from several sources. However, there
have been reasons for settlement. Many European farmers
wished to leave and the United Kingdom Government was
willing to give grants and loans to Kenya to enable them to go.
Neither of these reasons takes into consideration the present
need for development in Kenya. It is unlikely that Kenya, in
accepting the debt burden, has obtained economic benefits of
anywhere near the amount of the debt incurred.
 37

104. There is need, however, to ensure a continuing market

in land. Hitherto some of the financial institutions in Kenya, and
certainly the Land Bank, have been designed and developed to
facilitate transfers largely from non-Africans. There is there-
fore the need to remodel these institutions so that they can
serve the country as a whole, not just a few individuals and
areas.
105. The need for discipline in implementing agricultural
development is apparent, and appropriate legislation and strict
enforcement of existing legislation is necessary to ensure that—
(i) loans for development are properly used;
(ii) loans are repaid promptly and delinquents appro-
priately and promptly punished;
(iii) those committing theft and deliberate damage to crops
and stock are quickly and severely punished;
(iv) the few in an area of land consolidation who refuse to
co-operate in survey and registration work are made to
comply;
(v) those few who refuse to co-operate in a major co-
operative farming scheme are made to do so or lose
their land.
106. There is also urgent need for a land tenure policy to
ensure that projected agricultural development is not concen-
trated in the hands of the few. Having regard to some of the
problems of transition, a working party might be established to
consider the need and practicability of establishing ceilings on
individual ownership of property, and to advise on the machinery
for making these effective. Here it must be pointed out that
any ceilings decided upon must apply throughout the country.
In order to put an end to the buying of land for speculative
purposes by non-citizens, there should be a ban on future pur-
chase of agricultural land by non-citizens unless approved by
Government.
107. It should be established that priority in future should
be given to producer co-operatives formed by people such as
workers and squatters already employed on the land. Such
priority could be enforced by having credit facilities made avail-
able to such groups as against individuals wishing to buy the
land.
 38

108. The use of land will be closely controlled and legisla-

tion will be needed to make such control effective. Idle land and
mismanaged farms will not be permitted whether such land is
owned by Kenya citizens or foreigners. Licensing and quotas
will be used to control the production of many major crops and
the Government will establish prices in the joint interest of pro-
ducers and consumers. Production and yields will also be in-
fluenced by Government extension services and research, and
the readiness of the people to accept advice and adopt new
methods.
109. The marketing boards will be used to promote a
socialist organization of the country's economy. The growth
of these boards in the past has been haphazard and in some
cases intended to protect only one interest or group. There are
too many boards leading to duplication of effort, waste of man-
power and confusion in policy. It is therefore necessary to
review and streamline the organization and operation of all
marketing boards and to use them as a positive agency for pro-
moting our socialist policies.
CONSERVATION OF NATURAL RESOURCES
110. The heritage of future generations depends on the
adoption and implementation of policies designed to conserve
natural resources and create the physical environment in which
progress can be enjoyed. The thoughtless destruction of forests,
vegetation, wildlife, and productive land threatens our future
and must be brought under control. A national land-use policy
must be created and physical planning must be extended from
the towns and cities to districts and rural areas. The conserva-
tion of water supplies and productive land through the main-
tenance of forests and windbreaks, proper methods of land culti-
vation, and prevention of fire and flood must be actively pro-
moted by Government and the people must be fully informed
and their co-operation ensured. The importance of wildlife to
Kenya's future prosperity must be appreciated by everyone
and national parks and reserves must be protected and preserved.
EDUCATION, TRAINING AND EXPERIENCE
111. At Kenya's stage of development, education is much
more an economic than a social service. It is our principal means
for relieving the shortage of domestic skilled manpower and
 39

