www.sacw.net | 25 November 2006
India on 20 cents a day
The fine print in the reporting of global poverty estimates
by Aseem Shrivastava
The World Bank - which has to be applauded for having made the first such attempt –
started making international comparisons of poverty only about two
decades back. For obvious reasons of convenience it developed two
simple notions of poverty. The US Treasury being the power behind the
institution, and the dollar being the reserve currency by design, the
lower poverty line was set at $1 a day per capita. Those below it were
considered to be "the poorest of the poor". The upper poverty line was
set at $2 a day. Those living on $1-2 a day were still poor, but not as
badly off. The updated numbers today, corrected for inflation, are
$1.08 and $2.15.
The vagaries of purchasing power (dis)parities
However, there was a problem. It was realized that $1 goes much farther
in purchasing necessary items of consumption in a poor country compared
to a rich one. (Moreover, exchange rates do not take into account
non-traded goods.) Using prevailing exchange rates, Rs.45 can buy more
in India than $1 can in America. So unless it was corrected for the
lower cost of living in poor countries – enabling access to a
bigger amount of real goods for the same amount of money – this
measure of poverty was likely to give an overestimate of the number of
poor people living in absolute poverty. To make purchasing power across
countries comparable, economists developed what is known as the PPP
(purchasing power parity) index. Taking into account the lower cost of
living in impoverished countries, a conversion factor is now applied to
market exchange rates to calculate what is minimally necessary to
survive there.
Using widely quoted World Bank numbers on GDP, this conversion factor
for a country like India (2005) can be computed to be approximately
5.3. This means that $1.08 a day in India should effectively imply a
purchasing power of about 20 cents a day to an American – or
indeed anyone – unacquainted with the nuances of PPP
calculations. However, given how the numbers are quoted everywhere, the
dominant impression that is conveyed is that the poor are living on
less than $1 or $2 a day when, in fact, it would be enormously more
accurate, as far as everyday English is concerned, to say that the poor
are living on less than $0.20 or $0.40 a day. The reason why this is
not done is obvious: it would give an even more alarming picture of the
scale and depth of poverty across this enormously wealthy world. Most
decent people are shocked enough by the understated numbers in the form
they are widely quoted. More reality would numb and paralyze even the
grittiest of activists. "Humanity", T.S.Eliot wrote, "cannot bear much
reality." He had the privileged in mind.
The most recent World Bank estimates for India are based on household
surveys carried out in 1999-2000. It was found that almost 80% of
purported superpower India's population was surviving on less than
$2.15 a day (in PPP terms). That is, about 800 million people were
living on $0.40 a day or less. Nearly 35% (350 million) were found to
be living on $0.20 a day or less. Even if the proportion of poor people
has fallen somewhat during the past 5-6 years, the absolute numbers
would not look too different today.
I have asked several non-experts abroad who have traveled to India, and
are thus somewhat familiar with market exchange rates, how they
interpret the $1 a day or $2 a day figure. The answer is: literally. In
other words, they think that really poor Indians (35% of the
population) live on less than Rs.45 and less poor Indians (another 45%
of the population) live on between Rs.45-90 a day. In their imagination
that is bad enough for Western countries to send aid to poor countries.
However, if their belief was in fact correct then (assuming Rs.20 a day
to be the minimum needed to supply the 2200 calories of food intake
– and minimal nutrition - that agricultural economists and the UN
take to be the survival norm appropriately averaged across age groups,
locations and kinds of labor) at least the additional 450-500 million
who would be living in the Rs.45-90 a day range would be well out of
poverty. In fact, a substantial proportion of the people living under
the lower poverty line would be out of poverty too. There might perhaps
remain some 50 to 100 million poor, malnourished Indians whose
long-term welfare could easily be looked after by the prosperity all
around.
Not only would Indian politicians, government officials, businessmen
and heir consultants be jumping out of their seats in sheer disbelief
that their superpower fantasies may actually be realized, but if this
state of affairs was representative of the impoverished world as a
whole, the World Bank would be out of business, their achieved goal of
a "world free of poverty" having ironically led them there!
Sadly, the reality is closer to "a world free of the poor". Thanks to
the subtleties of PPP calculations it may quite possibly be the case
that the number of people across the world who are not able to meet the
minimum standards for adequate nutrition is anywhere from 3 to 4
billion, rather than the officially estimated 2.7 billion who are
estimated to be living under $2 a day. No one really knows. In other
words, we could all be off by a whole continent!
Some experts in the field, such as Sanjay Reddy of Columbia University
or Robert Wade of the London School of Economics advise deep skepticism
about prevailing official estimates, especially of alleged changes
thereof on account of globalization. Wade advocates that "the political
economy of statistics" is crucial and argues for greater competition in
the market for the generation of international poverty data, so far a
de facto monopoly of the World Bank. No free market there! There is
intense debate among economists and policy-makers as to just how much
poverty there is in the world and whether it is going up or down with
globalization. According to one expert Angus Deaton, "it seems
impossible to make statements about changes in world poverty when the
ground underneath one's feet is changing in this way."
Where do the World Bank experts go wrong? A few of them are even known
to this writer, and are reliable people of otherwise unimpeachable
integrity. Being a drop-out economist myself I appreciate the trials
and tribulations of the economists and statisticians at the World Bank
who compute the numbers on poverty. It is a harrowing mine-field of
data they must negotiate on a daily basis in order to arrive at the
sort of numbers the world and its policy-makers are interested in. The
challenge of measuring poverty and the (changes thereof) accurately, in
a world as diverse, complex and dynamic as ours, is immense. But after
decades of effort by trained statisticians it should have become
possible by now to arrive at somewhat reliable numbers.
