2006
United Nations Development Programme T he international development community has had poverty in focus for more than a decade. At summit meetings and other occasions, world leaders have stated and reconfirmed their agreement that poverty must be reduced and eventually eradicated. The political commitment is a necessary, but not sufficient, condition for this to happen. Analysts, policy-makers and practitioners need appropriate concepts and dedicated measures to enable progress from rhetoric and general policy statements to action and results on the ground. In this issue of IPC's journal Poverty in Focus we present ten articles intended to throw light on the question of how best to define and measure poverty. Robert Chambers outlines five clusters of meanings and reminds us of the importance of the analysis and views of poor people themselves and their many meanings. When they get to express their views, we get a case for changing language, concepts and measures in development. The key issue is whose reality counts-theirs or ours? Peter Townsend provides an historical perspective of the poverty concept and the setting of poverty lines. Three poverty concepts have evolved, based on ideas of subsistence, basic needs and relative deprivation. Since material needs are socially determined, we need a new international poverty line based on what is required in different countries to surmount material and social deprivation. Sakiko Fukuda-Parr describes the multidimensional poverty measures developed by UNDP's Human Development Reports since 1990, especially the Human Poverty Index (HPI). It shows a large spread of human poverty among countries with similar levels of income poverty and thus, HPI is only weakly correlated with income poverty. Recent HPI trends are also presented and discussed. Caterina Ruggeri Laderchi, Ruhi Saith and Frances Stewart analyse empirical evidence to see if and why the definition of poverty matters. They also report on field testing in two developing countries of four different approaches. These are shown to have different implications for policy and also for targeting, since they identify different causes and effects of poverty, and different people as being poor. Gustav Ranis, Frances Stewart and Emma Samman review the various listings of human wellbeing and poverty elements, thus identifying a comprehensive set of dimensions in order to empirically explore whether UNDP's Human Development Index is adequate or needs to be supplemented. They show that assessing human development fully requires a broader set of indicators. Peter Edward outlines a moral concept of absolute poverty and defines an Ethical Poverty Line derived from globally standardised and ethically justifiable wellbeing indicators. Applying it to actual income data shows that world poverty by a moral definition is much larger than by current measures, and so is the required global income redistribution. Lord Meghnad Desai finds the definitions of absolute poverty static, calorific, asocial and atheoretical. He proposes a new poverty line to be based on the need to maintain individual labour capacities intact, thus connecting to health, nutrition and monetary measures. Ravi Kanbur considers the conundrums of measuring poverty when populations change and analyses three population size scenarios-increased, decreased and unchanged, but with churning around the poverty line. He delivers some remarkable points to consider. Nanak Kakwani proposes a multidimensional poverty concept that is causally linked to command over economic resources. He argues for an income poverty line that reflects the cost of achieving basic human needs. Sabine Alkire in response to Kakwani argues that it is not the cause of poverty that matters, but what is actionable by public policy. There are many ways to measure capability deprivation. The debate ends, for now, with a rejoinder by Kakwani. We wish you an informative and valuable reading of this issue of Poverty in Focus.