equalizing economic opportunities among all citizens. For that

reason it is of the utmost importance that the construction of
unaided schools should conform to the nation's needs and supply
of teachers, and curricula should be required to meet Govern-
ment specified standards. It is expected, of course, that all
citizens will contribute to the development of education through
self-help payment of school fees and taxes, and service as
teachers. In addition to its economic benefits, widespread educa-
tion should develop good citizens, promote national unity, and
encourage proper use of leisure time.
112. The advances in education in recent years have been
impressive. Enrolment in primary schools has risen from 891,553
in 1963 to 1,028,000 in 1965. This is an impressive advance
towards the declared Government objective of universal primary
education. It is now estimated that approximately 70 per cent
of those in the age-group eligible for Standard I are now attend-
ing school. It is Government's intention, after studying the
Education Commission Report, to adopt a definite schedule and
date for achieving universal primary education. Secondary
schools of all kinds jumped in number from 141 in 1962 to
222 in 1964, and the Government itself has opened 56 new
Form I classes in 1965. Kenyatta College at Kahawa is now
operating six Form I classes, three Form V classes and a
Teachers' Training College.
113. The immediate objectives in education are to expand
secondary level facilities as rapidly as teacher supply and re-
current cost implications permit. This is, of course, important
to the training of manpower, the acceleration of Africanization
and increasing the proportion of K.P.E. candidates that can con-
tinue in education. In order to generate more teachers, teacher-
training facilities must also be expanded rapidly. The work of
the Education Commission will be an invaluable aid to Govern-
ment in its planning in this field. Finally, the plans for Nairobi
University College must be fully integrated with the Government
Development Plan if the University College is to contribute
effectively in solving our manpower problem.
114. The shortage of skilled manpower cannot be cured by
general education alone. Trades must also be taught and firms
must co-operate in providing in-service training and apprentice-
ship programmes on a growing scale both in commerce and
 40

subordinating the individual in society, but in enhancing the

role of the individual in society. Individuals derive satisfaction
not only from the goods they consume but also from those they
accumulate. If human dignity and freedom are to be preserved,
provision must be made for both activities by the individual—
consumption and accumulation.
34. The use of a range of controls offers the great advantage
of flexibility. Controls can be applied selectively and with sensi-
tivity depending on where in the spectrum of economic activity
the one to be controlled is located. Furthermore, the degree and
nature of controls can be modified over time. Another feature
of the range of controls is that it permits a variety of forms of
private participation, each of which can be utilized where it
performs best. It also gives a substantial degree of freedom in
attracting both private and public capital whether internally or
from abroad. And managerial talent of different kinds can be
attracted in different ways and from various sources to ensure
that the country has adequate supplies of experienced people.
Variety is an important means of attraction whether it is
customers, savings, capital or management that is wanted.
35. The purpose of a range of controls and of planning is
to ensure that productive assets are used for the benefit of
society. If an individual, a co-operative, a company or the State
owns productive assets, society expects these assets to be used
and used well. The holding of land for speculative purposes, the
charging of exorbitant or discriminatory prices, the abandonment
of land and the production or sale of shoddy merchandise are
all examples of violations of the principle of mutual social
responsibility.
CLASS PROBLEM
36. The sharp class divisions that once existed in Europe
have no place in African Socialism and no parallel in African
society. No class problem arose in the traditional African society
and none exists today among Africans. The class problem in
Africa, therefore, is largely one of prevention, in particular-
(i) to eliminate the risk of foreign economic domination;
and
(ii) to plan development so as to prevent the emergence of
antagonistic classes.
 41

