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By Paul Crist
December 18, 2010
According to the first ever Human Development Report for Latin America and the Caribbean, “Acting
on the Future: Breaking the Intergenerational Cycle of Inequality,” published by the United Nations
Development Program (UNDP) in July of 2010, the region is the most unequal in the world. Ten of
the fifteen countries with the highest levels of inequality are in Latin America and the Caribbean (LAC).
According to the report, inequality in the LAC region is 65% higher than in high-income countries,
36% higher than in Asia, and 18% above Sub-Saharan Africa.1 Not only is the region the most unequal,
the inequality is persistent from generation to generation and characterized by low social mobility that
has led to an “inequality trap” that is difficult to break.
Coupled with, but distinct from poverty, inequality poses obstacles to progress in human development
and democratic stability. Lack of equality of opportunity and empowerment lead to marginalization,
oppression, and domination. Women, indigenous groups, sexual and gender identity minorities, and
African-descended populations are particularly vulnerable.
Because inequality negatively affects nearly every aspect of social organization, it remains the LAC
region’s greatest challenge. It is a complex issue with many dimensions beyond mere inequality of
access to goods, services, and income. Inequality of opportunity and life choices; inequality in
education, health, and other indicators of human development; inequality in terms of political
involvement and influence; and other dimensions all matter. Inequality is the product of a combination
of factors. It cannot be explained by one cause, or redressed by a single solution.
2
One cannot discount the traditions, dating back to origins on the Iberian Peninsula, of bureaucratic-patrimonialism,
corporatism, centralism, and authoritarianism in influencing modern Latin American governance. The church and
military have been virtual fourth and fifth “branches” of government pre-dating the development of the Spanish and
Portuguese nation-state, and those traditions affect the formation and functioning of democratic institutions today in
the LAC region. There is also a “mystique of liberation” that runs through LAC societies. Despite historical evidence
that revolutionary liberation has almost invariably led to oppression, LAC societies have repeatedly sought deliverance
through heroes rather than the slow, difficult work of democratic institution building. Democratization is a complex
and ongoing process, affected by historical and current conditions. Nonetheless, inequality throughout at least the
th
20 century cannot be underestimated as a major influence in the failure of democratic institution building in the LAC
region.
The UNDP report concludes that it is possible to reduce inequality and the negative sociopolitical
effects related to it. Recent studies by the World Bank and the Inter-American Development Bank
have shown that Latin American inequality is exacerbated by poorly planned and executed taxing,
spending and redistributive policies. Europe does more redistribution, through various income transfer
policies; and the U.S. has more progressive taxation policies. Both are more equal after accounting for
government policies, while in LAC, the reverse is true. LAC inequality is higher after accounting for
government programs.
If inequality is rooted in public policy, it can be redressed by efficient public services redirected to the
poor and marginalized. Sustainable programs and policies will require buy-in from elites, who must
bear the burden of progressive and effective tax administration that will support effective public
spending. This would require the emergence, via strong center-left or center-right parties, of a broad
social contract between rich and poor that has heretofore not existed in the region.
In a foreword to the report, UNDP Regional Director Heraldo Muñoz reaffirmed the importance of
continuing to fight poverty, but notes that it will be insufficient unless paired with programs to reduce
inequality. “Equality is instrumental in ensuring meaningful liberties; that is to say, in terms of helping
all people to share in meaningful life options so that they can make autonomous choices,” he said.
The design and implementation of policies to reduce inequality must:
Focus on better reaching, and impacting the lives of, people who need assistance;
Address the complex multiple factors that perpetuate poverty and inequality; and
Provide citizens with a sense of ownership of their development outcomes. Beneficiaries must
become active agents of their own human development.
Access to goods and services are important to reducing inequality, but effective policies must also
impact:
3
Education policies in most LAC region countries focus on university support, rather than on primary and secondary
education. This effectively constitutes an education subsidy to middle and upper-class families, and so perpetuates
inequality.
4
Income inequality can and must be addressed in a variety of ways, including policies to promote equal pay for
women, progressive income taxation, social safety net reform, and other policies.