POLICYMATTERS Volume 1, Issue 5 | March 2012 POVERTY AND RACE THROUGH A BELONGINGNESS LENS By john a. powell Policy Levers to Reduce Poverty and Build Prosperity in the Upper Midwest and Pacific Northwest INTRODUCTION Prosperity is possible for all. That bold idea has opened vistas of opportunity for generations of Americans. And it lies at the core of the Northwest Area Foundation’s mission – to support organizations working to reduce poverty and build sustainable prosperity. Everything we do is rooted in our conviction that prosperity is possible for all. That spirit animates our strategies and informs our thinking as we reach out to partners with similar goals. We believe people should have the opportunity to thrive, to build the future they want for themselves and their families. What we have learned in over 50 years of grantmaking is that achieving lasting prosperity – getting out and staying out of poverty – takes more than a steady income. It requires building assets as well: savings for homes, cars and education, and to buffer against emergencies; education and training for living-wage jobs and career advancement; and housing that’s safe and secure. Opportunities for building assets and wealth are either advanced or stymied by public policies at the city, county, state and federal levels. That’s why policy matters in people’s lives. The significance of policy is the guiding principle of PolicyMatters, a series of issue papers underwritten by the Northwest Area Foundation. Policy decisions shape the flow of the people’s resources through government expenditures, with profound consequences in our communities. Public policy touches on issues as diverse as asset accumulation, early childhood and K–12 education, college access, housing, immigration, workforce development, tax and budget policy, and retirement security. In all of these areas and many more, the people’s resources are flowing in patterns not shaped by some invisible hand, but by decisions made by human beings. A critical question is: Whose perspectives inform those decisions? Our Foundation cannot achieve its mission if the organizations with which we work – or the low-income people these organizations serve – are absent from the policy debates of our time. PolicyMatters seeks to lift up voices from the field. We hope these perspectives will be useful to practitioners, advocates and decision-makers as they work toward policies to reduce poverty and build sustainable prosperity. Motivating us in this and all our endeavors is a vision for the future of the Northwest area: • We see a region known for its highly skilled, well-educated population, its living-wage jobs, and its healthy, vibrant communities. • We see a region characterized by thriving local economies within thriving ecosystems. • We see a region whose strong public institutions, business community, and nonprofit sector collaborate to address pressing needs and help build pathways to prosperity for all residents. • We see a region whose people are organized and empowered to lift their voices and actively shape the civic, social, political and economic life of their communities. • Ultimately, we see a region whose rich culture of engagement and opportunity makes it a prized place to visit, to invest, and to live, and where all residents have a fair chance to live free of poverty. 1 Innovative public policies are essential if that vision is to become a reality. Let us know whether you find PolicyMatters helpful in spurring the development of such policies. PolicyMatters is intended to spark reflection, discussion and innovation. We encourage you to add your voice in what we hope will POVERTY AND RACE THROUGH be a vibrant, ongoing public conversation about the future of your community and our nation. You can submit your comment at [email protected]. A BELONGINGNESS LENS By john a. powell INTRODUCTION Kevin Walker President and CEO This paper is about how to address poverty in the and meaning of exclusion related to race, it would United States. It is not so much prescriptive as have much broader implications and would help it is focused on how transforming the narrative us better understand the mechanism of exclusion and structures related to poverty can help break generally. In this report, I will explore the our complicity with it. We often misunderstand complexities of belongingness, the racialization what poverty is in our society and why it seems of exclusion, and the promotion of inclusion so intractable. While there have been many through the policies that I recommend. insightful policy proposals and even some limited success, such as reducing poverty for the elderly, There are two dominant ways of thinking about overall poverty in our society has been difficult and measuring poverty: absolute, and relative to tackle. There also is a growing call to rethink or relational.2 Absolute poverty measures what we mean by “poverty” that goes beyond usually refer to some threshold of income or the official definition of poverty adopted by the resources below which people should be deemed federal government in the 1960s. The White disadvantaged or poor.3 Because it is an absolute House has exerted significant effort to redefine standard, it remains largely static over time in a poverty. Although the official poverty line will given society. For example, if one does not have still be based on food costs and a family’s cash sufficient food or water, one does not thrive. income, a second rate will expand costs to include This is as true today as it was 100 years ago such expenses as housing, utilities, childcare and and it is not society specific. Relative poverty medical treatment.1 Even those who find fault measures, on the other hand, move beyond in this effort agree that the current thinking on absolute deprivation to consider an individual’s poverty is flawed. or family’s relative deprivation – economic, social, and/or cultural – in relation to other people in In a wealthy and mature democracy, poverty is a given society over time.4 In our society today, largely about social exclusion and the lack of there is a strong assumption that, in an urban belonging, not material inequality. As an excluded area, to be without a phone or a computer is a group increases in size, the realities of exclusion serious deprivation. We organize the operation seriously affect not only the target group, but of basic service organizations, such as police About the Northwest Area Foundation the overall society as well. Historically, there and fire departments, based on the assumption are different categories used for this exclusion, one will have access to phones. This form of The Northwest Area Foundation is dedicated to supporting efforts by people, organizations and including nationality, religion, gender, language, measurement is consistent with the “capabilities communities to reduce poverty and achieve sustainable prosperity. Established by Louis W. Hill in 1934, ethnicity and race. In the United States, race has approach” developed by Amartya Sen and Martha the Foundation serves a region comprised of Minnesota, Iowa, North Dakota, South Dakota, Montana, been one, if not the primary, category for extreme Nussbaum, in which deprivation is understood Idaho, Washington, Oregon, and the 74 Native nations that share the same geography. exclusion. Native Americans make up another more broadly as encompassing the capabilities category. We should therefore expect race to that one requires, some material and some not, to We seek a future for this region in which those who have been impoverished and marginalized, whether be significant in understanding and addressing live a meaningful, flourishing life.5 One is poor in urban, rural, or American Indian reservation communities, share in real opportunity and lasting poverty. I do not claim that if we addressed if one does not have the things needed to be a prosperity. We work toward that future by making grants and mission-related investments. We are also racialized poverty all other forms of exclusion respected member of society.6 One might claim committed to sharing knowledge of what works, convening conversations about the region’s progress, would be addressed. Instead, I suggest that if we that a physical structure of a home in an urban and advocating for change. better understood and addressed the dynamics area is not necessary for a healthy life in some 2 PolicyMatters March 2012 3 In a wealthy and mature absolute sense, but it is attributable to the targeted group, then there is a clear that the lack of a strong claim for policy intervention. This external I. BELONGINGNESS democracy, poverty is largely home is a deprivation of cause might be natural (such as a flood) or social about social exclusion and well-being and standing (such as one group excluding or discriminating in our modern society. against another). Liberals who consider the poor the lack of belonging, not In other words, when we unfortunate, not undeserving, are more likely In a legitimate democracy, belonging means that about the character of the isolated group. The ask whether someone to operate from these assumptions and support your well-being is considered and your ability to centrality of the cleavage of otherness in general, material inequality. As an is poor, we are actually policy interventions. Of course, there can be a help design and give meaning to its structures and race in particular, constrains our willingness concerned about her mixed attribution. For example, segregation from excluded group increases and institutions is realized.8 Members are more to adopt an effective anti-poverty agenda. This standing in society – opportunity and belonging can contribute to than just individuals; they also have collective unwillingness shows up in our institutional in size, the realities of whether she belongs, behavior in the disfavored group, which makes power and share a linked fate.