segments of surface transportation may be required, but the

immediate need is to find solutions that will be less expensive in
terms of Government money now urgently needed for develop-
ment elsewhere. The most pressing problems are urban passenger
transportation and cross country, trunk road passenger transport.
118. The first step is regulatory legislation by the munici-
palities and the Government to provide the necessary powers to
enforce high quality, uniform standards of services. If efforts
to regulate turn out to have unsatisfactory results, partnerships
with private capital and management could be explored, pre-
ferably with large, experienced firms operating in municipalities
or cross-country roads. The Government or municipality would
buy a minority equity interest in the firm and the private
company would provide the balance of the necessary capital in
equity and loans with the provision that when the loans are
repaid, the company created would become wholly owned by
Government or municipality. Thus capital and qualified manage-
ment would be obtained at little initial cost to the Government
and the participation of the Government would ensure operation
in the public interest. It is, however, possible that the public
transport in Nairobi and Mombasa could be operated by these
local authorities. In the not very distant future these munici-
palities may need to plan for the provision of underground
transportation and parking facilities.
119. The Kenya Government owns 2 1\2 per cent of the
equity in the East African Power and Lighting Company, 33 1/3
per cent of the Kenya Power Company, and 25 per cent of the
Tana River Development Company. The latter two companies
will become wholly Kenya owned when present indebtedness is
repaid. The Electric Power Act provides that the Government
can revoke, with consent of the licensee and on just terms, any
power licence including any held by the East African Power
and Lighting Company. Because of the strong Government
interest and participation in power, no major decision is taken
in Kenya without the concurrence of the Government. The
method is effective and inexpensive.
INDUSTRY, COMMERCE AND TOURISM
120. The Government expects the private sector to play a
large role in development, subject, however, to firm guidance,
and explicit controls when necessary. This approach will permit
 42

Kenya to attract private capital and management which could

not otherwise be obtained for development. Some basic indus-
tries regarded as fundamental to industrial development will
have Government participation. This is because many of the
beneficial effects of important industries, such as their contribu-
tion to foreign exchange, labour training, and the relief of un-
employment, are not given full weight in purely commercial
considerations. Examples of this approach include the Chemilil
Sugar Factory and the pulp mill planned for Broderick Falls.
Partnerships with private capital will also be instituted by the
DFCK and ICDC.
121. The main lines of industrial development will be
determined by Government planning. A survey of possible new
industries for Kenya has just been completed and more compre-
hensive surveys will follow. The industries listed have been
ranked according to their probable contribution to development
and this ranking will influence Government decisions on support,
protection and preferential status. An Industrial Protection
Committee has recently been established with the function of
advising on the appropriate treatment to be accorded the various
industries now in Kenya or likely to be attracted here. Scheduling
of industry will ensure that total output is not restricted but
that the number of firms in an industry is controlled so that
each can operate at an efficient scale of production. Industrial
development in Kenya, therefore, will not be haphazard in
nature but rather planned and guided.
122. The use of industrial assets will be subject to safe-
guards designed to ensure that their use is in the public interest.
The rights of workers will be guaranteed and means for
controlling the quality of output, monopoly profits and unfair
market practices will be embodied in legislation.
123. In commerce, at the wholesale level, the National
Trading Company will be a growing State enterprise designed to
ensure that this vital avenue for the flow of goods is not stifled
by private monopoly. The precise mode of operation of the firm
will be determined by a working party established by the
Ministry of Commerce and Industry. At the retail level, private
stores and co-operatives will compete. A chain of consumer
co-operatives will be organized relying in part on the National
Trading Company for supplies of goods. The ICDC will provide
 43
capital and advice to Africans interested in entering commerce
and will assist in financing modern shopping centres. A com-
mercial training and apprentice programme is urgently needed
and the Chambers of Commerce have expressed interest in co-
operating in this endeavour. The use of commercial property
will be closely supervised through such means as price and
rent controls on basic commodities, traders' licensing and
control of standards of service.
124. The development of tourism is of special interest to
the Government because it requires little or no subsidy, is an
important source of foreign exchange, itself needed for develop-
ment, and has a vast potential for growth. Present indications
are that a growth of 15 per cent per annum over the next several
years is well within reach. This potential must be realized and
the Government will do all in its power to see that this
happens. Because of the Government's interest, much of the
development in this field will involve close co-operation and
participation with private interests. The immediate aims in
tourism are to expand the capacity of lodges, to develop tourist
circuits within Kenya and East Africa, and to encourage tourists
to combine the pleasure of fishing, beaches and mountain
climbing with game viewing—Kenya's main attraction. The
long-term future of tourism in Kenya depends very much on
conservation and management of wild life according to scientific
principles.
125. A Department of Tourism will be created to establish
policies for the development of tourism, including the establish-
ment of standards of service and, if necessary, prices, the regu-
lation and inspection of the industry, the attraction of more
tourists to the country, and the co-ordination of tourism develop-
ment with neighbouring countries. Within the policies laid down
by the Department, the Kenya Tourist Development Company
to be established will undertake a major role in financing,
constructing and, in many cases, managing hotels, motels, lodges,
tours and transportation. Parks, tourist roads and wild life
management are Government functions.
TRADE UNIONS
126. The rights of industrial workers must be fully protected
as development takes place and much of this work can be left
to responsible unions. But the unions now represent only a
small minority of Kenya's adult population and they cannot be
 44

