This marvelous book is a history of the hardest thing to explain: why something did NOT happen. Histories of non-events are inherently difficult to write because of the methodological commitment of historians to stick close to documentary sources, and things that don’t happen rarely leave behind an obvious documentary trail.
In this case, the non-event that Samuel Moyn describes in his new book is the institutionalization of a political ethic of material egalitarianism. And the way he writes this is in the form of an intervention into two huge historiographical debates, the first on the history of human rights (a field whose essential contours he defined with his book The Last Utopia) and the history of neoliberalism. The puzzle he seeks to explain is: how is it that the the era of neoliberalism, commonly said to have begun in the mid-to-late 1970s, coincides almost perfectly with the triumphant rise of a discourse of human rights? In other words, how is it that an era whose ethical self-conception was rooted in a transnational movement to prevent abuses such as torture, disenfranchisement, and political imprisonment was also the era in which national and global economies were remade in ways that have allowed wealthy capital owners to capture the large majority of the productivity gains the economy has experienced, and as a result has created in-country inequalities not seen since the height of the late 19th century?
To answer this question, he goes back to revisit the scene of what he deems another historiographical crime, namely the claim that the 1940s were the great era for the rise of human rights, centered on the Universal Declaration of Human Rights (1948). Before The Last Utopia, historians had often declared the UDHR to be the opening salvo of the modern human rights era, the great declaration of transnational hopes for a more just postwar world that would unfold over the coming decades — a cornerstone of “A New Deal for the World.” The central project of The Last Utopia was to debunk this claim, marking the 1970s rather than the 1940s as the great moment for the flowering of human rights. Moyn’s case for and explanation of the 1970s moment turned essentially on the collapse of the socialist ideal, and his claim was that dreams of human rights more or less backfilled the failed dream of socialism in the wake of the “global 1968.” Certainly he showed compellingly that nominally the 1970s were an inflection point for the rise of human rights, and fingering the failure of socialism as the morally responsible party was a compelling and clever answer.
There were several puzzles and problems that emerged out of this interpretation however, as the heated and field-defining subsequent debate over The Last Utopia revealed. The first concerned the status of the 1940s human rights moment. Moyn had more or less dismissed that moment as a dead letter — and been even more scoffing towards claims that attempted to site the origins of human rights discourses even earlier, in the eras of the French and the American revolutions. Yes, there had been a discourse of rights during the 1940s, Moyn argued, but this had been a vague and broad discourse that enumerated a grab bag of different forms of rights, including collective rights and individual rights, social rights as well as political rights, positive rights (“to” things) as well as negative rights (“from” things) — and had been largely ignored by policy makers and academics alike. The form of human rights discourse that in the 1970s eventually “broke through” (the title of an volume Moyn co-edited) were specifically a form of human rights that was much narrower than the woolly conception of rights that had been discussed around the UDHR: exclusively about individual political rights to be free from certain kinds of largely physical abuse at the hands of the state. Moyn’s argument strongly suggested that this truncated and focused version of human rights that eventually stormed the world stage and global moral imaginary did so in part because it served the geopolitical purposes of one of the two superpowers at that point in time. In this sense, while Moyn debunked the claims of fans of human rights that they were heritors of a venerable intellectual and moral tradition stretching from the U.S. Declaration of Independence through abolitionism and anti-genocide, he did at least confirm (albeit somewhat sardonically) their claims that the Helsinki Accords (1977) were a crucial moment for swaying the moral argument between the West’s form of liberal capitalism and the East’s form of dictatorial collectivism.
The second historiographic puzzle emerged in part out of the enormous growth of interest in the historical rise of neoliberalism and inequality in the wake of the 2008 financial crisis and the publication of Thomas Piketty and the Paris School’s own field-redefining empirical data about the historical patterns of in-country inequality over the last two centuries. Piketty and Co’s work, which was rooted in a huge data sets providing time series of national inequality, revealed that the middle third of the twentieth century were a rather unique moment in the history of economic distribution, when across the North Atlantic industrial core, wealth and income inequalities narrowed dramatically. Inequality had been huge and growing throughout the 19th century, Piketty showed, had been enormously compressed in the first half of the twentieth century by the dual factors of wealth destruction in wartime and the redistributionist policies imposed by postwar welfare states. Starting in the 1970s, however, in all countries income and wealth distribution began to reassert itself, and despite national differences and a whole series of business cycles, has inexorably proceeded now for nearly half a century.
Not Enough inserts itself into these questions by moving Moyn’s gaze from the 1970s back to the 1940s, asking a rather peculiar, negative (and this fiendishly difficult to answer) question: why, in that great postwar moment of national solidarity and debt to the war fighting working classes, as national welfare states were vastly expanded, did an ethos of equality NOT get formalized in virtually any country? And here Moyn introduces the key distinction on which the book rests, between two different ethical principles that apply across a whole series of different domains, notably both economics and politics, namely: an ethos of equality versus an ethos of sufficiency. An ethos of equality asserts that a just moral order depends on everybody more or less have the same amount of the key “good things in life,” including material goods, but also things like dignity and political power. By contrast, an ethos of sufficiency is unconcerned with relative endowments, and is only concerned with making sure that every individual meets some minimal threshold with respect to the good in question.