The problem is, at bottom, be political, rather than one of expertise.
The very fact that when making comparisons between enriched and
impoverished countries, all monetary magnitudes have to be inflated
significantly to get a sense of real values in the poor world should
have been a matter of great ethical concern to economists, something to
make them wonder as to how things got to this point. In a world of
markets stretched across mountainously uneven playing fields, pricing
is determined not so much by the real costs (to human labor and to
nature) incurred but by historically determined economic forces like
the willingness and ability to pay. Typically, the latter are shaped in
profound ways by legacies of inequalities in wealth and power which
mainstream economists are trained to avoid taking into account while
preparing their advocacy of "free" markets. In the real world, as
against the general equilibrium models microeconomists are schooled in,
few things are as politically shaped and formed as the structure of
relative prices. In particular, the price of labor – wages
– is almost entirely a matter of bargaining, as also, we are
realizing, the price of utilizing nature.
Moreover, in our increasingly packaged consumerist world even global
poverty figures must ultimately arrive in a wrapping that is not
unpalatably unattractive to the public. Trickle-down will ultimately
work, we are repeatedly assured by growth economists. But like the late
John Kenneth Galbraith is said to have remarked acerbically, faith in
trickle-down is a bit like feeding race horses superior oats so that
starving sparrows can forage in their dung. All indications, especially
in parts of the world like rural India, are that a decade and a half of
corporate globalization has left undernutrition and malnutrition all
but intact, and might quite possibly have worsened the predicament for
many millions.
Numbed (by the numbers)
In a world which has been brought up to regard numerical precision as a
sign of scientific rigor, it easily gets forgotten (especially by
mainstream economists) that poverty is not merely a matter of numbers.
Numbers can only tell us about what the experts call "income poverty".
Modern standards of living involve large amounts of intangibles and
social consumption, known to economists as "public goods": drinking
water, public sanitation, health and education are only some of the
services which people in rich countries take for granted because they
have been traditionally guaranteed by the state (though in recent years
private corporations have queued up, often successfully –
especially in impoverished countries – to take control and
possession of these services). When these are taken into account it
becomes clear that what the experts call the "poverty line" is actually
more accurately labeled "starvation line", as some people will have it.
Many Indian economists have been advocating a serious upward revision
of the poverty line in order to get a better grasp of the economic
reality.
Economists have tried to remedy the situation by evolving during the
last few decades the Human Development Index (HDI), calculated and
issued by the UNDP every year. It tries to take into account life
expectancy (as an indicator of health) and levels of adult literacy and
enrolment (as indicators of education), apart from considering per
capita incomes. It is certainly an improvement over raw numbers for
poverty. And yet, if India's HDI is 0.63 and Norway's is 0.96, busy
eyes will be tempted to conclude that Norwegians live only one and a
half times as well as Indians! The crushing quality of human poverty in
a cruel world simply cannot be captured by numbers like this. Nor can
the enormity of the environmental damage from deregulated industrial
growth be captured, as the World Bank tries to do, in its Little Green
Data Book, by just offering estimates of greenhouse gas emissions,
depletion of forest cover and a few other measurable magnitudes. The
ecosystemic effects of runaway industrial growth – the damage
done to climatic balances for instance – are possible to observe
now, but not as easily quantified. There are exponential and synergetic
changes taking place – for the worse – which might take the
best informed experts by surprise.
Perhaps, we would do well to remember Einstein's counsel: "Everything
that can be counted does not necessarily count; everything that counts
cannot necessarily be counted." The poverty measurement industry loses
much sleep and sweat over details that do not matter much. The big
picture, perhaps unsurprisingly, is inaccurately reported. The
propaganda efforts of governments and corporations succeed in the end
in keeping some of the more terrible effects of prevailing economic
policies from clear public view, undermining democratic transparency
and potential accountability.
Rather than get drowned in swirling oceans of data, we might look for
the prominent ridges on the gyrating currents of the monetized economy.
However, it is then important to locate them precisely and, crucially,
label and flag them accurately. Busy readers don't have time to
interpret the fine print. And public patience with economists wears
thin.
We only count and measure what is useful, important or interesting. By
measuring we indicate that we care about what is measured. The score on
poverty, especially if it is shameful, is worth keeping, if only to
remind us of the extent of the failure of globalization not merely to
change the lives of the poor but perhaps in turning them for the worse.
(If China has lifted tens of millions of families out of poverty, the
secret of their success lies in the years and decades preceding
globalization – in the early 1980s rural reforms were carried
out, among other things, granting access to land to the rural poor.
Besides, the strong foundations of the social infrastructure –
education and health – were laid down in the era of communism.
Globalization has only allowed the country to reap the harvest of
pre-existing investments better.)
If global poverty statistics are not disseminated accurately, the facts
on the ground will only get worse – thanks to misinformed
policy-making among other things – and will one day command
dreadful obedience from one and all. The rulers of the day risk the
implications of Colin Powell's faux pas a few years back - of boasting
that the number of dead Iraqi civilians did not interest him very much.
And the potential consequences across the globe could be as
catastrophic as what Iraq is experiencing today.
Aseem Shrivastava is an independent writer. He can be reached at aseem62@yahoo.com
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