permitted to benefit these few at the expense of large numbers

of less fortunate brothers. Experience in all developing countries
has shown that in the interests of stability and good industrial
relations Government cannot permit the existence of more than
one central organization for trade unions in the country. It is
also desirable to have one central organization for employers.
127. The first responsibility of the unions must be to
develop a disciplined, skilled and responsible labour force. The
nation's welfare and that of the workers depend much more
on hard, productive work than on strikes and walkouts. Unions
must concern themselves with training programmes, apprentice
programmes, and workers' discipline and productivity. In addi-
tion, trade unions assisted by Government should take an active
role in organizing consumer co-operatives, generating savings
for development, promoting co-operative housing development,
initiating producer co-operatives and making workers aware of
their contribution to the development of the nation.
128. Strikes cost the nation output, the workers wages, the
companies profits and the Government taxes. Wages in excess
of those warranted by productivity increase the unemployment,
encourage the substitution of capital for labour, and lead to
bankruptcies. In order to avoid these drags on development,
legislation will be needed providing for the compulsory arbitra-
tion of major issues not resolved through the regular bargaining
process. Special legislation may be needed in sensitive industries
and the Government to avoid the economic paralysis that
could result from work stoppages in these areas.
129. The Government will assume the responsibility for
holding down the prices of basic commodities so that workers,
farmers and unemployed are not confronted with a rising cost
of living. It is notable that since Independence the Wage
Earners' Index has remained fairly stable. The Government
will also ensure that workers are not exploited, that safety con-
ditions are enforced, and that minimum wages are reasonable.
An important new provision for workers will be the National
Provident Fund.
CONSUMERS
130. In African Socialism, the Government has the duty
of protecting the interests not only of workers but also of con-
sumers, for these could be exploited by producers and importers.
 45