Moyn’s essential point is that the discourse on human rights in the 1940s was blurry on this distinction — again, Moyn attempts to explain an intellectual non-event. While there were certainly some intellectuals arguing explicitly for egalitarianism — the socialist politician and intellectual Harold Laski is the quiet hero of the book — Moyn argues that part of the motive for building welfare states was quite precisely to avoid directly confronting the sufficiency-v-equality conundrum by raising the minimum floor so high that the differences between the worst and best off would be if not irrelevant then at least politically neutralized. The failure to establish equalitarianism as the ethical basis of the welfare state at the moment of its creation, however, left the door open for the vengeful return of inequality starting in the 1970s. The discourse of human rights were simply, as his title says, not enough to hold back the eventual economic revanchism of the financialized and globalized capitalism that would emerge in the last quarter of the twentieth century.
Of course, it’s hard to blame people in the 1940s for failing to foresee what would happen thirty years later. But the point is that human rights were fundamentally unhelpful not just for defending egalitarianism later but even for justifying the original postwar welfare states. The builders of postwar welfare states simply were unconcerned with questions of human rights, because the available discourse on human rights was not very useful to their purposes. Yes, the (largely collective and positive) social and economic rights enumerated in the UNDR (which would be ignored by the 1970s champions of individual and negative political rights) resonated with the welfare-state-building ambitions of the postwar period, but were largely ancillary to them. Few of the builders of these welfare states made reference to human rights as a justification for the institutions they were building.
As Moyn argues, this evasion is a crying shame, since the failure to formalize the egalitarian ethical foundations of the welfare state in the 1940s left the door open to the rise of inegalitarianism later, starting in the 1970s. Yes, minimum material standards would continue to be met in most places — social housing, primary and secondary education, basic health care, pensions, and so on — but these remained stuck at a low level even as wealthy disparities were allowed to grow, and the emergent rich began to use their riches to acquire for themselves much nicer, private versions of these goods: expensive and thus exclusive private schools, expensive and thus exclusive private transportation networks, expensive and thus exclusive private health care systems, and so on. And as the wealthy opted out of the public and collective institutions, into their bespoke private institutions, what had once seemed “sufficient” increasingly has become seen as “minimal” (at best).
To take one example: the quality of public school educations, as measured by the learnings and skills most people leave there with when they leaving, may not have gotten worse in absolute terms since the 1940s, but it hasn’t necessarily gotten much better either — even as the wealthy have moved their children into private schools with much smaller class sizes, better equipment, and far more personalized attention. Given the importance of education for success in the knowledge economy, these disparities of outcomes then reinforce class distinctions. This adverse election dynamic is well known, and Moyn’s acute point is that human rights discourse as we know it in its post-1970s form has literally nothing to say about it.
The rise of the welfare state in the 1940s is thus the event that marginalizes the UDHR at that moment. For Moyn, the “rediscovery” of the UDHR in the 1970s is thus a rather ironic event, especially as those who embrace it at the moment, claiming that their own activities draw on it, do so even as they ignored the baggy references to social and economic rights. (This is a not uncommon pattern among those who claim new “rights” to things in the present with reference to “original” texts; consider the contemporary American proponents of an individual right to carry military weapons cite the second amendment of the U.S. constitution, but blithely ignore the part about “a well-related militia” and the justification of the right as a way to avoid the evil of a standing army.) If Moyn in The Last Utopia dismissed the UDHR in the 1940s as a dead letter, in this new book he actually re-valorizes it for its commitment to distributive justice, even as he continues to insist that this most valuable part of the UDHR was essentially ignored both at the time of its publication in the 1940s and by those who resucitated it in the 1970s as a statement of individual political liberties. In this reading, the UDHR is recast from a marginal irrelevance to a tragically misunderstood figure.
Moyn’s book is an intellectual history, primarily, and spends little time on the technical details of the growth of inequality, but if he had it might have suggested some additional factors that need to be accounted for in the explanation of the non-attention of most human rights organizations to questions of equality. For example, while Piketty and Co’s work has documented the inexorable rise of in-country inequality, the work of Branko Milanovic has emphasized the arguably just as important compression of between-country inequality that has also unfolded during the period of neoliberal ascendency since the 1970s. In other words, while the rich have everywhere gotten richer than their countrymen, globally there has been a kind of economic convergence, as the poorest countries have caught up to rich ones.
Moyn largely ignores this story, and indeed explicitly sets it aside. His normative frame of reference is the national welfare state that, as he says, are “the sole political enterprises that, to date, have ever secured a modicum of distributional equality, in particular constraining the dominance of the wealthiest.” (7) In a sense, Moyn is asking why the welfare state failed to provide a barrier against the reemergence of vast economic inequalities, and also implicitly pleading for the possibility that contemporary welfare states might be resuscitated if not outright reinvented on the basis of an at last explicitly egalitarian rather than sufficientarian basis. But is the national welfare state, with all its inevitable exclusion on the basis of racial and gender hierarchies (which Moyn forthrightly acknowledges) really the only or even best basis for an egalitarian politics for the 21st century?
To develop a better form of egalitarianism, one that acknowledges that fact that our economies in the third decade of the 21st century are no longer national but are profoundly global in scope and connection, perhaps we need to revisit another set of intellectual possibilities that emerged in the protean postwar moment of the 1940s, namely the idea of a world government. Arguable the key barrier to an effective redistributionist politics for the 21st century is the ability of capital to flee any state that takes redistribution seriously for a more capital-friendly jurisdiction. Shutting down tax havens and offshore banking would be a good first step, but without a set of global institutions, any egalitarian projects at a local level are likely either to reinforce inequalities at a global level (e.g. the Nordic countries, which are country clubs masquerading as sovereign states, and impose the equality of the gentleman’s club on their members, rooted in exclusion of outsiders) or to be felled by the flight of the resources that need to be redistributed to friendlier climes.