These will make it progressively more difficult for the wealthy to

become more wealthy and to pass on their wealth to members
of succeeding generations. At the same time the collection of
taxes will tend to translate private savings into public savings
conserving them for the development of the nation. It is notable
that the large individual accumulations of wealth in Western
countries were largely achieved before progressive taxes were
introduced or because of loopholes, such as permitting capital
gains to go untaxed. Such loopholes will be rapidly closed under
African Socialism.
43. It is recognized, however, that the mutual interdepend-
ence of national economies in the world today limits the
independent action of each. Extreme tax rates may simply
force capital abroad where rates are lower and at the same
time restrict the inflow of foreign capital needed for develop-
ment.
44. Complementary to this approach will be the effort to
ensure that where large amounts of productive assets must be
assembled to achieve economies of scale, the ownership of these
assets will be widely distributed. This effort will not apply, of
course, to foreign investors because the nature of ownership
abroad is of no significance in Kenya so long as foreign investors
abide by the guidelines laid down in the preceding section.
45. The methods used to achieve a diffusion of ownership
of large-scale enterprises include State ownership, joint ventures
by the State with private investors, co-operatives, companies and
partnerships. State ownership vests ownership in the people
generally providing for the utmost in diffusion of ownership and
permitting operation on a large scale. Joint ventures with private
capital give the State a large measure of control and at the
same time conserve the limited capital available to the State.
State or joint ownership and operation is desirable where general
services of major importance must be provided at low or sub-
sidized cost to citizens, firms, or farms.
46. Co-operatives have direct roots in African traditions but
their extensive use in the monetary sector of the economy will
involve greater discipline and training than has heretofore been
necessary. Those who share in the tasks of the co-operative or
who use its services share also in its benefits as the co-operative
belongs to them.
 46
The Government will not permit producers to make monopoly
profits through monopolistic and unfair marketing practices
such as sale of shoddy merchandise. Standards of quality and
quantity must therefore be enforced. Consumer co-operatives
should also be encouraged, and there seems to be a clear need
for such co-operatives in the major towns. Another measure
which the Government should not hesitate to use in case of
need is price controls on basic commodities, and rent controls
in urban areas. The importance of this lies in the fact that if
the country is going to save enough for the investment required,
the cost of living must be held down. It is also necessary to
hold down prices of basic commodities and rents in order to
ensure that increases in per capita incomes lead to higher
living standards instead of being dissipated through higher
prices of basic commodities and rents charged by a small pro-
portion of the population.
131. Special attention should be given to the marketing
boards operating in the field of agricultural commodities.
Hitherto, these boards have concentrated on safeguarding the
interests of the producers. Policies should be implemented with-
out delay to ensure that in their operations these boards do
not ignore the interests of the consumers.
132. The consumers, on the other hand, have the respon-
sibility of aiding development by avoiding conspicuous con-
sumption and extravagance. The country needs all the savings
it can get for development. It has therefore to be recognized
that we cannot raise our consumption levels to the maximum
and yet develop as rapidly as we desire. Higher consumption
levels can only be maintained in a framework of increasing
productivity, and- to achieve this productivity we have to raise
the level and volume of our investment.
PROVINCIAL BALANCE AND SOCIAL INERTIA
133. One of our problems is to decide how much priority
we should give in investing in less developed provinces. To
make the economy as a whole grow as fast as possible, develop-
ment money should be invested where it will yield the largest
increase in net output. This approach will clearly favour the
development of areas having abundant natural resources, good
land and rainfall, transport and power facilities, and people
receptive to and active in development. A million pounds
 47
invested in one area may raise net output by £20,000 while its
use in another may yield an increase of £100,000. This is a clear
case in which investment in the second area is the wise decision
because the country is £80,000 per annum better off by so
doing and is therefore in a position to aid the first area by
making grants or subsidized loans.
134. The purpose of development is not to develop an
area, but to develop and make better off the people of the area.
If an area is deficient in resources, this can best be done by—
(i) investing in the education and training of the people
whether in the area or elsewhere;
(ii) investing in the health of the people; and
(iii) encouraging some of the people to move to areas
richer in resources; and of course
(iv) developing those limited resources that are economic.
With education and training and some capital, the people
of a Province can make the best of limited resources. If the
potential for expansion is small, medical services, education and
training will qualify the people to find employment elsewhere.
135. If these ends are to be achieved, however, it is neces-
sary for the Government to develop a formula for grants-in-aid
and educational and health allocations that take into account
the needs and incomes of each province and district. Thus the
Government must ensure that all the people of the country
have minimum provision for the essential welfare services. A
policy of making education, training and health facilities avail-
able to all provinces on the same financial terms means that
the people of the less developed provinces are penalized simply
because they are already poor.
136. Today some of the provinces and districts that have
genuine economic potential remain underdeveloped simply
because the people will not acceptnew ways and the necessary
discipline of planned and co-ordinated development. In these
areas a concerted and prolonged effort to overcome prejudices
and suspicions is needed before development can take place.
Such efforts must be carefully organized and planned, and
implemented through Government and Party machinery.
 48
Strategy for Development
137. The policies outlined above pervade the plans con-
structed and now being revised for every sector of the economy.
The plans and policies for each of the sectors must, however,
fit into an overall pattern that represents Kenya's strategy for
development. The main lines of this strategy can be summarized
as follows: —
(i)To attack directly the two principal limitations on
growth, i.e. shortages of domestic capital and skilled
manpower, in order to increase the growth potential
of the nation.
(ii)To revolutionize agriculture in Kenya by developing
unused and under-utilized land through consolidation,
development credit, extension services and training
and the introduction of modern methods of farming
and marketing. Higher incomes in agriculture will
stimulate the development of commerce and industry
by-
(a) increasing the domestic demand for consumer
goods and services and agricultural supplies, and
(b) providing raw materials for agricultural process-
ing industries.
(iii) To develop industry as rapidly as opportunities are
created—first, the processing of agricultural, livestock
and forestry products and natural resources for
domestic use and export; second, production for
domestic demand in a progressively more fully
integrated manner. Tourism is our means of "pro-
cessing" our wild life resources and must have a high
priority.
(iv)To develop transport, power and marketing facilities
and other infrastructure in order to draw the entire
nation into the market economy and to lay the basis
for a rapid acceleration of industrial growth.
(v)To provide for a more equitable distribution of the
benefits achieved.
 49
The construction of plans for the several sectors have
been drawn up with this overall pattern in mind. As time passes,
of course, the order of priorities will change. In particular, as
the agricultural and infrastructure base grows, increasing
emphasis and capital will be directed toward industrial develop-
ment.
Planning and Control
138. There are two themes running through this paper—
the need to plan and control how resources are used. The
power to plan and the power to implement are central, features
of African Socialism. Planning is a comprehensive exercise
designed to find the best way in which the nation's limited
resources—land, skilled manpower, capital and foreign
exchange—can be used to promote the objectivities of every
individual, every firm, every farm, and every agency of Govern-
ment both central and local. Any activity that uses resources is
a proper subject of planning.
139. The important aspects of planning include physical,
social, financial and economic. Physical planning deals with
land use and layout, and locational, transport and design pro-
blems in both rural and urban areas; social planning is con-
cerned with welfare and social services, cultural development,
the modification of traditional attitudes, the alleviation of
social problems, self-help and community development; financial
planning involves the determination of government revenues,
recurrent expenditures and capital budgeting; economic plan-
ning has the task of organizing all of the nation's real and
monetary resources into a concerted and co-ordinated develop-
ment effort. None of these aspects of planning can be carried
out without close co-ordination with the others even on
apparently routine matters. The currently pressing problems of
self-help schemes being initiated and promoted without
co-ordination with the development plan is an example of
planning failure; many municipal and even district projects are
not incorporated in the development plan; and the independent
solicitation of external funds by various ministries may simply
reduce the total foreign aid Kenya receives. No organization
can operate efficiently so long as its right hand does not know
what its left hand is doing. Planning cannot be done effectively
unless every important activity is accounted for and every
important decision-maker involved.
 50
140. The implementation process must be equally per-
vasive. That is why so much of this paper has dealt with the
kinds and varieties of controls needed to make sure that plans
are carried out in every sector. Once controls are designed and
procedures devised for administrating them, every economic
decision-making unit in the country—farm, company, co-opera-
tive, local authority, ministry, department, union and worker—
should be aware of planning and its place in preparing and
implementing plans.
141. The discipline of planning is not something to be
accepted lightly or shrugged off as unnecessary. If planning
itself is not to be a waste of resources, discipline must be firm
and enforced. And discipline is not simply something that the
Government imposes on the private sector. It is also a discipline
that Government imposes on itself at every level and in every
ministry. With planning, no ministry is free to act as an undisci-
plined, unrestricted entrepeneur promoting funds and projects
to maximize the status of the ministry. Instead all must accept
the discipline of planning and join in maximizing the resources
available for development, determining the best use for these
resources, and ensuring that resources are in fact used as
planned. If DISCIPLINE is rejected, so is planning and with
it—African Socialism.
Policy Considerations
142. The following policies are representative of the appli-
cation of African Socialism to planning in Kenya: —
GENERAL
(1) The economic, social and political development of
Kenya will be guided by and based on African Socialism as
defined in this paper,
(2) Controls on use of resources will be selected and
designed to promote the African tradition of mutual social
responsibility in Kenya's development.
(3) Our development planning will ensure that the public
and co-operative sectors grow rapidly to embrace a large
enough section of our economy to establish a socialist basis
for future development.
 51
(4) The discipline of planning is recognized by ministries
and local authorities as necessary to the efficient and co-
ordinated mobilization of resources for development.
(5) Planning will be extended to provinces, districts, and
municipalities, so as to ensure that in each administrative unit
progress towards development is made.
NATIONALIZATION
(6) Nationalization, since it does not always lead to addi-
tional resources for the economy as a whole, will be used only
where the national security is threatened, higher social benefits
can be obtained, or productive resources are seriously and
clearly being misused, when other means of control are ineffec-
tive and financial resources permit, or where a service is vital
to the people and must be provided by the Government as a
part of its responsibility to the nation.
AFRICANIZATION
(7) Foreign enterprises will be informed that the aim of
the Government is Africanization of the economy, and they
should therefore initiate or accelerate training and apprentice-
ship programmes so that Africanization can be achieved
rapidly in all sectors of the economy (if this policy does not
secure the required co-operation, suitable legislation to enforce
the policy will be considered).
(8) In promoting Africanization, citizenship guarantees as
outlined in our Constitution will be recognized and maintained
but without prejudice to correction of existing racial imbalances
in various sectors of economy.
(9) In planning Africanization schemes, the overwhelm-
ing need for higher rates of growth will be kept in mind; thus
Africanization will be pursued within the context of growth
and expansion and providing Africans mainly with new assets
instead of mere transfers.
(10) A system of traders' licensing will be considered to
restrict certain types of trade and business to citizens with a
deliberate bias, in the case of new licences, in favour of African
applicants.
 52
WELFARE SERVICES
(11) The bulk of Government development expenditure
will be channelled into directly productive activities in order to
establish a foundation for increased and extended welfare
services in the future.
(12) Immediate steps will be taken towards family plan-
ning education, because the present high rate of population
growth makes extensive and intensive provision of social
services more expensive, the unemployment problem more
intractable, and saving for development harder than need be—
thus lowering the rate of economic growth.
(13) The National Provident Fund and National Health
Insurance will be established as soon as possible.

DOMESTIC SAVING
(14) Compulsory saving is necessary for rapid growth and
means to make it effective will be investigated.
(15) Instruments for voluntary saving (for example, savings
bonds designed to finance home ownership or university educa-
tion) will be made more varied and advertised more vigour-
ously.
(16) Lotteries and gambling pools will be nationalized or
strictly controlled by the Government in order to ensure that
gains from these sources are invested in Kenya.
(17) Foreign lotteries and gambling pools will be outlawed.
(18) Banks, insurance companies and other financial institu-
tions will be subjected to greater control, particularly with
respect to investment abroad.
(19) A central bank, whether for Kenya or East Africa,
will be established without delay.
(20) Businessmen in Kenya, many of whom are Asian, who
have sizeable amounts of liquid assets will be encouraged to
invest their savings either in their own enterprises or by making
loans to such development agencies as the Industrial and Com-
mercial Development Corporation, and the Kenya Tourist
Development Corporation or to the Government itself.
 53
TAX STRUCTURE
(21) The tax structure will be reconstructed progressively
with a view to raising the levels of Government revenue,
domestic savings, and private investment in the economy; while
also eliminating the outflow of funds through investment in
foreign countries, modifying the distribution of income and
wealth, and influencing the pattern and methods of produc-
tion and consumption.
(22) Direct taxation on people with extremely low incomes
will be progressively abolished and the revenue sacrificed
replaced by property taxes.
(23) The newly authorized Industrial Protection Committee
will examine our system of industrial incentives and protection
and recommend changes that will promote employment,
encourage investment and eliminate excessive protection.
(24) Idle resources and undeveloped land will be taxed in
ways designed to encourage efficient use and development.
SELF-HELP
(25) Self-help schemes will be planned and controlled to
ensure that they are consistent with our national development
plan and that the manpower and recurrent cost implications of
these schemes are reasonable.
AGRICULTURE AND LAND TENURE
(26) Emphasis will be given to the development of agricul-
ture in former African areas through land consolidation, regis-
tration of titles, development loans, co-operatives, and extension
services.
(27) A working party will be established immediately to
consider and recommend on forms of land tenure throughout
the country.
(28) Land management legislation, including punitive
measures against those who mismanage farms, misuse loans,
default on loans, refuse to join major co-operative farming
schemes where these are necessary, or oppose land consolida-
tion, will be introduced and strictly enforced.
(29) Agricultural land will not be sold to non-citizens
unless approved by Government.
 54
(30) The organization and functions of marketing board,
will be re-examined with a view to consolidating their activities
and modifying their functions to promote the welfare of con-
sumers as well as producers.
(31) Priority will be given to producer co-operatives in
making future agricultural development loans.
CONSERVATION OF NATURAL RESOURCES
(32) Specific policies will be formulated to conserve natural
resources, including wild life, and the people will be fully
informed of their role in conservation.
(33) Physical planning will be extended to district and
rural areas and fully co-ordinated with development planning.
EDUCATION, TRAINING AND EXPERIENCE
(34) Control of education (whether general or vocational)
and educational institutions (whether community or individually
owned) will be vigourously enforced in order to ensure uniform
standards and to relate educational development to the needs
and resources of the country.
(35) The development plan for University College, Nairobi,
will be fully integrated with the Development Plan for the
nation and in particular the needs of the economy for high
level manpower will be fully considered, university facilities
will be modest in construction and efficiently utilized, and
student /faculty ratios will be reasonable.
(36) Measures will be introduced for guiding students into
needed lines of university education and upon completion of
university work into appropriate employment.
(37) Training (in-service, on-the-job, apprenticeship, etc.)
will be stepped up in all sectors of the economy in order to
meet the manpower shortage the country faces and to produce
people who are directly employable.
(38) A commercial training and apprenticeship programme
will be devised and implemented without delay.
(39) A training school for hotel, restaurant and lodge
managers and workers will be established.
 55
(40) A co-operative school will be established to train
people in the fundamentals of producing, marketing, retailing,
and consumer co-operatives.
(41) Because of the serious manpower shortage, qualified
and suitable expatriates will be retained and more recruited
when necessary, but without prejudice to the Africanization
programme.
PUBLIC UTILITIES
(42) Greater control of privately operated utilities, notably
of urban and cross-country surface transportation, will be
undertaken, and investigation will be initiated as to whether
or not bus transportation in Mombasa and Nairobi should be
taken over by those local authorities.
(43) An investigation will be made of whether or not the
East African Power and Lighting Company should be
nationalized.
INDUSTRY, COMMERCE AND TOURISM
(44) A working party, already agreed in principle, will be
set up to recommend on the functions and method of operation
of the National Trading Company and on the initiation of con-
sumer co-operatives.
(45) A State Construction Company will be established.
(46) The cost and feasibility of implementing bilateral
trade and aid agreements in non-convertible currencies will be
carefully considered before implementation proceeds.
(47) Measures will be investigated for controlling monopoly
profits, discriminatory prices and unfair marketing practices,
(48) The staff and capital resources of the Industrial and
Commercial Development Corporation will be greatly increased.
(49) Legislation for the control of rents and the prices of
basic commodities will be introduced immediately.
(50) The Department of Tourism and the Tourist Develop-
ment Corporation will be established without delay.
 56

TRADE UNIONS AND EMPLOYMENT

(51) Government will assist trade unions to become
involved in economic activities such as co-operatives, housing
schemes, training schemes, workers' discipline and productivity,
and in general, to accept their social responsibilities.
(52) In order to avoid abuses of union power, legislation
will be introduced providing for compulsory arbitration of
major issues not resolved through the regular bargaining pro-
cess, together with any other measures that may be needed to
prevent strikes.
(53) In the interest of economic stability and good indus-
trial relations, one central organization for all trade unions,
and another for all employers, will be established.
(54) A revision of the statutory wages machinery will be
undertaken with a view to establishing a sound wages policy
for the future.
(55) Government will continue, in co-operation with
industry and workers, to seek short-term measures for the relief
of unemployment.
CONSUMERS
(56) The interests of consumers will be adequately repre-
sented in determining prices, standards of quality and quantities
of production of basic commodities.
LESS DEVELOPED AREAS
(57) Every effort will be made to ensure that equal oppor-
tunities are provided for people in less developed parts of the
country.
(58) In the expenditure of public development funds, the
needs of less developed areas will be given special consideration.